Constitutional Referendum on the Number of Members of Dáil Éireann: Motion
Seanad Éireann — 2026-03-25
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Christopher O'Sullivan (FF), Cork South-West

We will say nothing about that. I am going by the different reviews since the 1980s, and 166 was the number of TDs in the 1980s. If you come to now, it has only jumped by a total of eight. That is in a good number of decades. It is not like we are making these monumental jumps in terms of numbers. It is not getting out of hand as yet but there is a conversation that needs to be had. I completely understand that. In fact, from the 2009 review to the 2013 review, it went down from 166 to 158 and went back up to 160. It is now at 174. That is a significant jump. I take the point but I do not think we are at the point yet where Leinster House is at capacity.
I get the comparison to the UK and the representation there but similarly - I heard the interview and the debate today - you could look at examples like Malta and Luxembourg for alternative representation numbers. However, the key argument coming across from what I am hearing is the need for extra local democracy. If you take the Danish model, for example, they have incredibly strong and robust local democracy, something that we had here with the town councils. I know it is a commitment and was certainly a strong argument in respect of the formation of Government that we would look at bringing back stronger local democracy, not to take away from the incredible work that local authorities do.
In regard to curbing the number of TDs, I come at this from a parochial argument, I guess. I am not making the case for an extra TD in Cork South-West, by the way, in case anyone thinks I am. Certainly, when you think of the size of the constituency and you talk about county boundaries, west Cork is kind of considered a county within a county. It is like the 33rd county. From Minane Bridge in the east, it takes about three and a half hours to drive to the Dursey Sound. There is a good representation. There are what I would consider three very good TDs working hard but that is a big geographical area, which is a consideration to take into account as well.
In regard to the points made about constituency offices and the work they do, you have got varying opinions on what a TD should be or what they should do. Are they a strict legislator who only focuses on legislation and policy or is there that representational aspect as well? I think it is a beautiful thing in this country that TDs are both, and Senators as well. You can have an incredibly busy constituency office dealing with day-to-day issues while also having a TD who is up here trying to introduce legislation. That is, however, a lot of hard work, as each and every Senator knows.
The citizens versus population argument I do not necessarily buy because while, yes, we have an increase in population, not all are citizens, and in many instances those who are not citizens are the most vulnerable in our society. They need representation and a voice up here. I get that there is debate about that but I think it is a sad state of affairs when that voice is not represented.
I want to come back to the point that An Coimisiún Toghcháin is conducting research into this and that should inform our way forward. I very much enjoyed the debate and, now, I am going to go into the current situation. The Constitution sets out clearly and distinctly the overarching requirements that apply to the Membership of Dáil Éireann. In this context, the following constitutional provisions are of particular importance. I refer to Article 16.2.2° of the Constitution, which provides that:
The number of members shall from time to time be fixed by law, but the total number of members of Dáil Éireann shall not be fixed at less than one member for each thirty thousand of the population, or at more than one member for each twenty thousand of the population.
Article 16.2.3° provides that:
The ratio between the number of members to be elected at any time for each constituency and the population of each constituency, as ascertained at the last preceding census, shall, so far as it is practicable, be the same throughout the country.
Article 16.2.4° provides that:
The Oireachtas shall revise the constituencies at least once in every twelve years, with due regard to changes in distribution of the population ...
In effect, these constitutional provisions require that Dáil constituencies be revised whenever population change, as ascertained in a census, leads to population-to-Member ratios in individual constituencies that are significantly out of line with the national average or the limits set in the Constitution of one Member to every 20,000 to 30,000 of population. To specify a set number of Members of Dáil Éireann along the lines of what is proposed in the motion, or to revise the Member-to-population ratio, would require a referendum to amend Article 16.2.2° of the Constitution.
