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Ireland

Review and Amendment of Lobbying Law (IE0051)

Overview

At-a-Glance

Action Plan: Ireland Action Plan 2021-2023

Action Plan Cycle: 2021

Status:

Institutions

Lead Institution: Department of Public Expenditure & Reform (DPER).

Support Institution(s): Standards in Public Office Commission (SIPO) Attorney General (AG); Oireachtas (legislature) and its Committees

Policy Areas

Anti Corruption and Integrity, Legislation, Lobbying, Participation in Lawmaking, Regulation, Sustainable Development Goals

IRM Review

IRM Report: Ireland Results Report 2021-2023, Ireland Action Plan Review 2021-2023

Early Results: No IRM Data

Design i

Verifiable: Yes

Relevant to OGP Values: Yes

Ambition (see definition): High

Implementation i

Completion:

Description

Objective To look at how the existing legislative foundation could be enhanced most effectively and efficiently; strengthening weakness which have been identified.

Status Quo The Regulation of Lobbying Act 2015 (the Act) sets the framework to provide transparency to the public on "who is lobbying whom24 about what". By regulating lobbying activity through registration and reporting requirements, the aim is to strengthen public confidence in politics and in the business of government, to increase the accountability of decision makers and to subject public policy making, and those who seek to influence it, to greater openness, transparency and to the potential for appropriate independent scrutiny. In light of a specific event25, the Taoiseach (Irish Prime Minister) announced on 29th September 2020 that section 22 of the Regulation of Lobbying Act 2015 dealing with the cooling-off period for certain elected and public officials would be reviewed. Also, the opposition introduced two Private Members Bills:  Regulation of Lobbying (Post-Term Employment as Lobbyist) Bill 2020, introduced in the Dáil 4th November 2020 by the Labour Party.  Regulation of Lobbying (Amendment) Bill 2020, introduced in the Oireachtas (legislature) on the 19th November 2020 by the Sinn Féin Party. Second Stage of the Bill took place under Sinn Fein Private Members’ time on 24/25 November 2020. An amendment was agreed on the 24th November 2020 that the Bill would be deemed to be read a second time in 9 months’ time (24th August 2021) to allow consideration of the Standards in Public Office (SIPO) recommendations for the wider reform of lobbying, including the provisions of both Private Members Bills. In light of these events, the Minister for Public Expenditure and Reform requested a thorough and comprehensive review of the legislation. Note that the second statutory review of the operation of the Lobbying Act was published in January 2020. Under section 2 of the Lobbying Act, there is a requirement that the operation of the Act be reviewed every 3 years.

Ambition To undertake a wide review of how the existing legislative foundation could be enhanced most effectively and efficiently; strengthening weakness which have been identified.

Commitment description

What is the public problem that the commitment will address? To address the public concerns about the operation of the lobbying Act in relation to the operation of the cooling-off period for certain elected and public officials (section 22 of the Regulation of Lobbying Act 2015).

What is the commitment? To undertake a wide ranging review of the Regulation of Lobbying Act 2015 to assess the policy, legal and practical implications of a specific event and to undertake a wide review of how the existing legislative foundation could be further enhanced in terms of effectiveness, efficiency and to address any weaknesses that the process surfaces.

How will the commitment contribute to solving the public problem? The wide ranging review will encompass the operation of the cooling-off period for certain elected and public officials (section 22 of the Regulation of Lobbying Act 2015).

Describe what the intended impact of successful implementation will be? The wide ranging review will bring forward recommendations, which will then be brought to Government to draft the necessary amendments to the Regulation of Lobbying Act 2015 to commence the legislative process

Which Open Government value(s) does your commitment relate too? Value: Public Accountability and Transparency Theme: Anti-corruption

Why is (and describe how) this commitment is relevant to the Open Government value(s)? Communication, dialogue and engagement are central to a well-functioning democracy. Interest groups, representative bodies, industry and civil society organisations, NGOs and third party professional lobbyists all provide crucial input and feedback to the political and public administration systems. It is important that this activity is transparent and open to public scrutiny as part of the proper checks and balances which mitigate any attempt to seek to exert undue or improper influence on the conduct of policy formulation, development and decision making.

