Background of The Citizens’ Assembly

The Dublin Citizens' Assembly followed in the tradition of Ireland’s previous citizens’ assemblies, including the Convention on the Constitution (2012–2014), the Citizens’ Assembly (2016–2018), and the Citizens' Assembly on Gender Equality (2020–2021). These earlier assemblies played an important role in shaping public discourse and legislation on major national issues.

The Dublin Assembly was distinctive in several ways. It was the first to focus exclusively on a regional governance issue, rather than a national policy topic. It was also the first to operate simultaneously with another assembly, reflecting the growing institutionalization of deliberative democratic practices in Ireland. Its establishment fulfilled a commitment in the Irish Government's 2020 Programme for Government to explore a directly-elected mayor for the Dublin region.

A Lord Mayor for Dublin

The proposal to establish a directly elected mayor for Dublin has been a contentious issue, reflecting deep-seated debates over governance, power distribution, and democratic accountability in Ireland's capital. A primary concern revolves around the potential shift of significant authority from national to local government. The envisioned mayoral role would encompass powers over housing, transport, economic development, and taxation. Critics argue that such a concentration of power in a single local office could disrupt the balance between national oversight and local autonomy, leading to governance challenges (Oireachtas, 2023). Within existing local government structures, there is resistance to the proposed changes. Some local councillors and officials fear that a directly elected mayor could overshadow or diminish their roles, leading to a concentration of power that might marginalize other elected representatives. The integration of a new executive role also raises questions about the reallocation of responsibilities and the potential for bureaucratic overlap or conflict between the mayor's office and existing administrative bodies (Oireachtas, 2023).

Additionally, the political implications of introducing a directly elected mayor have also fueled contention. There is apprehension that the role could become a platform for populist figures or individuals with controversial backgrounds, potentially leading to governance that prioritizes personal agendas over public interest (Wilson, 2025).

Structure of the Convention

The Assembly was established by resolutions of both houses of the Oireachtas in February 2022 and launched in April 2022. It consisted of 80 members: 67 randomly-selected residents of Dublin city and county, 12 elected councillors from the four Dublin local authorities, and an independent Chairperson, Jim Gavin, a former Dublin senior football manager.

Membership selection

A major innovation in the selection process was the internal administration of member recruitment by the Assembly Secretariat itself, following dissatisfaction with the practices of three private market research firms used in earlier assemblies. This new approach employed postal invitations to 14,000 randomly-chosen households across Dublin, with stratified random sampling used to select members who broadly mirrored Dublin’s demographics in terms of age, gender, geography, employment status, occupation, and language (The Citizens’ Assembly, 2022).

Eligibility was also broadened to include all adult residents, regardless of voter registration status, allowing greater inclusivity, particularly of non-Irish nationals living in Dublin.

The 12 councillors who participated in the Assembly were selected to represent the four Dublin local authorities and included members from a range of political parties as well as independents. The allocation of seats was proportionate to the relative strength of the parties or groups across the four Dublin local authorities. More details, such as party affiliation and locality, are available in the final report (pp. 18-19).

Governance

Chairperson

The Chairperson was responsible for running the Convention and engaging necessary support services for its effective administration. As the main moderator, the Chairperson was selected by the Prime Minister (Taoiseach) and was independent. They had direction and control over the staff of the secretariat and other resources available, subject to the wishes of the Convention. The Chairperson also made recommendations on the management of business as needed.

Secretary and Secretariat

The Secretary and Secretariat were responsible for handling the logistics of the assembly, ensuring the smooth operation of the Convention. The assembly's secretariat was drawn from the Prime Minister’s (Taoiseach) Department. The Secretary was a senior public servant.

Expert Advisory Panel

The Oireachtas resolution establishing the Assembly states that “an Expert Advisory Group will be established to assist the work of the Assembly in terms of preparing information and advice.”

The main roles of the Expert Advisory Group included:

1. Supporting the Chair and Secretariat in constructing a fair, balanced, and comprehensive work programme for the Assembly on each topic.
2. Providing background expert advice on the issues being discussed.
3. Advising on the criteria for selecting specialists/experts to appear before the Assembly.
4. Recommending names for the specialists/experts to appear before the Assembly, for ratification by the Steering Group.
5. Working with the Chair and Secretariat to select speakers from civil society and advocacy groups.

Its members were: Dr. Aodh Quinlivan (UCC), a specialist in local government and director of the Centre for Local and Regional Governance; Dr. Bríd Quinn (UL), an expert in public administration and EU governance; Prof. Deiric Ó Broin (DCU), whose work focuses on Irish politics and urban governance; and Prof. Jane Suiter (DCU), a leading researcher on deliberative democracy and public communication who has been involved in multiple Irish Citizens’ Assemblies.

Steering Group

Following the rules and procedures, a Steering Group was formed to ensure the efficient and effective operation of the Assembly, contributing to planning, coordinating logistical matters, and supporting the overall work programme. The group consisted of the Chairperson and a representative selection of Assembly Members, who were elected by their peers.

Structure of plenary session

Each plenary session of the Dublin Citizens’ Assembly followed a consistent format designed to maximise member engagement and learning. Sessions typically included three phases: expert and stakeholder presentations (inputs), interactive Q&A sessions, and facilitated roundtable discussions (deliberations). Each table had a professional facilitator and notetaker, and members of the Expert Advisory Group were present to answer questions. Across the five meetings, sessions were allocated approximately 40% to expert inputs, 20% to Q&A, 30% to group discussion, and 10% to plenary feedback. Notably, creative elements such as poetry and music were also incorporated into some sessions to stimulate engagement and connection among participants (The Citizens’ Assembly, 2022).

