Judt on the British Quagmire in Ulster

From Postwar: A History of Europe Since 1945, by Tony Judt (Penguin, 2005), pp. 466-469:

The Provisional IRA was much like [Basque] ETA in its methods, and in some of its proclaimed objectives. Just as ETA sought to make the Basque provinces ungovernable and thereby secure their exit from Spain, so the Irish Republican Army aimed at making Northern Ireland ungovernable, expelling the British, and uniting the six northern provinces with the rest of Ireland. But there were significant differences. Since an independent Ireland already existed, there was—at least in principle—a practicable national goal for the rebels to hold out to their supporters. On the other hand, there was more than one Northern Irish community, and the distinctions between them went back a very long way.

Like French Algeria, Northern Ireland—Ulster—was both a colonial remnant and an integral part of the metropolitan nation itself. When London finally relinquished Ireland to the Irish, in 1922, the UK retained the six northern counties of the island on the reasonable enough grounds that the overwhelmingly Protestant majority there was intensely loyal to Britain and had no desire to be governed from Dublin—and incorporated into a semi-theocratic republic dominated by the Catholic episcopate. Whatever they said in public, the political leaders of the new Republic were themselves not altogether unhappy to forgo the presence of a compact and sizeable community of angrily recalcitrant Protestants. But for a minority of Irish nationalists this abandonment constituted a betrayal, and under the banner of the IRA they continued to demand the unification—by force if need be—of the entire island.

This situation remained largely unchanged for four decades. By the 1960s the official stance in Dublin somewhat resembled that of Bonn: acknowledging the desirability of national re-unification but quietly content to see the matter postponed sine die. Successive British governments, meanwhile, had long chosen to ignore so far as possible the uneasy situation they had inherited in Ulster, where the Protestant majority dominated local Catholics through gerrymandered constituencies, political clientelism, sectarian pressure on employers, and a monopoly of jobs in crucial occupations: civil service, judiciary and above all the police.

If politicians on the British mainland preferred not to know about these matters, it was because the Conservative Party depended on its ‘Unionist’ wing (dating from the nineteenth-century campaign to maintain Ireland united with Britain) for a crucial block of parliamentary seats; it was thus committed to the status quo, with Ulster maintained as an integral part of the United Kingdom. The Labour Party was no less closely identified with the powerful labour unions in Belfast's shipbuilding and allied industries, where Protestant workers had long received preferential treatment.

As this last observation suggests, the divisions in Northern Ireland were unusually complicated. The religious divide between Protestants and Catholics was real and corresponded to a communal divide replicated at every stage of life: from birth to death, through education, housing, marriage, employment and recreation. And it was ancient—references to seventeenth- and eighteenth-century quarrels and victories might appear to outsiders absurdly ritualistic, but the history behind them was real. But the Catholic/Protestant divide was never a class distinction in the conventional sense, despite the IRA’s efforts to import Marxist categories into its rhetoric. There were workers and priests—and to a lesser extent landowners, businessmen and professionals—on both sides.

Moreover, many Ulster Catholics felt no urgent desire to be ruled from Dublin. In the 1960s Ireland was still a poor and backward country and the standard of living in the North, while below that of most of the rest of the UK, was still considerably above the Irish average. Even for Catholics, Ulster was a better economic bet. Protestants, meanwhile, identified very strongly with the UK. This sentiment was by no means reciprocated by the rest of Britain, which thought little of Northern Ireland (when it thought of it at all). The old industries of Ulster, like those of the rest of the UK, were in decline by the end of the 1960s, and it was already clear to planners in London that the overwhelmingly Protestant blue-collar workforce there had an uncertain future. But beyond this, it is fair to say that the British authorities had not given Ulster serious thought for many decades.

The IRA had declined to a marginal political sect, denouncing the Irish Republic as illegitimate because incomplete while reiterating its ‘revolutionary’ aspiration to forge a different Ireland, radical and united. The IRA’s wooly, anachronistic rhetoric had little appeal to a younger generation of recruits (including the seventeen-year-old, Belfast-born Gerry Adams, who joined in 1965) more interested in action than doctrine and who formed their own organization, the clandestine, ‘Provisional’ IRA. The ‘Provos’, recruited mainly from Derry and Belfast, emerged just in time to benefit from a wave of civil rights demonstrations across the North, demanding long overdue political and civil rights for Catholics from the Ulster government in Stormont Castle and encountering little but political intransigence and police batons for their efforts.

The ‘Troubles’ that were to take over Northern Irish—and to some extent British—public life for the next three decades were sparked by street battles in Derry following the traditional Apprentice Boys’ March in July 1969, aggressively commemorating the defeat of the Jacobite and Catholic cause 281 years before. Faced with growing public violence and demands from Catholic leaders for London to intervene, the UK government sent in the British Army and took over control of policing functions in the six counties. The army, recruited largely in mainland Britain, was decidedly less partisan and on the whole less brutal than the local police. It is thus ironic that its presence provided the newly formed Provisional IRA with its core demand: that the British authorities and their troops should leave Ulster, as a first stage towards re-uniting the island under Irish rule.

The British did not leave. It is not clear how they could have left. Various efforts through the 1970s to build inter-community confidence and allow the province to run its own affairs fell foul of suspicion and intransigence on both sides. Catholics, even if they had no liking for their own armed extremists, had good precedent for mistrusting promises of power-sharing and civic equality emanating from the Ulster Protestant leadership. The latter, always reluctant to make real concessions to the Catholic minority, were now seriously fearful of the intransigent gunmen of the Provisionals. Without the British military presence the province would have descended still further into open civil war.

The British government was thus trapped. At first London was sympathetic to Catholic pressure for reforms; but following the killing of a British soldier in February 1971 the government introduced internment without trial and the situation deteriorated rapidly. In January 1972, on ‘Bloody Sunday’, British paratroopers killed thirteen civilians in the streets of Derry. In that same year 146 members of the security forces and 321 civilians were killed in Ulster, and nearly five thousand people injured. Buoyed up by a new generation of martyrs and the obstinacy of its opponents, the Provisional IRA mounted what was to become a thirty-year campaign, in the course of which it bombed, shot and maimed soldiers and civilians in Ulster and across mainland Britain. It made at least one attempt to assassinate the British Prime Minister. Even if the British authorities had wanted to walk away

from Ulster (as many mainland voters might have wished), they could not. As a referendum of March 1973 showed and later polls confirmed, an overwhelming majority of the people of Ulster wished to maintain their ties to Britain.

The IRA campaign did not unite Ireland. It did not remove the British from Ulster. Nor did it destabilize British politics, though the assassination of politicians and public figures (notably Lord Mountbatten, former Viceroy of India and godfather of the Prince of Wales) genuinely shocked public opinion on both sides of the Irish Sea. But the Irish ‘Troubles’ further darkened an already gloomy decade in British public life and contributed to the ‘ungovernability’ thesis being touted at the time, as well as to the end of the carefree optimism of the 1960s. By the time the Provisional IRA—and the Protestant paramilitary groups that had emerged in its wake—finally came to the negotiating table, to secure constitutional arrangements that the British government might have been pleased to concede almost from the outset, 1,800 people had been killed and one Ulster resident in five had a family member killed or wounded in the fighting.