Mark Daly (Fianna Fail)
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The debate will follow the normal pattern, with the Minister of State having ten minutes, group spokespersons having eight minutes and all other Senators having four minutes, with the Minister of State to reply no later than 9.20 p.m.

Jerry Buttimer (Cork South-Central, Fine Gael)
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I am pleased to introduce the Dublin Airport (Passenger Capacity) Bill 2026 for the consideration of the House on behalf of the Minister for Transport, Deputy Darragh O'Brien. As Senators know, the main purpose of the Bill is to address the passenger cap planning condition at Dublin Airport. The importance of addressing the passenger cap and its effects on Dublin Airport is recognised in the programme for Government, which includes a clear commitment to work with stakeholders to achieve the objective of lifting the passenger cap at Dublin Airport as soon as possible.

As an island nation, we cannot ignore the strategic importance of Dublin Airport to our economy and the serious harm that would be caused to the economy of the State, our international connectivity or the international reputation of the State by failing to be in a position to facilitate not only future growth but the current level of passengers and cargo at our main international gateway.

The Minister, Deputy O’Brien, has advised me that he has met a wide variety of stakeholders over the past 18 months, including local residents, airlines, business groups and industry regulators in relation to the passenger cap planning condition.The general scheme of the Bill has been scrutinised by the Oireachtas Joint Committee on Transport, which received a considerable number of submissions from a wide range of stakeholders. I thank the committee members, and the Chairperson, Deputy Michael Murphy, for their work. The committee held several hearings to ensure that the views of all interested parties were heard. I and the Minister have taken on board the recommendations of the committee insofar as possible in finalising the text of the Bill. In drafting this legislative intervention, the Minister has taken the views of all of these stakeholders into account. I understand he also obtained extensive legal advice throughout the drafting of the legislation and is satisfied that the Bill will allow for the continued sustainable development of Dublin Airport while balancing the rights of local residents with the objectives of Ireland's national aviation policy and the needs of business and tourism.

Over 36 million passengers travelled through Dublin Airport in 2025. As such, there are a number of recognised risks around the passenger cap planning condition remaining in place. First, if enforced, it would result in an immediate cut of over 4 million passengers per annum, impacting existing connectivity and employment at the airport and in the wider aviation sector. Second, it would stifle continued growth, undermine our ambitious hub strategy for the airport and negatively impact the tourism, trade and business aspects of our economy. As Members know, airlines need certainty to plan future schedules and the continued existence of the cap creates only uncertainty, which can be expected to continue to affect the choices that airlines will make about serving the airport. There is a serious risk of reputational damage for Ireland if capacity is restricted at our major and main international gateway.

The 32 million passenger cap is a legacy planning condition that was imposed by An Bord Pleanála, as it was known then, when granting permission for terminal 2 in 2007 and extension works at terminal 1 in 2008. The condition was put in place primarily to address surface access constraints at the time. However, there have been significant upgrades in the road access and public transport offerings to and from the airport since that time.

Dublin Airport Authority, DAA, has statutory responsibility for the management, operation and development of Dublin Airport and it is its responsibility to engage with the relevant planning authorities to ensure that planning permission is in place to facilitate the development of the airport. DAA submitted its infrastructure application to the relevant planning authority, Fingal County Council, in December 2023, seeking to increase the passenger cap to 40 million passengers per annum and seeking permission for the development of a suite of infrastructure projects at the airport to facilitate growth.

This planning application is currently under consideration by Fingal County Council. As part of the process in place for development at the airport since the enactment of the Aircraft Noise (Dublin Airport) Regulation Act 2019, a draft noise-related regulatory decision was published by the Aircraft Noise Competent Authority, ANCA, in May and is currently subject to a public consultation. A final regulatory decision in relation to the noise aspect of this planning application is expected later this year. This decision will be incorporated into the planning decision by Fingal County Council, which is expected shortly thereafter. It is likely that any planning decision by Fingal County Council may then be appealed to An Coimisiún Pleanála and may also be subject to judicial review. This further highlights the need to address the passenger cap by way of a legislative solution to ensure clarity for all stakeholders and to ensure that connectivity to and from our country is not undermined.

I will now take Members through the main provisions of the Bill that will empower the Minister for Transport to make an order to amend or revoke the passenger cap planning condition. Under Part 1, the first thing I wish to draw attention to is the definition of "passenger capacity condition" under section 2. This definition makes it clear that the power to make an order relates solely to a planning condition that limits the number of passengers who use Dublin Airport for the purpose of travelling by air to or from another airport in any period. I understand from the Minister that this definition addresses concerns raised during pre-legislative scrutiny that the power being provided to amend any planning condition in the general scheme was too broad.