What United Nations Sustainable Development Goal26 does this commitment relate too27? . Goal 16: Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels Sub-goal 16.6: Develop effective, accountable and transparent institutions at all levels

Additional information (if known)

Commitment milestones Suggested next steps and milestones to guide implementation (Don’t forget to capture and detail any public facing element desired; e.g. stakeholder engagement) Who / What organisation (if known) When (if known) Additional info. Wide ranging review to involve:  An assessment of the current operation of key provisions of the Act;  An overview of lobbying regulation in other jurisdictions;  Consideration of options to address concerns raised and the policy, legal and practical implications of different responses;  and be informed by the concerns and points raised by Deputies in the House and at Committee hearings.DPER DPER Q1 – Q2 2021 Q2 2021 Q2 2021 Key stakeholder consultation, including:  Consultation with, and consideration of, the views of the Standards in Public Office Commission (SIPO);  Consultations with the Office of the Attorney General (AG). DPER / SIPO / AG Ongoing throughout the process  Complete a draft review of the Regulation of Lobbying Act and distil evidence based recommendations. DPER / Cabinet Mid Q2 2021  Seek Government approval (Memorandum to Government) to draft the heads of a bill to amend the Regulation of Lobbying Act in line with the review recommendations. (Circulate a draft memorandum in advance to obtain Departmental observations before formally submitting to Government) DPER / Cabinet / AG Mid Q2 2021  Draft Heads of a Bill (also called a General Scheme) in accordance with Government approval DPER / AG Q4 2021  Seek Government approval to the General Scheme and to priority drafting by the AGs of the Regulation of Lobbying (Amendment) Bill DPER/ Cabinet Early Q1 2022  Send General Scheme to the Oireachtas Committee on Finance, Public Expenditure and Reform and Taoiseach for prelegislative scrutiny DPER/ Oireachtas (legislature) Q1 2022  Request Attorney General’s Office to commence priority drafting of the Regulation of Lobbying (Amendment) Bill on the basis of the General Scheme DPER/ AG Q1 2022  Seek Government approval to the final text of the Regulation of Lobbying (Amendment) Bill DPER/ Cabinet Q3 2022  Introduction of the Regulation of Lobbying (Amendment) Bill to the Oireachtas and commencement of process of the Bill through all stages in the Oireachtas prior to enactment DPER/ Oireachtas (legislature) Q3 2022

IRM Midterm Status Summary

Action Plan Review


Commitment 3. Review of the Operation of the Regulation of Lobbying Act 2015

● Verifiable: Yes

● Does it have an open government lens? Yes

● Potential for results: Substantial

For a complete description of the commitment, see Commitment 3 in Ireland’s 2021–2023 action plan.

Context and objectives:

This commitment plans to amend the Regulation of Lobbying Act, passed in 2015 through Ireland’s first action plan. The Act requires individuals and organizations to disclose any lobbying activity on a public register. This includes meetings with high-level public officials, as well as efforts to influence policy through letters, emails, or tweets. [1] It also stipulates a cooling-off period, during which public officials are restricted from engaging in lobbying for a year after they leave office. [2] Under the commitment, the amendment would close certain limitations in the Regulation of Lobbying Act, including on the enforceability of the cooling-off period.

The amendment draws on recommendations of the third review of the Act. It should be noted that the commitment’s milestones related to the review were completed prior to the action plan. In September 2020, the Taoiseach (prime minister) announced a review of Section 22 of the act, regarding officials’ cooling-off period. The review was widened in response to two Private Member Bills in the Dáil (lower house of Irish legislature) and was finished by early Summer 2021. [3] According to the Department of Public Expenditure and Reform Government Reform Unit, no further formal consultations with civil society and the public are planned under this commitment. [4]

The prior two statutory reviews of the Act did not produce amendments. The second review, published in 2020, received 27 submissions from academics, business and farming representatives, interest groups, government departments, and public affairs organisations. [5] The Public Relations Institute of Ireland and the Standards in Public Office Commission expressed disappointment that the second review did not produce substantive changes. [6]

