Employee engagement requires that the person be an employee therefore it is the employer who must decide which employees are engaged. Employers should hire employees who are predisposed to become engaged.
Employee engagement is the reward employers receive for having all direct reports, supervisors, managers, and executives doing their jobs well. This helps explain why an engaged workforce is so hard to achieve; executives must do their jobs well and all other employees must do their jobs well. It is doable but it is hard work. To start we must learn how to hire people who are predisposed to become engaged.