Secession: let the battle commence
By James Ker-Lindsay
There has rarely been a more interesting time to study secession. It is not just that the number of separatist movements appears to be growing, particularly in Europe, it is the fact that the international debate on the rights of people to determine their future, and pursue independence, seems to be on the verge of a many change. The calm debate over Scotland’s future, which builds on Canada’s approach towards Quebec, is a testament to the fact that a peaceful and democratic debate over separatism is possible. It may yet be the case that other European governments choose to adopt a similar approach; the most obvious cases being Spain and Belgium towards Catalonia and Flanders.
However, for the meanwhile, the British and Canadian examples remain very much the exception rather than the rule. In most cases, states still do everything possible to prevent parts of their territory from breaking away, often using force if necessary.
It is hardly surprising that most states have a deep aversion to secession. In part, this is driven by a sense of geographical and symbolic identity. A state has an image of itself, and the geographic boundaries of the state are seared onto the consciousness of the citizenry. For example, from an early age school pupils draw maps of their country. But the quest to preserve the borders of a country is rooted in a range of other factors. In some cases, the territory seeking to break away may hold mineral wealth, or historical and cultural riches. Sometimes secession is opposed because of fears that if one area is allowed to go its own way, other will follow.
For the most part, states are aided in their campaign to tackle separatism by international law and norms of international politics. While much has been made of the right to self-determination, the reality is that its application is extremely limited. Outside the context of decolonisation, this idea has almost always taken a backseat to the principle of the territorial integrity of states. This gives a country fighting a secessionist movement a massive advantage. Other countries rarely want to be seen to break ranks and recognise a state that has unilaterally seceded.
When a decision is taken to recognise unilateral declarations of independence, it is usually done by a state with close ethnic, political or strategic ties to the breakaway territory.Turkey’s recognition of the Turkish Republic of Northern Cyprus and Russia’s recognition of Abkhazia and South Ossetia are obvious examples. Even when other factors shape the decision, as happened in the case of Kosovo, which has been recognised by the United States and most of the European Union, considerable effort has been made by recognising states to present this as a unique case that should be seen as sitting outside of the accepted boundaries of established practice.
However, states facing a secessionist challenge cannot afford to be complacent. While there is a deep aversion to secession, there is always the danger that the passage of time will lead to the gradual acceptance of the situation on the ground. It is therefore important to wage a concerted campaign to reinforce a claim to sovereignty over the territory and prevent countries from recognising – or merely even unofficially engaging with – the breakaway territory.
At the same time, international organisations are also crucial battlegrounds. Membership of the United Nations, for example, has come to be seen as the ultimate proof that a state has been accepted by the wider international community. To a lesser extent, participation in other international and regional bodies, and even in sporting and cultural activities, can send the same message concerning international acceptance.
The British government’s decision to accept a referendum over Scotland’s future is still a rather unusual approach to the question of secession. Governments rarely accept the democratic right of a group of people living within its borders to pursue the creation of a new state. In most cases, the central authority seeks to keep the state together; and in doing so choosing to fight what can often be a prolonged campaign to prevent recognition or legitimisation by the wider international community.
James Ker-Lindsay is Eurobank EFG Senior Research Fellow on the Politics of South East Europe at the European Institute, London School of Economics and Political Science. He is the author of The Foreign Policy of Counter Secession: Preventing the Recognition of Contested States (2012) and The Cyprus Problem: What Everyone Needs to Know (2011), and a number of other books on conflict, peace and security in the Balkans and Eastern Mediterranean.
Image credit: Photograph of Turkish Republic of Northern Cyprus sign by James Ker-Lindsay. Do not reproduce without permission.