Potential for results: Substantial

The Regulation of Lobbying Act is considered a gold standard of lobbying transparency legislation, [7] but has some room for improvement. The cooling-off period is not denoted as a contravention, which limits enforceability. Although there is no evidence of widespread compliance issues, there have been some recent controversial cases of public officials moving to public relations firms or businesses (such as movement of the former Minister of State in the Department of Finance to a financial services group). [8] The 2020 National Integrity Index found that in a sample of 30 companies, 26 had not published rules or policies on the movement of staff from the public sector to companies or vice versa. [9] Beyond the cooling-off period, academics note that the Act doesn’t require registration of preparatory work or giving advice, which allows commercial and in-house lobbyists to avoid registering. It also does not require any disclosure of financial information on the register, for example the amount of money paid to lobbyists. [10] Additionally, the definition of lobbying excludes companies with fewer than ten employees, even if lobbying for high-value contracts. [11]

The most potentially impactful element of this proposed amendment would introduce a contravention covering failure to comply with the cooling-off period for elected and public officials, addressing the gap in enforceability. [12] The amendment also addresses a gap that allows groups of corporations to form interest groups that are not considered to be lobbying as long as they do not technically have employees.

Other features of the amendment offer technical changes to the Act. These include extending the period between statutory reviews from three to five years; extending the Act to include non-remunerated officeholders; exempting registration of communications made by political parties to their members who are designated public officials; improving operation of the lobbying register; and introducing a contravention on actions intended to avoid registration or submission of lobbying returns. [13]

Civil society stakeholders see this commitment as an opportunity to increase lobbying transparency. They feel this could improve the demarcation between business interests and public interests. It could also build trust in Ireland’s democracy, given that lobbying is an area where the wider public perceives a higher level of corruption. [14] Some suggest that stronger accountability could be introduced if, like other aspects of the Act, breaching the cooling-off period were to be a criminal offence (rather than the planned contravention). [15]

Opportunities, challenges, and recommendations during implementation

Lobbying transparency has been one of the most ambitious policy areas for other OGP members in Europe. [16] Including this initiative within the Programme for Government supports momentum toward passing the planned amendment. [17] However, if the amendment does not pass before December 2022, it could be slowed by a shift in the party holding office. [18] The IRM offers the following recommendations for this commitment’s implementation:

● Provide clear, regular updates on each legislative stage to ensure transparency and allow the public to engage as the amendment progresses. This could include raising awareness about the amendment and opportunities for engagement.

● Expand the Regulation of Lobbying Act definition beyond companies with more than ten employees to focus on types of activity or the scale of contract. This could more fully capture the lobbying landscape in Ireland to include individual consultants.

● Consult the experiences of reformers in Latvia, [19] Chile, [20] and Madrid, Spain [21] for lessons learned on leveraging the open government process to support lobbying reform. It may also be beneficial to consult the International Standards for Lobbying Regulation [22] and the Transparency International Recommendations on Lobbying for OGP Action Plans [23] for guidance on developing effective lobbying regulation.

● Encourage researchers to use lobbying data and report irregularities. This can contribute to verifying the accuracy of the data and to monitoring compliance with the law.

