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Slovakia: Diplomatically Engaged with Kosovo, but No Recognition

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The Politics of Recognition and Engagement

Part of the book series: New Perspectives on South-East Europe ((NPSE))

Abstract

Slovakia has been among Kosovo’s most active and constructive non-recognisers. As this chapter shows, Bratislava’s decision not to recognise Kosovo was driven by domestic political factors and by historical legacies, including strong relations with Serbia. However, this non-recognition has nevertheless run hand in hand with an active policy of engagement, which has been more active and substantial than some EU recognisers. Mostly driven by top diplomats and civil society activists, it also showed the limits of engagement when it comes to recognition. So far, engagement has also been asymmetrical, with the Slovak side doing most of the work, and short-term. As a result, societal and economic links remain underdeveloped. Ultimately, Slovakia’s position on Kosovo seems likely to shift only in response to internal factors rather than external pressures. But external factors will be crucial in providing legitimacy for recognition when it becomes a more realistic option.

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Notes

  1. 1.

    Vyhlásenie MZV SR k vzniku Juhosudánskej republiky [Statement of the Slovakia’s MFA on the establishment of the South Sudanese Republic], 9 July 2011.

  2. 2.

    Webpage of the Slovak Foreign Ministry (www.mzv.sk), Country information: Taiwan. Archive: https://www.mzv.sk/documents/748032/620840/Taiwan+-+ekonomick%C3%A9+inform%C3%A1cie+o+terit%C3%B3riu+2018.

  3. 3.

    According to the 2011 census, there are 52,750 ethnic Slovaks in Serbia, mainly living in Vojvodina (50,321), where they constitute the third largest ethnic group after Serbs and ethnic Hungarians. Slovakia’s Foreign Ministry notes in its website that it is the largest compact Slovak diaspora abroad and plays an important role in bilateral relations with Serbia. For more information, see https://www.mzv.sk/cestovanie_a_konzularne_info/detail/-/asset_publisher/Iw1ppvnScIPx/content/srbska-republika?displayMode=1.

  4. 4.

    For more information, see interactive map of the Slovak development assistance http://slovakaid.sk/en/map-view.

  5. 5.

    ‘Serbian guest workers head for Slovakia’, The Economist, 14 September 2017.

  6. 6.

    ‘Slovakia open skies to NATO’, Slovak Spectator, 5 April 1999. The division between the pro-Atlantic orientation of the government and the pro-Serbian sentiment of large part of Slovak society was described by Martin M. Šimečka, the chief editor of Sme, the main liberal newspaper: ‘In March 1999, the NATO attacks on Serbia began. As a man who believed in NATO and the US at the time, I naturally supported this… In three months, the paper [sold almost 25% less] of its print run… People were just so angry at us that we supported the war, a war against Serbs, against Slavs, against our own people’. ‘Martin M. Šimecka: Media and Reform in Slovakia’, European Stability Initiative (ESI), 24 August 2009.

  7. 7.

    Vyhlásenie Národnej rady SR k situácii v Kosove zo 14. 4. 1999 č. 262 [Statement of the National Council of the Slovak Republic on situation in Kosovo] Archive: https://www.nrsr.sk/web/Static/sk-SK/NRSR/Doc/v_ku-kosovu.htm.

  8. 8.

    ‘Kukan to lead UN Kosovo talks’, Slovak Spectator, 3 May 1999. Foreign Minister Kukan’s UN mission eventually lasted until 2001. Miroslav Lajcak, later EU special envoys in several Balkan countries, was at that time Kukan’s chief of staff.

  9. 9.

    ‘Trying to Sidestep Slavic Allegiances’. Doing the Deal: A Special Report, New York Times, 6 June 1999.

  10. 10.

    ‘Radičová: Slovensko v misii KFOR končí’ [Radičová : Slovakia’s participation in KFOR mission is ending], Pravda, 27 September 2010.

  11. 11.