Proceedings

The Assembly met on five weekends between April and October 2022, each focused on specific themes:

1. Meeting 1 (April 30th-May 1st, 2022) - Dublin and Its System of Local Government: explored the history and current structure of Dublin's local government and considered the rationale for a directly elected mayor.
2. 
   
3. Meeting 2 (May 21st-22nd, 2022) - International Experience and Local Perspectives: included presentations from mayors and experts from Paris, Manchester, and Boston, as well as Dublin’s four local authority mayors.
4. 
   
5. Meeting 3 (June 25th-26th, 2022) - Devolution of Powers and Finances: addressed the challenges and opportunities related to devolving responsibilities to local government and examined the financial implications.
6. 
   
7. Meeting 4 (September 10th, 2022) - Towards a Framework: focused on refining proposed structures and frameworks in advance of final voting.
8. 
   
9. Meeting 5 (October 1st, 2022) - Balloting and Results: final ballot papers were discussed, amended, and voted on, culminating in the Assembly’s set of formal recommendations

More detailed descriptions of each session and its contributors is available in the final report (pp. 20-85).

Public submissions process

The public submission process for the Dublin Citizens’ Assembly invited input from citizens, elected officials, and interest groups on the question of a directly elected mayor and local government reform. A total of 56 valid submissions were received, the majority of which supported the creation of a mayor with substantive, executive powers. Contributors emphasised the value of devolving authority in areas such as housing, transport, policing, and climate action, and many referenced international models like Manchester or Paris. Submissions highlighted the need for strong accountability mechanisms, including oversight bodies and recall options. While most supported reform, some concerns were raised about adding bureaucratic complexity, unequal representation, and the potential for the role to become politicised or ceremonial.

The submissions were used to inform the Assembly’s deliberations and final recommendations.

Voting and ballots

On 1 October 2022, members voted by secret ballot on a series of structured questions divided across five ballot papers. These addressed:

1. Powers and responsibilities to be devolved (e.g., housing, transport, education)
2. The process and structure for electing a mayor
3. Terms of office, eligibility, and accountability mechanisms
4. The structure of a new Dublin City and County Assembly
5. The introduction of a local citizens' assembly and other structural supports

Votes reflected strong support for devolution of a wide range of powers within five years and for a directly elected mayor with revenue-raising and borrowing powers. Members favored a five-year mayoral term, a two-term limit, and the ability to recall a mayor via public petition or a super-majority of councillors.

More details can be found in the final report (pp. 78-85).

Recommendation and Government response

The Assembly made 18 formal recommendations:

1. Devolve powers to the Mayor and local government within 0–5 years in areas such as housing, homelessness, transport, economic development, climate action, healthcare, childcare, education, policing, and more.
2. Grant the Mayor power to introduce or change local taxes, retain a portion of Dublin-generated tax revenue, and borrow funds.
3. Establish the Mayor as a non-partisan figure acting in the interests of all Dubliners, supported by a core team, with powers to initiate and regulate devolved policy areas.
4. Set the Mayor’s term of office at five years.
5. Limit the Mayor to a maximum of two terms.
6. Allow the Mayor to be removed from office either by a super-majority vote of councillors or by a public recall petition.
7. Align candidate eligibility with local election criteria: aged 18+, ordinarily resident in Ireland, not required to be Irish citizens.
8. Require candidates to gather a sufficient number of statutory declarations of support to qualify for the ballot.
9. Limit the electorate for the mayoral election to those on the local election register in Dublin.
10. Retain the existing four Dublin local authorities.
11. Establish a Dublin City and County Assembly to advise, approve the Mayor’s budget, and scrutinize performance.
12. Create a Plenary Session open to all councillors across the four local authorities to support the Mayor’s work.
13. Make councillors full-time, with appropriate salary and secretarial support.
14. Introduce a Deputy Mayor to be elected on the same ticket as the Mayor.
15. Create a Mayoral Cabinet composed primarily of elected councillors, each with defined policy responsibilities.
16. Establish a permanent rolling local Citizens’ Assembly with membership rotated annually.
17. Require the Government to respond to the Assembly’s recommendations within six months and begin implementation within two years.
18. Hold a plebiscite of the Dublin electorate on whether to establish a directly elected Mayor, including details of the role and supporting structures.

Government response

In December 2023, the Joint Committee on Housing, Local Government and Heritage reviewed the Dublin Citizens’ Assembly’s recommendations advocating for a directly elected mayor with substantial powers. While acknowledging the potential benefits of such a role in enhancing leadership and accountability, the Committee emphasized the necessity of a clear legal framework and public understanding before proceeding. Consequently, it recommended that a plebiscite be held only after developing a detailed General Scheme of a Bill outlining the mayor's functions and powers. This approach aims to ensure that voters are fully informed about the implications of their decision (Burke, 2025).

However, as of May 2025, progress on implementing these recommendations has stalled. Reports indicate that the government has shelved plans for a plebiscite due to concerns that high-profile figures, such as Conor McGregor, might leverage the mayoral position for political gain. The fear is that the significant powers and budget associated with the role could be exploited by controversial candidates, leading to unpredictable outcomes. This apprehension has contributed to a lack of political will to advance the necessary legislation and public consultation processes (Scott, 2025).

Critics argue that delaying the plebiscite undermines democratic principles and the extensive work undertaken by the Citizens’ Assembly. They contend that decisions about Dublin's governance should be determined by its citizens through informed voting, rather than being postponed due to speculative concerns about potential candidates (Wilson, 2025).

See the full Joint Committee on Housing, Local Government and Heritage report, responding to the Dublin Assembly’s recommendations, here.