[1] Harry Cooper, “Ireland’s tough lobbying rules spark cries for similar laws elsewhere” (Politico, 9 Aug. 2017), https://www.politico.eu/article/ireland-lobbying-clampdown-model-for-europe/.
[3] Joyce Nolan (Department of Public Expenditure and Reform Government Reform Unit), correspondence with the IRM, 11 Mar. 2022.
[4] Nolan, interview with the IRM, 14 Mar. 2022.
[5] Department of Public Expenditure and Reform, “Second Statutory Review of the Regulation of Lobbying Act 2015” (Gov.ie, 25 Feb. 2020), https://www.gov.ie/en/publication/7ef279-second-statutory-review-of-the-regulation-of-lobbying-act-2015/.
[6] Public Relations Institute of Ireland, “Disappointment At Outcome Of Second Review Of Lobbying Act: No Change” (accessed 4 Feb. 2022), https://www.prii.ie/news/2020/disappointment-at-outcome-of-second-review-of-lobbying-act-no-change.html.
[7] Harry Cooper, “Ireland’s tough lobbying rules spark cries for similar laws elsewhere.”
[8] Martin Banks, “Brian Hayes under fire for taking ‘revolving door’ to private sector” (The Parliament, 8 Jan. 2019), https://www.theparliamentmagazine.eu/news/article/brian-hayes-under-fire-for-taking-revolving-door-to-private-sector.
[9] Roland Gjoni, National Integrity Index 2020 (Transparency International Ireland, 2021), https://www.transparency.ie/resources/national-integrity-index/private-sector-index/report-2020.
[10] Gary Murphy, “Lobbying regulation in Ireland: Fool’s errand or finest hour?” Administration 65 no. 2 (2017), 138–141, https://sciendo.com/pdf/10.1515/admin-2017-0018.
[11] Catherine Lawlor (Transparency International Ireland), interview by the IRM, 14 Mar. 2022.
[12] Ibid.
[13] Nolan, correspondence.
[14] Johnny Sheehan (the Wheel), interview by the IRM, 23 Mar. 2022; Antoin O’Lachtnain (Open Government Association of Ireland and Digital Rights Ireland), interview by the IRM, 4 Mar. 2022.
[15] Lawlor, interview.
[16] Sarah Dickson, “Common Challenges in Lobbying Transparency: Lessons from Europe” (OGP, 8 Jun. 2021), https://www.opengovpartnership.org/stories/common-challenges-in-lobbying-transparency-lessons-from-europe/.
[17] O’Lachtnain, interview; Philip McGrath (Department of Public Expenditure and Reform), interview by the IRM, 7 Mar. 2022.
[18] Sheehan, interview.
[19] OGP, “Latvia: Transparency in Lobbying (LV0042)” (OGP, 2019), https://www.opengovpartnership.org/members/latvia/commitments/LV0042/.
[20] Jorge Sahd and Cristian Valenzuela, Lobby Law in Chile, Democratizing Access to Public Authorities (OGP, Dec. 2016), https://www.opengovpartnership.org/wp-content/uploads/2001/01/report_Lobby-law-in-Chile.pdf.
[21] OGP, “A Window Into the Previously Murky World of Lobbying” (OpenStories, 21 Oct. 2021), https://www.ogpstories.org/a-window-into-the-previously-murky-world-of-lobbying/.
[22] Open Knowledge Foundation et al., “International Standards for Lobbying Regulation” (accessed 11 Apr. 2022), http://lobbyingtransparency.net/standards/.
[23] Lucas Amin and José María Marín, Recommendations on Lobbying for OGP Action Plans (Transparency International, 2018), https://images.transparencycdn.org/images/Rec-on-Lobbying-for-OGP-action-plans-FINAL.pdf.

IRM End of Term Status Summary

Results Report


Commitment 3. Review of the operation of the Regulation of Lobbying Act 2015

  • Verifiable: Yes
  • Does it have an open government lens? Yes
  • Potential for results: Substantial
  • Completion: Substantial
  • Early results: Moderate Results
  • Implementing Agency: Department of Public Expenditure, NDP Delivery and Reform

    Context and objectives

    This commitment intended to amend the Regulation of Lobbying Act, passed in 2015 through Ireland’s first action plan. The Act provides for an online register of lobbying to allow people to see who is communicating with designated public officials on specific policies, legislative matters, or prospective decisions. The Act requires individuals and organisations to disclose any lobbying activity on this public register. [7] This includes meetings with high-level public officials and efforts to influence policy through letters, emails, or tweets. [8] It also stipulates a ‘cooling-off period,’ during which public officials are restricted from lobbying for a year after they leave office. [9] There was no evidence of widespread compliance issues with the Act, but there were controversial cases of public officials moving to public relations firms or businesses, [10] and the wider public perceives lobbying as an area more susceptible to corruption. [11]

    Early Results: Moderate

    Implementation of the commitment was completed with the passing of an amendment to the Regulation of Lobbying Act that strengthens legal support for lobbying transparency. Key changes to lobbying practices are scheduled to take effect in 2024. Although Ireland’s Regulation of Lobbying Act is already considered a gold standard of lobbying transparency law, [12] the amendment made moderate improvements.