    In 2012, the official name was altered to Ministry of Foreign and European Affairs of the Slovak Republic. I will use this abbreviation throughout the text.

  12. 12.

    Slovak official, comments to author, December 2017.

  13. 13.

    Eliška Slavikova, ‘Slovakia’, in: Kosovo Calling. International Conference to Launch Position Papers on Kosovo’s Relation with EU and Regional Non-recognising Countries (Pristina: Kosovo Foundation for Open Society and British Council, 2012), p. 38.

  14. 14.

    ‘Samostatnosť Kosova sa už nedá zvrátit’ [Independence of Kosovo cannot be reversed], SME, 6 February 6 2007, http://domov.sme.sk/c/3132829/kubis-samostatnost-kosova-sa-uz-neda-zvratit.html.

  15. 15.

    Minister Kubiš v úzkych kvôli Kosovu, [Minister Kubiš in dire straits due to Kosovo], SME, 7 February 2007.

  16. 16.

    I. Imreová, ‘Podmienky legitímnej štátnosti v SR: Téma Kosova v parlamentnej rozprave’ [Conditions of Legitimate Statehood as seen from Slovakia: The Kosovo Question in Slovakian Parliamentary Debate] Středoevropské politické studie, 16(4), 288–311.

  17. 17.

    ‘Slovak politicians wrestle with domestic Kosovo’, Slovak Spectator, 26 February 2007.

  18. 18.

    Katarina Lezova, The Influence of Domestic Political Factors on Foreign Policy Formation in an EU Member State: The Case of Slovakia and the Kosovo Status Process, PhD thesis, Department of Politics, Goldsmiths College University of London, 2013, p. 225. https://research.gold.ac.uk/9460/1/POL_thesis_Lezova_2013.pdf.

  19. 19.

    Slovak official, comments to the author, August 2010.

  20. 20.

    Imreová, ‘Podmienky legitímnej štátnosti v SR: Téma Kosova v parlamentnej rozprave’.

  21. 21.

    Vyhlásenie Národnej rady SR k riešeniu budúceho štatútu srbskej provincie Kosovo z 28. 3. 2007, č. 309 [Resolution of the Slovak Parliament on resolving the final status of Serbian province of Kosovo], Archive: https://www.nrsr.sk/web/Static/sk-SK/NRSR/Doc/v_ku-kosovu309-20070328.rtf.

  22. 22.

    ‘Mimoriadny brífing Jána Kubiša ku Kosovu’ [Extraordinary briefing of Jan Kubiš on Kosovo], SITA, 17 February 2008.

  23. 23.

    ‘Robert Fico: Kosovo možno vôbec neuznáme, nikdy’ [Robert Fico: Perhaps we will never recognize Kosovo], SITA, 24 February, 2008.

  24. 24.

    Julius Lörincz, ‘Slovakia and the Western Balkans: The Year 2008—Before and After’, Yearbook of Slovak Foreign Policy 2008 (Bratislava: Research Centre of the Slovak Foreign Policy Association, 2009), p. 91.

  25. 25.

    His mandate in a ‘double-hated’ hot seat of the High Representative and EU Special Representative for Bosnia and Herzegovina (BiH) also included a volatile period around Kosovo’s declaration of independence. It was followed by widespread protests and riots in the BiH’s Serbian entity, and increased some its leaders’ appetite for secession of Republika Srpska and referendum on independence. With the full support of main Western powers, Lajčák contained such tensions and vehemently dismissed any links between Kosovo and Bosnia, whose constitutional matters were defined by Dayton peace agreement.

  26. 26.

    ‘Lajčák : Na Kosovo máme svoj názor, no chceme vyriešiť praktické veci’ [We have our stance on Kosovo but want to solve practical issues], Aktuality. 8 April 2010.

  27. 27.

