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Originally Posted by The Might
Still, it is pretty certain that out the inhabitants of Middle-earth, and by this term I am talking about the whole continent, and not only its north-western part, would be supporters of Sauron. It is stated in many places that many tribes of Men had been enslaved by him in the East, so the numbers of his followers, not only the Orcs, would be quite high.
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However, the point is in that these people were enslaved, so this was tyranny, not democracy. So there would have to be a Nazgul standing near the ballot box, checking for whom the Easterlings and Southrons vote.
...which brings me to, if I were an Easterling or a Southron, I'd probably form a Eastern/Southern Front Party, and we will vote for a leader from our own ranks.
Still, even though the numbers for the Orcs or even the Easterlings/Southrons are many, I think a) as hewhoarisesinmight said, they'd probably go one tribe against the other (where the Westmen would probably form a coalition with all the Elves&co.), b) even the Easterlings/Southrons are not homogenic, for example "Easterlings" subsumes simply all the nations from the east, which are quite many, as
TM said, and even from those we know, there were the Balchoth, wain-riders, men of Dorwinion (well, more or less...) - this of course fitted Sauron when he had many little ("little" in a relative sense of the word) tribes he could govern rather than an empire which would become independant both economically and militarily; but in the system of democracy, I think this wouldn't favor him at all.