Influential Factors in BESETO Restoration: A Multi-Level Analysis of Korea-China-Japan Cooperation

This study endeavors to systematically examine and integrate the determinants influencing the revitalization of BESETO, a trilateral cooperative framework involving Korea, China, and Japan. Initially, the study investigates the current status of BESETO restoration initiatives in Seoul. Subsequently, it undertakes a comprehensive analysis of empirical data concerning exchanges and cooperative activities facilitated by the central government, local government internationalization support agencies, and municipal authorities. Moreover, a SWOT analysis framework is applied to critically evaluate Seoul’s internal strengths and weaknesses, alongside external opportunities and threats, thereby elucidating its role as a pivotal actor in advancing the restoration process. The findings of the analysis are as follows. Among the strengths of the Seoul Metropolitan Government are its established Korea-China city diplomacy, as exemplified by the Seoul-Beijing Joint Committee, and its extensive experience in attracting and managing international organizations at the municipal level. Furthermore, the existence of multilevel governance structures across the three countries, coupled with robust interpersonal networks, constitutes a significant asset for the promotion of cooperative initiatives. Conversely, the relatively underdeveloped Korea-Japan diplomatic engagements and associated human networks, compared to those with China, represent notable weaknesses. Additionally, the accumulated unsuccessful experiences of BESETO restoration may serve as impediments, potentially complicating the smooth implementation of future initiatives. Conversely, the reinstatement of the Korea-China and Korea-China-Japan summits, coupled with the resumption of mayoral diplomacy among Seoul, Tokyo, and Beijing, constitutes significant opportunities for the revitalization of the BESETO framework. Notably, the fact that the agenda among Korea, China, and Japan centers on non-traditional security issues related to urbanization underscores the necessity for cooperation between cities. However, the escalating uncertainty in the international environment following the Trump administration, alongside the resurgence of nationalist sentiments, represents a detrimental external factor impeding the institutionalization of the BESETO mechanism. Moreover, prevailing negative mutual perceptions, in addition to strategic, ideological, and emotional complexities, simultaneously underscore the imperative for enhanced exchange and cooperation while also presenting potential impediments to the restoration process.