Unwanted participation? Defector public diplomacy in South Korea

ABSTRACT The controversy surrounding defector balloon launches into North Korea is often viewed as a bizarre example of Cold War legacies on the Korean peninsula. However, it is also a unique case study of non-state public diplomacy because these groups are attempting to engage in cross-border communication against the wishes of their host government. This article argues that South Korea’s unique interpretation of public diplomacy as a participatory activity has proven vulnerable to non-state organisations with divergent views of the national interest, which has resulted in two different types of public diplomacy being directed at North Korea. Subsequent attempts by the South Korean government to control the dissonant public diplomacy of non-state groups resulted in reputational costs for both sides and ultimately failed to prevent defectors from advancing their claim to a human right to communicate across national borders. Even though this case study broadly supports a polylateral interpretation of public diplomacy, it cautions that human rights discourses may obscure the fact that the traditional diplomatic system was designed to mitigate many of the risks associated with non-state diplomatic actors. Therefore, this paper suggests the need for more discussion about the consequences of a right to communicate across national borders.