Under section 6 of this Part, the Minister has a general power of direction to DAA for any purpose related to this Bill. That power may be used to procure information from DAA in relation to an application, to ensure the preparation and submission of appropriate reports relating to the environmental assessments or to initiate the application process. Such directions may also specify the period and form in which information should be provided and DAA has a legal obligation to comply with such a direction.

Part 2 provides that DAA may make an application for the making of an order under the legislation. That application from DAA will propose the manner in which the passenger cap is to be amended or revoked, reasons for the application and a summary of any environmental impacts. The application will be considered by the Minister, who may consult any person he considers appropriate. If the Minister is satisfied that there is justification to make an order, he will notify DAA of his intention to do so and direct it to prepare an environmental impact assessment report and a Natura impact statement. The Minister has the power to accept, vary or refuse an application from DAA.

Part 3, covering sections 8 to 23, inclusive, provides for the environmental impact assessment and appropriate assessment that will be undertaken independently of the Minister. An Coimisiún Pleanála will carry out the assessments under the habitats directive and under the environmental impact assessment directive, which will include consideration of compliance with the water framework directive. As part of these assessments, the commission will publish the material for the assessments and undertake a public consultation for a period of 30 days. There is provision for a further 30-day public consultation should the commission seek and receive further information of a substantial nature.

Strict timelines have been included within the legislation and the commission will have 20 weeks to carry out the assessments and come to a reasoned conclusion in respect of the environmental impacts of making an order and a determination as to whether there will be an impact on the surrounding habitats. There is the ability to pause this timeline for a period of four weeks to allow for any requests for further information to be dealt with. The commission is encouraged, insofar as possible, to carry out these assessments jointly and to take all necessary steps to work in an expeditious manner, avoid any undue delays and ensure that appropriate resources are allocated to carry out its functions under the legislation within the timeframe provided. The commission will notify the Minister of its findings arising from the environmental assessments and publish its reasoned conclusion and determination.

Part 4 sets out the parameters around the making of an order by the Minister and that an order will be superseded by a planning decision on DAA's infrastructure application. Under section 24, the Minister is prohibited from making an order until the environmental assessments have been carried out. I understand from the Minister that this approach addresses concerns raised during pre-legislative scrutiny about the public being excluded from the process, with at least one period of public consultation in relation to the environmental impacts of making an order to take place.

Under section 25, the Minister is empowered to make an order to amend or revoke the passenger cap where he is of the opinion that the passenger cap is causing harm to the economy of the State, international connectivity and Ireland's reputation in respect of air transport. In making an order, he will consider and take account of the outcome of the environmental assessments undertaken by the commission and he will have the power to include any conditions in an order that he deems appropriate to mitigate any impact on the environment.

In consultation with the Minister for Housing, Local Government and Heritage, where appropriate, the Minister can deem the conditions attached to an order as exempted development but only where they are not separately subject to environmental assessments under EU law. The Minister will publish an order on his Department's website and in Iris Oifigiúiland inform Fingal County Council as the relevant planning authority.

While it is critical that the passenger cap planning condition is dealt with, it will be meaningless if the infrastructure to accommodate future growth is not also put in place. Therefore, the Minister has informed me that in preparing this legislation, one of the key objectives was to protect DAA's live infrastructure application. As such, the legislation was crafted to allow the application to proceed through the planning process notwithstanding the making of an order. Section 26 sets out the effect of an order as it relates to that planning application, given that both deal with the same planning condition, that is, the 32 million passenger cap.

Once a final decision is made on DAA's infrastructure application, that decision will supersede any order made under this legislation. However, an order will remain in place through any appeal or judicial review of that planning decision and if that planning application is refused, then an order will also remain in effect. This will ensure consistency and certainty for all stakeholders while DAA's planning application proceeds through to a final planning decision. I understand from the Minister that this provision also addresses a recommendation arising from pre-legislative scrutiny for a sunset clause to be introduced.

Part 5, which covers sections 27 to 35, inclusive, sets out the judicial review procedures.The validity of an order made under the legislation, or an alleged failure to carry out a function under the legislation, may only be challenged by way of judicial review. An application for leave to apply for judicial review must be taken within eight weeks and the applicant must have sufficient interest in the matter.

