Engagement without Recognition

This chapter explores ‘engagement without recognition’, a widespread practice whereby states and non-state actors interact with entities that they do not formally recognise as states. The chapter addresses the practical consequences of the plurivocal use of the engagement without recognition formula for EU policies. It gives particular attention to the EU’s ‘non-recognition and engagement’ with Abkhazia and South Ossetia, a policy which has framed the EU’s continued support for communities in these regions, and which is aimed at conflict resolution while maintaining the opposition of EU members to the secession of these territories from Georgia. The chapter argues that a precise distinction needs to be drawn between the formula of ‘non-recognition and engagement’ and that of ‘engagement without recognition’: the first is appropriate for describing the EU’s engagement policies where its member states are united in defending a position of non-recognition as a primary objective; the second formula, on the other hand, is appropriate for analysing these policies where, in order to overcome divisions between member states on the question of recognition, the EU has to defend a status-neutral position.