Types of bills
On the course: CSPE strand 3 and Leaving Cert Politics and Society topic 2 both ask how a law is made. Learn the five stages, which Bills must start in the Dáil, and what the Seanad can delay.
A Government bill is introduced by a minister on behalf of the cabinet. A Private Member's Bill (PMB) is introduced by any TD or Senator who is not a minister — opposition bills often fall here. A Private Bill affects a specific organisation or individual rather than the general public.
Budget 2027 is due in the Dáil on 6 October 2026. The Finance Bill that follows it is a money bill: it changes tax, so it starts in the Dáil, and the Seanad cannot amend it. That is Article 21 of the Constitution, applied to a Bill this Dáil is about to take.How the budget works sets out the same path from Budget Day to the Finance Bill.
Money bills — those dealing primarily with taxation, spending, or borrowing — can only start in the Dáil under Article 21 of the Constitution and cannot be amended by the Seanad.
The five Dáil stages
| Stage | What happens |
|---|---|
| First Stage | The minister or TD formally introduces the bill by title only. No debate. |
| Second Stage | General debate on the principles of the bill. TDs speak for or against the broad purpose. |
| Committee Stage | Detailed line-by-line examination in a Dáil committee or the full House. Amendments are proposed and voted on. |
| Report Stage | Amendments made at Committee Stage are reviewed. Further amendments may be tabled. |
| Fifth Stage (Final Stage) | Final debate and vote on the Bill as a whole. If passed, it is sent to the Seanad. |
The Seanad's role
A Bill starts its second-House journey at Second Stage, so it normally has four stages left there. Senators can propose amendments, which are sent back to the Dáil for agreement. Under Article 23 the Seanad has 90 days to pass an ordinary Bill. If it rejects the Bill, fails to pass it or proposes amendments the Dáil will not accept, the Dáil may, within 180 days after that period ends, resolve that the Bill is deemed passed by both Houses. Money Bills follow a separate rule: the Seanad has 21 days to make recommendations and cannot amend the Bill.
In practice, the Seanad acts mainly as a revising chamber — catching drafting errors, improving clarity, and giving a second voice to minority concerns. A Government with a Dáil majority can ultimately override Senate opposition.
Presidential signature or referral
After both Houses pass the bill, it is sent to the President. Under Article 25 of the Constitution, the President has seven days to sign the bill into law. The President may also refer the bill to the Supreme Court to test its constitutionality (Article 26). If the Court upholds it, the President must sign; if struck down, the bill falls entirely.
The President can also convene the Council of State for advice before deciding. Once signed, the bill becomes an Act and is assigned a number in the statute book (e.g. Finance Act 2024, No. 12 of 2024).
Commencement: when does the law take effect?
Signing creates the Act, but it does not always come into force immediately. Many Acts give the relevant minister power to bring different sections into effect by Commencement Order — sometimes months or years later. Citizens Information and the legislation.gov.ie database show which sections are currently in force.