Part 6 of the Bill provides for amendments to the Planning and Developments Acts. Under these amendments, Fingal County Council and An Coimisiún Pleanála are prevented from imposing a passenger cap as a condition in future planning decisions related to Dublin Airport. However, this does not apply in the case of a condition being imposed following a noise assessment by the noise regulator, ANCA, under the balanced approach and it does not apply to DAA’s live infrastructure application. This part also provides for amendments to the Aircraft Noise (Dublin Airport) Regulation Act 2019. The definition of "operating restriction" has been amended to align with EU Regulation 598/2014 on the establishment of rules and procedures with regard to the introduction of noise-related operating restrictions at European Union airports within a balanced approach. Two transitional provisions that are no longer relevant have been deleted and a provision has been inserted to clarify that the 32 million passenger cap is not an operating restriction within the meaning of the 2019 Act.

Finally, section 39 of the Bill provides a derogation from section 15(1) of the Climate Action and Low Carbon Development Act 2015. There are a few reasons for this derogation. First, the passenger cap was not a targeted climate measure and, second, international aviation emissions are excluded from the climate action plan. As such, this provides clarity about the application of that Act to the actions to be taken under this legislation. This legislation will not only ensure the sustainable development of Dublin Airport but will also ensure that any environmental impacts will be independently assessed and the views of the public will be heard as part of that process. As such, the approach set out in the legislation represents the most balanced and reasonable way forward. I commend the Bill to the House. I look forward to hearing the views of Members.

Lorraine Clifford-Lee (Fianna Fail)
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I thank the Minister of State for coming to discuss this important legislation. He will be aware that I use every opportunity I get to advocate for the communities of north County Dublin and tonight is no different. I am a member of the Joint Committee on Transport. I sat through the pre-legislative scrutiny and heard all the witnesses the Minister of State spoke about. We had a thorough examination of this Bill.

First, I put on the record that I support the airport. I support the jobs the airport generates for the local community in north County Dublin and for the country, but I also support the communities there. It is about gathering the stakeholders, as the Minister of State said, and striking the right balance. Dublin Airport is an important piece of national infrastructure and a large employer in north County Dublin and many ancillary businesses are dependent on the airport. It is vital for our connectivity as a nation. However, we need to look at it in the context of where it is, its development and supporting the communities that live around it.

The flight paths currently operating contrary to the planning permission granted for the northern runway need to be sorted out. They are affecting communities in Ballyboughal, Lusk, Coolquoy, Kilsallaghan and Kilcoskan. Since August 2022 when the northern runway opened, the children of Kilcoskan National School have been unable to learn in peace and quiet because these flight paths are being operated illegally. It is completely unacceptable. The Minister, Deputy O'Brien, stated on Second Stage in the Dáil that an independent assessment would take place at the appropriate time. When will that appropriate time be? There was some suggestion it would be when a final decision has been made about the night-time flights to get a more accurate assessment of the noise impacts. However, I would like the Minister of State to find out when that independent assessment will take place because this has been going on for almost four years and it is a difficult situation for people who find themselves under a flight path and have built houses and got planning permission to do so specifically because they were away from the flight path. Suddenly, the DAA started to fly aeroplanes over them.

I will also make reference to the voluntary dwelling purchase scheme, which needs to be improved. The families who qualify - and we are talking about a relatively small number of people - are in an impossible situation because they want to be able to replace the houses they have. If they give up their houses and move from the area, they want to get replacement houses, but the valuations and offers being made are below the amount that would buy a house locality. The Minister, Deputy O'Brien, has said improvements to the voluntary dwelling buy-out scheme have to happen, but when will they happen? People entered the assessment phase of it because they were coming up against a hard deadline in August. That deadline has been extended, which is good and I welcome it, but we still do not know when the improvements to the scheme will take place. People have been living in a terrible limbo for all these years, trying to deal with it, trying to get a fair deal. These are people who have lived in the area for generations, who fought the Battle of Ashbourne for our independence. They are very entwined with the local community so it is a big thing to ask them to leave it. They need to be relatively close to where they are living at the moment so they can continue to live their lives. We need to get a better scheme up and running for them as soon as possible. They need to be able to get an equivalent home.

