- Toward Consolidated Democracies
It is necessary to begin by saying a few words about three minimal conditions that must obtain before there can be any possibility of speaking of democratic consolidation. First, in a modern polity, free and authoritative elections cannot be held, winners cannot exercise the monopoly of legitimate force, and citizens cannot effectively have their rights protected by a rule of law unless a state exists. In some parts of the world, conflicts about the authority and domain of the polis and the identities and loyalties of the demos are so intense that no state exists. No state, no democracy.
Second, democracy cannot be thought of as consolidated until a democratic transition has been brought to completion. A necessary but by no means sufficient condition for the completion of a democratic transition is the holding of free and contested elections (on the basis of broadly inclusive voter eligibility) that meet the seven institutional requirements for elections in a polyarchy that Robert A. Dahl has set forth. 1 Such elections are not sufficient, however, to complete a democratic transition. In many cases (e.g., Chile as of 1996) in which free and contested elections have been held, the government resulting from elections like these lacks the de jure as well as de facto power to determine policy in many significant areas because the executive, [End Page 14] legislative, and judicial powers are still decisively constrained by an interlocking set of “reserve domains,” military “prerogatives,” or “authoritarian enclaves.” 2
Third, no regime should be called a democracy unless its rulers govern democratically. If freely elected executives (no matter what the magnitude of their majority) infringe the constitution, violate the rights of individuals and minorities, impinge upon the legitimate functions of the legislature, and thus fail to rule within the bounds of a state of law, their regimes are not democracies.
In sum, when we talk about the consolidation of democracy, we are not dealing with liberalized nondemocratic regimes, or with pseudo-democracies, or with hybrid democracies where some democratic institutions coexist with nondemocratic institutions outside the control of the democratic state. Only democracies can become consolidated democracies.
Let us now turn to examining how, and when, new political systems that meet the three minimal conditions of “stateness,” a completed democratic transition, and a government that rules democratically can be considered consolidated democracies. 3
In most cases after a democratic transition is completed, there are still many tasks that need to be accomplished, conditions that must be established, and attitudes and habits that must be cultivated before democracy can be regarded as consolidated. What, then, are the characteristics of a consolidated democracy? Many scholars, in advancing definitions of consolidated democracy, enumerate all the regime characteristics that would improve the overall quality of democracy. We favor, instead, a narrower definition of democratic consolidation, but one that nonetheless combines behavioral, attitudinal, and constitutional dimensions. Essentially, by a “consolidated democracy” we mean a political regime in which democracy as a complex system of institutions, rules, and patterned incentives and disincentives has become, in a phrase, “the only game in town.” 4
Behaviorally, democracy becomes the only game in town when no significant political group seriously attempts to overthrow the democratic regime or to promote domestic or international violence in order to secede from the state. When this situation obtains, the behavior of the newly elected government that has emerged from the democratic transition is no longer dominated by the problem of how to avoid democratic breakdown. (Exceptionally, the democratic process can be used to achieve secession, creating separate states that can be democracies.) Attitudinally, democracy becomes the only game in town when, even in the face of severe political and economic crises, the overwhelming majority of the people believe that any further political change must emerge from within the parameters of democratic procedures. Constitutionally, democracy becomes the only game in town when all of the [End Page 15] actors in the polity become habituated to the fact that political conflict within the state will be resolved according to established norms, and that violations of these norms are likely to be both ineffective and costly. In short...