Question: Can Northern Ireland in the 1960s be considered to have been a democracy given the prevalence of gerrymandering?
Answer: This is an interesting question and the short (but imperfect) answer is ‘yes’. Based on the definitions of democracy that we have looked at, Northern Ireland would have qualified as such:
- Robert Dahl’s minimalist definition requires only that a country is high in terms of inclusion (i.e. that the bulk of the population can vote) and contestation (i.e. that voters have a meaningful choice over who they vote for), and both of those conditions were met in Northern Ireland.
- The Polity IV scale measures regimes in terms of:
- the competitiveness of executive recruitment;
- the openness of executive recruitment;
- the constraints that exist on the executive;
- the regulation of political participation;
- the competitiveness of political participation.
In Northern Ireland in the 1960s, multiple parties competed in elections for the executive (both in local and national elections), anyone could (with minor nomination requirements) become a candidate with a prospect (albeit slim, though this is the case in most (all?) democracies) of becoming part of the executive, the executive was limited (in the sense that it was subject to the rule of law and could be voted out), elections were regulated and subject to the rule of law, and parties competed for votes. So, the criteria for democracy are broadly met by this definition too.
However, as always, things are not that simple. We will also cover the concept of electoral integrity, which is essentially about the fairness of elections. We can easily argue that gerrymandering in Northern Ireland was unfair and, indeed, that it impacted on the ability of the population to meaningfully choose the overall winning party in elections. This was because boundaries were drawn in a way that grouped large sections of the electorate together in some districts (restricting the number of representatives that they could elect) whilst ensuring majorities of smaller sections of the population in other districts (thus increasing the number of representatives that they could elect). Given that the case of Northern Ireland conforms to the above two definitions of democracy but clearly had significant problems of implementation, I would probably describe it as a flawed democracy at the time.
The above conclusion is however, at least in part, a judgement on my part. You could make the case that the gerrymandering was so severe that it meant Northern Ireland was not, in practice, a democracy (i.e. a majority had the value of their votes suppressed in some places whilst a minority in those same areas had the value of their votes exaggerated). Of course, if we go down this route then we need to think about where we would set the boundary of our definition. In other words, how flawed does the implementation of democracy have to be before we conclude that it is, in fact, not a democracy? Would we say that the UK, with a single member district plurality (i.e. non-proportional) electoral system, in which multiple governments have been elected against the expressed wishes of a majority of voters, is not a democracy? Ultimately, this is not very different from the judgement that went into saying that countries that score -6 or below on the Polity IV scale are dictatorships, those that score 6 or more are democracies, and those that score between 5 and -5 are anocracies. In other words, there is always an element of judgement in categorisation, and we should be ready to explain why we reach the conclusions that we do.