The good neighbour principle must be adhered to at all times. The Minister, Deputy O'Brien, also referred to this in the Dáil. It has not been the case and that is regrettable. There is a new chair of the board of the DAA, Mr. Gary Owens, and I look forward to working collaboratively with him to solve some of these issues. I hope a good approach will be made to the local communities and local representatives. We are awaiting the appointment of a new CEO and again I hope the attitude will improve because the good neighbour principle has certainly not been adhered to well in recent years. I look forward to working with the new CEO when she or he is appointed, and with the board, the executive and the local communities.

I have been speaking to the local communities since my very first days in public office, for well over ten years. It is the same issues. The people living there have been facing intolerable situations over a prolonged period. I live in the vicinity of Dublin Airport. I absorb the airport noise as well. We all appreciate the airport and many good things about it, but we need to come to a solution. It cannot operate in a vacuum with residents' rights being trampled on constantly. We need to look at funding for community-led initiatives and the DAA needs to step up to the plate substantially in relation to that, particularly for the planning for real community plan for St. Margaret's and the Ward. It is an excellent and realistic plan. A lot of time and effort by the local residents went into developing this plan and the DAA needs to be a good neighbour and step in to work closely with the communities to deliver it, along with the Minister and the Government as a whole.

The independent assessment of noise is needed promptly. As I said, a public consultation is currently under way about the northern runway flight path, which will conclude in approximately 11 weeks, but we need one on the noise levels as well. I would like the Minister of State to bring that point back to the Minister. It is a point I have made several times to him and I hope there will be action when this Bill passes.

We need, at all times, to keep in mind the health impacts of prolonged noise, particularly noise at night. That is what the residents in north County Dublin have been facing. I have been working with stakeholders and I am a resident of north County Dublin and a neighbour of Dublin Airport. All these issues are ones I am experiencing. The Minister, Deputy O'Brien, has met various stakeholders. He engaged positively with the Committee on Transport and I am hopeful we will see resolution of many of these issues. We understand the airport cap needs to be lifted, but it cannot be done in a vacuum. I will not stand in the way of the airport cap being lifted, but I certainly will be standing four-square behind all the local residents for them to get what they deserve once and for all. I would like to touch on a point the Minister of State made when he was talking about the airport cap and its legacy. He said it was a condition imposed when terminal 2 was being developed. He also said there have been significant upgrades to the roads and public transport but that is not the case. The Minister of State can come out with me someday if he wants and I will bring him around the local roads, where he will see the lack of public transport. We are getting the metro but that is some time away. We really need to look at all the other issues there and move forward collectively. I thank the Minister of State for listening to me.

Joe Conway (Independent)
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Cuirim fáilte roimh an Aire Stáit anocht. I am going to speak on the Dublin Airport (Passenger Capacity) Bill 2026 in the context of aviation safety, aviation security, operational resilience and public participation. A lot of the opening remarks I am going to make here are based on a report done in June 2026 by an airspace safety advocate from the perspective of aviation reporting and governance. I refer to his covering letter:

I write further to my previous correspondence regarding aviation safety, aviation security, operational resilience and the Dublin Airport Passenger Capacity Bill. The Joint Committee on Public Petitions and the Ombudsmen has suggested that you [that is, the Minister], or a senior official, meet with me. Given the pace at which the legislation is [now] progressing, I have consolidated my outstanding questions into this briefing.

These questions arise from more than five years of research and engagement with Irish, European and international stakeholders and form part of the SAFE-AIR White Paper, now exceeding fifty pages. They are intended to assist [us in our] parliamentary scrutiny by seeking clarification on aviation safety, security, operational resilience, governance and public participation.

Stemming from the report, the writer wants to ask the Minister the following pointed questions. In relation to aviation safety, what formal aviation safety assessment accompanied the Bill? Which aviation authorities were consulted? Can the Minister publish the safety assessments relied upon for the formulation of the Bill? In relation to aviation security and resilience, what aviation security assessment was undertaken? Were defence, Garda and national resilience bodies consulted? What operational resilience assessments considered global navigation satellite system, GNSS, interference, drones and emerging risks? In relation to reporting and investigation, who owns an assessment after a report is made? Who owns the escalation of that report? Who owns the investigation? Who owns closure of a safety-relevant anomalous aerial observation?

The writer of the letter, as a resident of Swords, made a statutory planning submission in 2004 and paid the prescribed fee. How was that submission and those of other members of the public considered once the Government changed the legislative framework? Also, how were aviation safety, security and operational resilience and community concerns carried forward? His closing request was that the Minister publish any and all safety and security resilience assessments, provide written responses to submissions from members of the public and that he, or a senior official, meet with the writer of this correspondence, as recommended by the Oireachtas committee.