    The Prime Minister meets with Foreign Minister of Slovakia, 8 April 2010, homepage of the Office of the Prime Minister of Kosovo. http://kryeministri-ks.net/en/the-prime-minister-meets-with-foreign-minister-miroslav-lajcak-of-slovakia/.

  28. 28.

    Miroslav Lajčak’s address at MGIMO University in Moscow, 8 September 2009, weblink: https://www.mzv.sk/web/moskva-en/news/-/asset_publisher/olsKsIdtEfpB/content/draft-speech-by-m-lajcak-at-the-moscow-state-institute-of-international-relations-mgimo-8-september-2009-/10182.

  29. 29.

    Miroslav Lajčak’s address on to the US German Marshall Fund in Washington, 7 May 2009. In: Julius Lörincz, ‘Slovakia and the Western Balkans: The Year 2008—Before and After’, in: Yearbook of Slovak Foreign Policy 2008 (Bratislava: Research Center of the Slovak Foreign Policy Association, 2009), p. 93.

  30. 30.

    International Court of Justice, ‘Request for an advisory opinion on the question “Is the unilateral declaration of independence by the Provisional Institutions of Self-Government of Kosovo in accordance with international law?”’ Written statement by the Slovak Republic, 16 April 1999, https://www.icj-cij.org/files/case-related/141/15626.pdf.

  31. 31.

    Declaration by Vice-President Tomka, 22 July 2010, ICJ. https://www.icj-cij.org/files/case-related/141/141-20100722-ADV-01-01-EN.pdf accessed on 20 November 2018.

  32. 32.

    ‘Nezávislé Kosovo je v poriadku. Nezáväzne’ [Independent Kosovo is fine. Without implications], Euractiv.sk, 22 July 2010.

  33. 33.

    ‘Dzurinda: Nikdy som nepovedal, že Slovensko nikdy neuzná Kosovo’ [Dzurinda: I have never said that Slovakia would never recognize Kosovo], Pravda.sk, 2 September 2010.

  34. 34.

    Slovak official, comments to the author, September 2010.

  35. 35.

    Serbia backs compromise U.N. resolution on Kosovo, Reuters, 10 September 2010.

  36. 36.

    Slovak official, comments to the author, September 2010.

  37. 37.

    ‘US, Slovakia urge Serbia-Kosovo dialogue’, Voice of America, 18 October 2010.

  38. 38.

    Minister Dzurinda visited Serbia, 5 January 2011, webpage of the Slovak Ministry of Foreign Affairs https://www.mzv.sk/web/en/news/current_issues/-/asset_publisher/lrJ2tDuQdEKp/content/minister-of-foreign-affairs-of-the-slovak-republic-mikulas-dzurinda-visited-serbia/10182.

  39. 39.

    ‘Radičová : Slovensko v misii KFOR končí’ [Radičová : Slovakia’s participation in KFOR mission is ending], Pravda. 27. 9. 2010.

  40. 40.

    Full text: https://www.rferl.org/a/text-leaked-copy-serbia-kosovo-agreement-brussels/24963542.html.

  41. 41.

    Previously, Slovakia recognized travel documents issued by UNMIK. After 2008, the Liaison Office made an arrangement whereby UNMIK could certify documents issues by the Republic of Kosovo. For more details, see Eliška Slavikova, ‘Slovakia’, in: Kosovo Calling. International Conference to Launch Position Papers on Kosovo’s Relation with EU and Regional Non-recognising Countries (Pristina: Kosovo Foundation for Open Society and British Council, 2012), p. 38.

  42. 42.

    ‘Kosovar Minister in Unofficial Visit’, The Slovak Spectator, 10 December 2012.

  43. 43.

    ‘Kosovo neuznáme, ale chceme ho priblížiť k EÚ, hovoria slovenskí poslanci’ [We won’t recognize Kosovo but want to help it to move closer to the EU], Pravda.sk, 2 October 2, 2013.

  44. 44.

    Kosovo official, comments to the author, May 2015.

  45. 45.

