South Korea has reviewed a five-year plan for fostering inter-Korean trust-building and sustainable relations that can achieve small breakthroughs critical for laying the foundation for eventual reunification down the line, the government said Wednesday.

The plan, which defines the Park Geun-hye administration's policy towards Pyongyang, focuses on trust and "a small form of unification" as its two main objectives, the Ministry of Unification said.

Trust is critical for the two Koreas to expand exchange and cooperation while achieving so-called "small unification" in various bilateral programs that can lead to significant political merging of the two sides down the road.

The step-by-step approach and trust building have been a key goal under the Park administration that took office in late February.

Compared to similar plans set by the previous Roh Moo-hyun and Lee Myung-bak administrations, a greater emphasis has been placed on trying to move forward mutually beneficial programs and nudge the North to make changes. The latest plan, on the other hand, noticeably fails to directly mention broader objectives that have been top policy targets in the past.

Denuclearization of the Korean Peninsula, the establishment of the Yellow Sea peace zone to ease military tensions, transforming the current cease-fire agreement into a permanent cease fire arrangement, and improvement of human rights in the North were not included in any of the major goals and directions in the five-year plan.

"Denuclearization and human rights are part of the sustainable peace objective and are mentioned in detail in the full text of the plan that will be released later," said a ministry official, who declined to be identified.

He stressed denuclearization is an integral part of Seoul's policy towards the North and deserves attention, while human rights is another important agenda item.

The insider said the resumption of tours to Mount Kumgang is also mentioned in the text, although the creation of the Yellow Sea peace zone and permanent peace treaty is not alluded to. The peace zone and the peace treaty were policy goals favored by liberal governments and not popular with conservatives.

Though some goals received less attention despite having taken center stage in the past, the plan outlined the need to build up South Korea's security capabilities and expand all manner of exchange with North Korea simultaneously. The plan was checked by 24 experts, including the unification minister.

Under the 2013-2017 plan, Seoul also outlined 10 main goals for easing tensions, expanding cooperation and the laying down of groundwork for unification.

Foremost among the goals, Seoul called for all sides to seek dialogue to resolve outstanding issues and to stick to agreements once they are signed.

In the past, the North has repeatedly disregarded pledges, fueling mistrust.

Seoul will, moreover, seek to realistically resolve humanitarian issues, such as helping to reunite families separated by the 1950-53 Korean War, and engage in mutually beneficial cooperative ventures and work together to progressively develop the inter-Korean factory park in Kaesong that reopened last week after being closed for more than five months.

Under the plan, the country will pursue policies that can ensure sustainable peace on the peninsula that has seen its share of tension.

On the international front, Seoul hopes to move to build consensus supporting unification of the divided Koreas, while on the home front, it wants to pool public support for its unification policies, provide customized assistance to the steady stream of North Korean escapees and strengthen reunification-related education programs. Seoul also seeks to strengthen its overall capability to make it possible for the two Koreas to reunite in the future.

The ministry, meanwhile, said the reviewed plan was compiled with input from various government ministries and civilian experts.

The plan that must be updated every five years under law needs to receive final confirmation by the unification minister. It will be reported to the National Assembly and then released to the public.

Officials claimed the policy goals effectively cover all aspects of inter-Korean relations with this being apparent if they are viewed as a continuation of the two previous plans.

"Simple comparison is not the right way of looking at the goals and they should be examined as part of a continuing process," said another working level official involved in the formulation of the plan.

Critics, however, countered that the government might have opted to focus less on large issues, such as getting the North to give up its nuclear weapons that cannot be attained by Seoul's efforts alone, and concentrate on smaller and more attainable goals.

"The outline of the inter-Korean relations plan may be the government trying to divide up the load between the unification ministry and foreign ministry, but it is causing confusion," a North Korea observer said.

The unification ministry handles all matter on inter-Korean relations, while the foreign ministry has managed denuclearization. (Yonhap News)