Since 1993, Seoul’s external activities towards China have evolved from a phase of seeking “exchange and cooperation” to “city diplomacy” through “institutionalization”. This transition reflects the evolving relationship between Seoul and Beijing and mirrors the broader South Korea-China relations. The rate of past Seoul mayors visiting to Beijing is notably high at 68.4%, highlighting the proactive efforts to strengthen diplomatic relations with China. The establishment of the Seoul-Beijing Joint Committee, marking the 20th anniversary of the Friendly City Agreement in 2013, stands as a prime example of “institutionalization” and directs the advancement of city diplomacy towards China. Since its establishment, cooperation between the two capitals has increased, showcasing leadership in local government roles amid deteriorating Korea-China relations. However, while Seoul’s city diplomacy with Beijing acts as a “barometer” for the shifting dynamics, deteriorating relations could potentially bring city diplomacy with China to a halt.
Seoul’s city diplomacy towards China has primarily developed as bilateral rather than multilateral diplomacy. Despite the internalization of activities within international organizations among cities, the concept of “Bilateral diplomacy within multilateral frameworks” has seen limited evolution. Most interactions involve invitations to international organization assemblies hosted by either Seoul or Beijing, focusing primarily on exchanges. Additionally, most friendly cooperation cities in China, including Beijing, are not hold members of international organizations where Seoul is a leading player. On the other hand, the Seoul-Beijing Joint Committee, a bilateral city network, emerged as a significant model of South Korea-China city diplomacy until the emergence of COVID-19 and the deterioration of South Korea-China relations prompted a strategic reassessment. Despite this, the committee's susceptibility to both domestic and international factors, such as deteriorating relations and shifts in central government diplomacy towards China, cannot be overlooked.
In light of the need to restore city diplomacy with Beijing, Seoul should adopt policies based on four principal strategies that maximize the benefits of city diplomacy while minimizing the risks associated with South Korea-China relations, thereby contributing to the development of these relations. First, as a core strategic direction, establish multilateralization to enhance bilateral diplomacy within a multilateral city network. Specifically, ① promote bilateral cooperation within international organizations among cities to lead agenda- setting on Northeast Asian regional issues and enhance Seoul's voice in the international community. ② Encourage Beijing’s participation in international organizations led by Seoul, facilitating the conception and execution of joint projects. ③ Actively engage in the exchange meeting platform hosted by the Council of Local Authorities for International Relations to spearhead the development of South Korea-China city diplomacy.
Second, under the institutionalization strategy, promote integrated and sustainable exchange and cooperation based on platforms. Specific directions include ① restructuring the Seoul-Beijing Integration Committee around core issues of joint interests. ② Establish a Beijing-Seoul Forum to create a multi-layered communication channel among central government, local government, business sectors, and media. ③ Institutionalize cultural and academic exchanges based on representative platforms such as the Seoul World Cities Culture Festival and the Beijing Cultural Forum, particularly enhancing mutual understanding among future generations through study and scholarship programs.
Third, promote agenda-focused city diplomacy under the specialization strategy. This entails ① shifting from relationship building to problem-solving to pursue substantive cooperation centered on policy. ② Adopt a collaborative approach based on positive learning to strategically utilize the opportunity presented by China's rise as a major power. ③ Set mutual image improvement as a key goal to restore political trust.
Fourth, under the multilayered strategy, establish multilayer governance and systematize the integration of online and offline exchanges. Specific actions include ① rebuilding vertical governance to establish a foundation for the role of local governments while enhancing expertise. ② Create horizontal governance centered on expertise to enable specialized city diplomacy by department. ③ Systematize digital diplomacy by organizing online meetings and internalizing a blended approach to online and offline exchanges.