    Advisor to Slovak Prime Minister, comments to the author, December 2013.

  46. 46.

    ‘Robert Fico v Albánsku: Každej krajine, ktorá má záujem vstúpiť do EÚ, držíme palce’ [Robert Fico in Albania: We support each (Balkan) country that wants to enter the EU], Úrad Vlády Slovenskej Republiky, January 24, 2014, http://www.vlada.gov.sk/robert-fico-v-albansku-kazdej-krajine-ktora-ma-zaujem-vstupit-do-eu-drzime-palce/.

  47. 47.

    ‘Minister Bushati Receives Deputy Prime Minister and Minister of Foreign and European Affairs of Slovakia, Miroslav Lajčák’, Ministry of Foreign Affairs of the Republic of Albania, 9 March 2015. http://www.punetejashtme.gov.al/en/press-office/news/minister-bushati-receives-deputy-prime-minister-and-minister-of-foreign-and-european-affairs-of-slovakia-miroslav-lajcak.

  48. 48.

    ‘Ekonomická informácia o teritóriu: Kosovo’ [Economic country profiles: Kosovo], Slovak Foreign Ministry webpage of the Slovak MFA https://www.mzv.sk/documents/10182/620840/Kosovo+-+ekonomick%C3%A9+inform%C3%A1cie+o+terit%C3%B3riu+2018.

  49. 49.

    Slovak official, comments to author, December 2017.

  50. 50.

    ‘Kosovo to Sign EU Stability Deal Next Week’, Balkan Insight, 22 October 2015.

  51. 51.

    Milan Nič, ‘Kosovo’s SAA: Sign of Change in Relations with EU Non-Recognizers?’, Balkans in Europe Policy Blog, November 3, 2015.

  52. 52.

    Slovak official, comments to the author, November 2015.

  53. 53.

    Kosovo’s membership in international organisation was discussed by the Slovak Parliament’s Foreign Affairs Committee (FAC) at its hearing on Kosovo in September 2015, initiated by Slovak think tanks and FAC Chairman František Šebej (Most-Hid party). Eight out of the eleven members of parliament present at the hearing supported the MFEA’s positive approach to Kosovo’s integration to international community in non-political areas such sports and law enforcement (UEFA , Interpol) but were rather sceptical towards membership in political organisations, including UN agencies. In general, this hearing confirmed broad consensus on constructive dialogue with Kosovo—as long as the official Slovak stance is respected, and recognition is not implied. ‘Hearing on Kosovo at the Slovak Parliament’, Central European Policy Institute (CEPI), October 5, 2015, http://www.cepolicy.org/news/hearing-kosovo-slovak-parliament.

  54. 54.

    Slovak official, comments to author, December 2017.

  55. 55.

    Západný Balkán nemá inú možnosť ako europsku integráciu [The Western Balkan countries do not have other option as EU integration], euractiv.sk, 27 November 2017.

  56. 56.

    ‘Slovakia’s Lajcak: Serbia-Kosovo Land Swap “Anti-democratic”’, Balkan Insight, 22 November 2018.

  57. 57.

    Slovak official, comments to the author, December 2018.

  58. 58.

    ‘Slovakia ‘explicitly against formation of Kosovo Army’, B92, 11 December 2018.

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Authors and Affiliations

  1. German Council on Foreign Relations (DGAP), Berlin, Germany

    Milan Nič

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Correspondence to Milan Nič .

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Editors and Affiliations

  1. Department of Balkan, Slavic and Oriental Studies, University of Macedonia, Thessaloniki, Greece

    Ioannis Armakolas

  2. European Institute, London School of Economics and Political Science, London, UK

    James Ker-Lindsay

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Nič, M. (2020). Slovakia: Diplomatically Engaged with Kosovo, but No Recognition. In: Armakolas, I., Ker-Lindsay, J. (eds) The Politics of Recognition and Engagement. New Perspectives on South-East Europe. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-17945-8_8

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