The writer underscores key principles in his submission here to us, which include that pilots are not investigators; uncertainty must be captured first and assessed afterwards; reporting and the investigation that follows are completely separate matters; it is not sufficient to take reports from the same aircraft, the same crew and the same flight; and radar detects what is in the skies above Dublin and the nation, but good procedures protect.

I will now turn to the concerns of our Independent councillors in Fingal. I agree with what Senator Clifford-Lee said when she mentioned that so many jobs attend the progress and viability of Dublin Airport. In fact, for our local authority out there, Fingal County Council, Dublin Airport is its largest ratepayer; I think I am right in saying that. This is an indication of the integral part it plays in the community and the economy out there. The core stance of the council encompasses several key points. It consistently highlights that the passenger limits, such as the 32 million cap, were legally binding conditions tied to the infrastructure permissions. The council strongly points out that when the DAA’s planning applications to lift the limit were rejected or deemed invalid by the local authorities, this was done because of procedural or planning mechanism issues.

The local residents assert the broader concerns of the Airport Regions Council, ARC, which advocates for strict environmental controls, controls on noise and quality-of-life boundaries for the communities directly impacted or overflown by the airport expansion. When all comes to all and we get down to brass tacks, it looks like this is a sort of joust between Michael O’Leary, on the one hand, and, as the Dublin Opinion used to say, Seán Citizen on the other hand. I do not think that the result of any such joust was ever more clearly foreseen. It is an unequal contest and I think we all know the result. We know who the losers are going to be.

In this House, we have had one, at least, and maybe two good debates about balanced regional development. It might be in the programme for Government as well to work for balanced regional development. If we counterbalance the expansion of the passenger load at Dublin Airport and the possibility of balanced regional development involving airports, such as the one starting in Waterford and those in Cork, Kerry, Mayo and in Shannon, it is anathema to their viable development if Dublin Airport is hogging the passenger numbers. It is said that people want to fly into Dublin Airport, but this is only because the situation is similar to that which pertained when the railway line between Waterford and Rosslare was closed. This was closed because it was said nobody was using it, but nobody was using it because the trains were being run at 2 o'clock in the morning or something like that. It is a question of generating the result that you want.

There are many things about this that we are unhappy about. It is regrettable that certain people say that the people of Swords knew what they were buying into when they bought their houses 30 or 35 years ago. I think Michael O’Leary said it was tough on them. However, would anybody care to speculate on what the number of passenger movements or plane movements were in Collinstown 35 years ago? It was a much more benign environment out there. Go raibh maith agat.

Mark Duffy (Fine Gael)
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I thank the Minister of State for being in the House this evening for this important discussion. I put my support on the record for the removal of the passenger cap, notwithstanding the issues identified by the community. I acknowledge all the work of local representatives in the localities around the airport. We need to manage and have a balanced approach to development and economic growth, while also trying to bring as many people with us as possible in these localities and communities.

Dublin Airport, as we know, is such a key and important strategic asset for the country because we are an island nation. It is vital that we have strong connectivity and links right around the world. There is a great opportunity to promote further links as we have a strong diaspora in all corners of the globe.The economic vitality that breeds throughout the island is very pronounced and we know its importance. Dublin Airport provides over 30,000 jobs. As has been mentioned in previous debates, for every 1 million passengers that Dublin Airport has each year it promotes 1,000 jobs. The passenger cap of 32 million passengers is an artificial cap considering that over 36 million people passed through the airport last year. Given the fact there has been a lot of international interest in the removal of the cap because of economic challenges that have been faced by certain airlines that want to grow and improve connectivity, it is important it is removed.

However, considering the points that have been raised, and I am sure will be raised and discussed, it is very important that we listen and are as skilful as possible in mitigating some of the issues caused by high-volume passenger numbers in communities. It is not for me to get into the weeds on that but we must lend support to local representatives and local communities to make sure that the principle of Dublin Airport being a good neighbour and a stakeholder within the community is embraced, not just in name only but factually and in a sincere way to at least mitigate some of the issues. I also strongly support the lifting of the cap. It would send a strong signal that Ireland is open for business and we can further develop links throughout the world. Especially given the reality of Brexit, there are increased opportunities for the airport and for Ireland in general.