Complementary to the provisions of Article 16.2, sections 56 to 59 of the Electoral Reform Act 2022 provides for Dáil and European Parliament constituency reviews to be carried out following each census of population and assigns responsibility to An Coimisiún Toghcháin. In effect, census-driven reviews commence following the publication of preliminary census results by the Central Statistics Office. The specific terms of reference for Dáil constituency reviews are set out in section 57(2) of the Act, which provides that an coimisiún will have regard to the following: the total number of Members of Dáil Éireann, subject to Article 16.2.2° of the Constitution, shall be not less than 171 and not more than 181; each constituency shall return three, four or five Members; the breaching of county boundaries shall be avoided as far as practicable; each constituency shall be composed of contiguous areas; there shall be regard to geographic considerations, including significant physical features and the extent of and the density of population in each constituency, which I wish was taken into account in west Cork; and subject to section 57, the commission shall endeavour to maintain continuity in relation to the arrangement of constituencies.
Senators may recall that in its first constituency review report 2023, which was published on 30 August 2023, an coimisiún signalled, inter alia , that it intended to carry out research into the issue of representation and the manner in which the number of Members was determined.
In undertaking this research, an coimisiún indicated that it would have regard to the following factors: the level of population increase over the last number of years - I note the total population as reported under census 2022 stood at 5.1 million; the increase in the number of Members in the 2023 constituency review from 160 to 174; representation remaining at the higher end of the constitutional range - following the 2023 constituency review each Dáil Member would, on average, represent 29,593 people; the potential future population growth and the potential future increase in the number of Members - Ireland’s population grew by the equivalent of an average of nearly 65,000 per annum between census 2016 and census 2022; and concerns expressed in many submissions, received during the 2023 constituency review, regarding the number of Members and the potential for more.
As at April 2025, the Central Statistics Office estimated Ireland’s population to be some 5,458,600 people. Following its inaugural constituency review, An Coimisiún Toghcháin signalled, in its research programme 2024-2026, which was published on 10 July 2024, that it intended to conduct three pieces of research to inform future constituency reviews. These are: representation and the manner in which the overall number of members is determined in the context of a rising population; constituency magnitude, including exploration of the advantages and disadvantages of permitting constituencies of larger than five seats; and a review of the constituency review methodology with a view to identifying potential future enhancements, including to the consultation process and whether there is scope for the increased use of technology. The proposed research from An Coimisiún Toghcháin is to be welcomed and will support evidence-based policy making in this matter that is so important to our democratic institutions and processes. It is vital that the outcome of any work carried out by An Coimisiún Toghcháin in this area is carefully considered.
I note that the Central Statistics Office has announced that Ireland's next census will be held on Sunday, 9 May 2027. As has been the case since the enactment of Part II of the Electoral Act 1997, which first introduced independent constituency commissions on a statutory basis, the results of census 2027 will trigger the next review of Dáil and European Parliament constituency boundaries. As I mentioned earlier, sections 56 to 59 of the Electoral Reform Act 2022 repealed and replaced Part II of the Electoral Act 1997 and assigned the review of Dáil and European Parliament constituencies to An Coimisiún Toghcháin. The legislation provides that an coimisiún can commence its work once the preliminary figures from the census are known and it must complete the review within three months of the final census results being published.
As Senators are all aware, under Article 46.2 of the Constitution any proposal to amend the Constitution must be introduced in Dáil Eireann as a constitutional amendment Bill and shall contain no proposal other than an amendment to the Constitution. When the Bill has been passed by both Houses of the Oireachtas, under section 10 of the Referendum Act 1994 it must be submitted to the people for approval at a referendum within 30 to 90 days of the passing of the Bill. Subject to a majority of the votes cast at the referendum being in favour of the proposal, the Bill is signed by the President and the Constitution is amended accordingly.
Similar to the position with regard to an amendment to Article 16.2.2 of the Constitution, in the event that a referendum in the matter was passed by the people, it would also be necessary to consider whether legislative change would be needed to sections 56 to 59 of the Electoral Reform Act 2022 and the procedural approach required in respect of future Dáil constituency reviews.
A Chathaoirligh, that sets out the position. We have a census coming in 2027. We have the research being conducted by An Coimisiún Toghcháin. I fully appreciated and enjoyed the debate in the Seanad today. It was very informative and very educational. I promise this will not sit on a shelf. We will analyse this and consider it carefully. I look forward to the response of the proposer.

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Record URI: https://data.oireachtas.ie/akn/ie/debateRecord/seanad/2026-03-25/debate/main
Retrieved: 2026-08-14T04:54:46+00:00
Sitting date: 2026-03-25