Let $A=\{0,1,2\}$ be a set and $R=\{\}$. I know that $R$ is not an equivalence relation, but does it have to be? What is $A/R$ if $R$ is empty?
Examples:
$R_1=\{(0,0),(1,1),(2,2)\}$, $A/R_1=\{[0], [1], [2]\}$
$R_2=\{(0,0),(1,1),(0,1),(2,2)\}$, $A/R_2\{[0, 1], [2]\}$
$R=\{\}$, $A/R=?$
$R$ is not an equivalence relation, so $A/R$ does not make sense with the standard definition.
The extension suggested by user1 would probably be the most sensible in general: we can define $A/R$ to be $A/S$ where $S$ is the smallest equivalence relation containing $R$. In case of $R=\emptyset$ it would be the equality relation, so $A/R=\{\{a\}\mid a\in A\}$.