Who can propose a law, the five stages in the Dáil and Seanad, how long the Seanad can hold things up, why some Acts sit unused for months, and how many new laws are passed each year.
Most new legal rules made in Ireland each year are not Acts voted on by TDs. They are statutory instruments: detailed rules that Ministers make using powers an Act gives them. In 2024 the Oireachtas passed 48 Acts, but statutory instruments were numbered up to 760.
Only the Oireachtas can make laws
The Oireachtas is the national parliament. It is made up of the President, the Dáil and the Seanad.
“The sole and exclusive power of making laws for the State is hereby vested in the Oireachtas.”— Bunreacht na hÉireann, Article 15.2.1
A proposed law is called a Bill. Once it passes both Houses and the President signs it, it becomes an Act.
Who can propose a Bill
Government Bills are brought in by Ministers. Each year the Government passes a Finance Bill and a Social Welfare Bill to put the Budget into effect.
Opposition TDs and Senators can bring in Private Members' Bills. Senators cannot start a Money Bill, which deals only with taxes and spending, or a Bill to change the Constitution. Those must start in the Dáil.
Before a Government Bill is published, the Government may send an outline, called a General Scheme, to an Oireachtas committee. This early review is called pre-legislative scrutiny. For example, plans to change the triple lock on sending troops overseas went for this review in March 2025.
The five stages in each House
A Bill goes through the same five stages in the Dáil and then again in the Seanad. A Bill started by a TD goes to the Dáil first, and one started by a Senator goes to the Seanad first.
| Stage | What happens |
|---|---|
| First Stage | The Bill is introduced and added to the Order Paper, the House's agenda |
| Second Stage | Members debate the main ideas and decide if it goes further |
| Committee Stage | Members go through it section by section and can change the wording |
| Report Stage | Changes from Committee Stage are considered; last chance to amend |
| Fifth Stage | The House passes the Bill; no more changes allowed |
In the Dáil, Committee Stage usually happens in a select committee, a small group of TDs. There is no limit on how often a member can speak on a change. You can read more in our guide to how Dáil committees work.
Report Stage is tighter. Members can speak only twice on each amendment, and the second time for no more than two minutes.
The Seanad can delay a Bill, not block it
After the Dáil passes a Bill, it goes to the Seanad. Senators can suggest changes, and the Dáil then decides whether to accept them.
For most Bills, the Seanad has 90 days. If it rejects the Bill or does not pass it in time, the Dáil can pass a resolution within the next 180 days. The Bill is then treated as passed by both Houses.
the Seanad has to return a Money Bill to the Dáil; it can only make recommendations
Source: irishstatutebook.ieThe Seanad can stop a law the Dáil has passed.
The Seanad can delay a Bill but cannot block it. For most Bills it has 90 days, and the Dáil can then deem the Bill passed by both Houses.
The President signs it into law
Once both Houses pass a Bill, it goes to the President. The President normally signs on the 5th, 6th or 7th day after receiving it.
Before signing, the President can send the Bill to the Supreme Court to check it against the Constitution. If the Court finds a problem, the President cannot sign. See our guide to what the President can and cannot do.
Signed is not always in force
Under the Constitution, a Bill becomes law on the day it is signed. But many Acts say that some or all of their parts only start on a date a Minister chooses.
The Minister usually does this with a commencement order, a type of statutory instrument. For example, the Act setting up the Future Ireland Fund was enacted on 18 June 2024. The Minister for Finance signed its commencement order on 30 July 2024.
- Some Acts take effect as soon as they are signed
- Some start on a date written into the Act
- Some start in parts, through one or more commencement orders
- Statutory instruments also fill in details such as rates, forms and dates
How many Acts are passed each year
Between 2018 and 2024, the Oireachtas passed between 32 and 53 Acts a year. The busiest year was 2019, with 53 Acts.
Statutory instruments far outnumber Acts. In 2024 the highest-numbered statutory instrument was number 760, a set of data protection rules.
What this means for you
- A Bill in the news is not law until both Houses pass it and the President signs it.
- A signed Act may not apply yet. Check whether a commencement order has been made.
- You can track any Bill, stage by stage, on oireachtas.ie.
- You can read Acts and statutory instruments for free on irishstatutebook.ie.
- If you want a law changed, your TD or a Senator can raise it or bring in a Private Members' Bill.
Finance Bill and Social Welfare Bill to put Budget 2027 into law go through the Oireachtas
32 Government Bills on the priority publication list for this session
- Houses of the Oireachtas: How laws are made
- Bunreacht na hÉireann (Irish Statute Book)
- Office of the President: Constitutional role
- Irish Statute Book: Acts of 2024
- Irish Statute Book: Statutory instruments of 2024
- Department of the Taoiseach: Government Legislation Programme Autumn 2026
- Department of Finance: Minister commences long-term funds, 1 August 2024
- Department of Defence: Government approval to reform the Triple Lock