    The amendment enables stronger government accountability by improving the demarcation between business and public interests. Previously, there was a gap in the enforceability of the 12-month post-employment cooling-off period, as the Act did not denote failure to comply as a contravention. The amendment addresses this issue by including an anti-avoidance clause and enabling the Standards in Public Office Commission (SIPO) to impose a fine of up to €25,000 and/or a prohibition from lobbying for up to 2 years for people found non-compliant with the cooling-off period. The amendment also addresses an issue noted by Transparency International Ireland regarding the exclusion of companies with fewer than ten employees even if they were actively lobbying for high-value contracts. [13] Previously, this allowed groups of corporations to form interest groups that were not considered to be lobbying as they did not technically have employees. The amendment extends the definition of ‘lobbying’ to ensure that all representatives of businesses and coalition of business interests, irrespective of the number of employees, fall within the scope of the Lobbying Act. In addition, it made certain technical changes to the Act to improve the service of the Lobbying Register.

    The Department of Public Expenditure, NDP Delivery and Reform (DPENDR) expects that by covering a broader range of individuals and entities, the amended lobbying legislation will reduce the incidence of corruption. They also anticipate that the amendment will decrease the likelihood of individuals transitioning from lobbying roles to government positions. [14] A civil society representative from Think Tank for Action on Social Change (TASC) adds that the amendment will restrict businesses from trying to evade lobbying laws and foster increased trust in the government, which has eroded due to cases of public servants transitioning into lobbying careers. [15]

    This amendment was developed based on recommendations from the third review of the Regulation of Lobbying Act, which was completed before the action plan commenced. In September 2020, the Taoiseach (Prime Minister of Ireland) announced a review of Section 22 of the Act, regarding officials’ cooling-off period. The review was widened in response to two Private Member Bills in the Dáil Éireann (lower house of Irish legislature) and was completed by early Summer 2021. [16] The DPENDR Minister published the general scheme regulating the Lobbying Amendment Bill in February 2022, [17] followed by the amendment in September 2022. [18] The amendment was passed by the Dáil Éireann in March 2023 and by the Seanad Éireann (upper house of the Irish legislature) in May 2023. On 22 June 22 2023, the President of Ireland passed the amendment into law. [19]

    Over the course of this process, the government provided updates to the public through press releases and published relevant documents such as the General Scheme, [20] amendments made to the Bill at different stages, and minutes of the debates at the Houses of Oireachtas. [21] However, there is no evidence that the government sought public consultation on the amendment’s content or to create awareness about the amendment and opportunities for engagement.

    By the end of the action plan period, implementation of the law had not commenced. After the end of the action plan period, in November 2023, the DPENDR Minister signed the commencement order for the Act which adopted a two-phase approach. First, the provisions on updating the lobbying register came into force on 1 January 2024. The remaining provisions in the amendment, including those that relate to the cooling-off period, are scheduled to come into force on 1 June 2024. According to a press release from DPENDR, the delays in implementing these provisions were to afford SIPO time to update the lobbying register and associated guidance, develop processes to ensure efficient operation of the new sanctions, and make lobbyists and relevant public officials aware of the upcoming changes. [22]

    Overall, this commitment’s progress can be attributed to its positioning in the Programme for Government, which created a momentum towards passing the amendment. While the two prior statutory reviews of the Regulation of Lobbying Act did not produce amendments, a third review which was underway before the action plan implementation period was able to expedite results and maintain a sense of continuity and ownership for government stakeholders.

    Looking ahead

    The amendment to the Regulation of Lobbying Act strengthens Ireland’s lobbying laws and has the potential to improve transparency if implemented appropriately. The IRM recommends that as the government begins to implement the Act, it consults reformers in Chile [23] and Latvia [24] for lessons learned on leveraging the OGP process to support lobbying reform. As of August 2023, the DPENDR was progressing with a Programme for Government commitment to make further changes to the Act. One such change is to extend the lobbying register so that the lobbying of senior officials in bodies like the Central Bank of Ireland and Commission for Communications Regulation, which have significant policymaking functions, will be reported on the same basis as lobbying of local and central governments. [25] This is due to be delivered through a statutory instrument.

    The IRM also recommends that the government encourage researchers to use lobbying data and report irregularities to help verify data accuracy and monitor compliance with the law. Finally, concerning the cooling-off period, the government can closely monitor how the new sanctions regime affects the level of non-compliance. If need be, the government can also consider stronger accountability measures, such as making the breach of the cooling-off period a criminal offence

    [7] “Regulation of lobbying,” Standards in Public Office Commission, https://www.sipo.ie/regulation-of-lobbying .
    [8] Harry Cooper, “Ireland’s tough lobbying rules spark cries for similar laws elsewhere,” Politico, 9 August 2017, https://www.politico.eu/article/ireland-lobbying-clampdown-model-for-europe .
    [9] “Cooling-off period,” Standards in Public Office Commission, accessed 11 April 2022, https://www.lobbying.ie/help-resources/information-for-dpos/guidance-for-tds-senators-and-meps/cooling-off-period .
    [10] Martin Banks, “Brian Hayes under fire for taking ‘revolving door’ to private sector,” The Parliament, 8 January 2019, https://www.theparliamentmagazine.eu/news/article/brian-hayes-under-fire-for-taking-revolving-door-to-private-sector .
    [11] Johnny Sheehan (The Wheel), interview by IRM, 23 March 2022; Antóin Ó Lachtnáin (Open Government Association of Ireland), interview by IRM, 4 March 2022.
    [12] Cooper, “Ireland’s tough lobbying rules spark cries for similar laws elsewhere,” Politico.
    [13] Catherine Lawlor (Transparency International Ireland), interview by IRM, 14 March 2022.
    [14] Philip McGrath (Department of Public Expenditure, NDP Delivery and Reform), interview by IRM, 2 February 2024.
    [15] Shana Cohen (Think Tank for Action on Social Change), correspondence with IRM, 15 January 2024.
    [16] Joyce Nolan (Department of Public Expenditure, NDP Delivery and Reform), correspondence with IRM, 11 March 2022.
    [17] “Minister McGrath publishes general scheme to amend Ireland’s lobbying legislation,” Department of Public Expenditure, NDP Delivery and Reform, 16 February 2022, https://www.gov.ie/en/press-release/5b89e-minister-mcgrath-publishes-general-scheme-to-amend-irelands-lobbying-legislation .
    [18] “Minister McGrath published the Regulation of Lobbying (Amendment) Bill 2022,” Department of Public Expenditure, NDP Delivery and Reform, 26 September 2022, https://www.gov.ie/en/press-release/82d93-minister-mcgrath-obtains-government-approval-to-publish-the-regulation-of-lobbying-amendment-act-2022 .
    [19] “Regulation of Lobbying and Oireachtas (Allowances to Members) (Amendment) Bill 2023,” Houses of the Oireachtas, updated 22 June 2023, https://www.oireachtas.ie/en/bills/bill/2022/85 .
    [20] See General Scheme of the Regulation of Lobbying (Amendment) Bill 2022: https://www.gov.ie/pdf/?file=https://assets.gov.ie/216179/aa418105-3388-426b-925e-2c41b68eca5f.pdf#page=null .
    [21] “Amendments to the Regulation of Lobbying and Oireachtas,” Houses of the Oireachtas, updated 22 June 2023, https://www.oireachtas.ie/en/bills/bill/2022/85/?tab=amendments .
    [22] “Minister Donohoe announces commencement of new Act to strengthen Lobbying Regulation,” Department of Public Expenditure, NDP Delivery and Reform, updated 3 January 2024, https://www.gov.ie/en/press-release/525bd-minister donohoe-announces-commencement-of-new-act-to-strengthen-lobbying-regulation .
    [23] Jorge Sahd and Cristian Valenzuela, “Lobby Law in Chile: Democratizing access to public authorities,” Open Government Partnership, December 2016, https://www.opengovpartnership.org/wp-content/uploads/2001/01/report_Lobby-law-in-Chile.pdf .
    [24] “Latvia: Transparency in Lobbying (LV0042),” Open Government Partnership, 2019, https://www.opengovpartnership.org/members/latvia/commitments/LV0042.
    [25] “Open Government Partnership (OGP) 14th Round Table meeting minutes,” Department of Public Expenditure, NDP Delivery and Reform, 31 August 2023, https://www.gov.ie/pdf/?file=https://assets.gov.ie/274601/f4effeb1-acae-40e4-a147-69c51f0724f7.pdf#page=1 .

    Commitments

    Open Government Partnership