I know the importance of key infrastructure like airports, being from Mayo and the fact that Ireland West Airport Knock recently celebrated its 40th anniversary. That airport transformed the west of Ireland and is one of the most important assets we have there. I would like to see the airport further promoted and strengthened. As Senator Joe Conway mentioned, regional airports need to be supported. They can play a smaller part in connectivity for the regions, both for economic reasons and tourism opportunities. There are many people who live outside of the larger cities who can commute for work and regional airports improve business links for people, especially across the continent. They help us utilise the fact that we are a member of the European Union and have access to a market of over 400 million people.

I reiterate my thanks to all who have engaged on this legislation so far. I also acknowledge the work of local representatives. Indeed, I acknowledge the work done by the Minister and the Minister of State, Deputy Buttimer, in bringing it to this Stage. It is a positive step but it is important that this is not just a step forward while ignoring people in the community. It is important that the door is always open in a sincere way for engagement with local representatives and representatives of the airport. I support the Bill and thank everyone for their work on it.

Joanne Collins (Sinn Fein)
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I welcome the Minister of State. As has been said, we are an island nation and depend on connectivity. Aviation in this country is not a luxury but an essential part of the Irish economy, tourism sector, exporters, diaspora and our ability to attract investment. We cannot pretend otherwise. That is why Sinn Féin agrees that the current 32 million passenger cap at Dublin Airport is no longer fit for purpose. The cap was introduced many years ago as a planning condition linked to the construction of terminal 2 and was based on circumstances that have long since changed. Last year alone, Dublin Airport handled approximately 36 million passengers, which is 4 million passengers above the current cap. The reality is that passenger demand has outgrown the planning framework. Continuing with a cap that no longer reflects operational reality creates uncertainty for airlines, businesses and workers whose livelihoods depend on aviation.

We are also conscious of the looming legal uncertainty around slot allocation. If the cap is not addressed then Ireland risks reduced connectivity, fewer routes and potential damage to the tourism sector and the wider economy. For those reasons Sinn Féin supports lifting the passenger cap. However, supporting the principle does not mean giving the legislation a blank cheque. There are significant shortcomings within the Bill that must be addressed on Committee Stage.

First, local communities cannot simply be expected to absorb the consequences of expansion without being listened to. Residents who live around Dublin Airport have legitimate concerns, which we have heard about at the Joint Committee on Transport over the last few months. We have heard about the increased number of night flights, aircraft noise, air pollution, traffic congestion and the reduction in the overall qualify of life within their own communities. Too many people feel like their voices have been ignored for years by both the DAA and the authorities. The irony is that the original passenger cap was introduced because commitments were made regarding transport infrastructure and local impacts. Many of those still remain unresolved today.

Jerry Buttimer (Cork South-Central, Fine Gael)
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Not true.

Joanne Collins (Sinn Fein)
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If the Government wants public confidence in this legislation then meaningful engagement with local residents cannot be optional and must be built into the legislation. That is why Sinn Féin will bring forward amendments that require meaningful consultation with local community groups, and the strengthening of community mitigation and compensation measures.

Second, the Bill raises important questions about ministerial powers. While we recognise that the Government needs a mechanism to address an outdated passenger cap, the legislation must clearly define the scope of those powers. The Minister's authority should be confined to dealing with the passenger cap capacity issue alone and should not become a mechanism for overriding broader planning protections or creating uncertainty about future planning decisions. We intend to examine these provisions carefully and bring forward amendments to ensure that the legislation is proportionate, transparent and respects proper planning processes, and the independence of the relevant authorities.

Third, we cannot discuss Dublin Airport in isolation. The Government continues to speak about balanced regional development while allowing Dublin Airport to dominate aviation policy. Nearly nine out of ten passengers who travel through airports in this State travel through Dublin Airport. Meanwhile, airports like Shannon, Cork, Kerry, Knock and Waterford continue to receive piecemeal support instead of the strategic investment needed to unlock their full potential. Shannon Airport has increased its passenger numbers year on year over the last couple of years, which is great, but we need to encourage more airlines to fly out of regional airports. Galway no longer has commercial services. Sligo has no commercial passenger operation. Waterford has struggled for years to secure the investment necessary to restore its scheduled service. If the Government is serious about balanced regional development then regional airports must become economic drivers in their own right supported by investment in infrastructure, route development and integrated transport links.

We also need to recognise the all-island dimension of aviation. Brexit has demonstrated the vulnerability of our transport links. The disruption at Holyhead showed how quickly our supply chain can come under pressure. Therefore, our aviation strategy should look beyond Dublin and consider how airports across the island can complement one another, improve reliance and strengthen connectivity for people, and businesses, both North and South.

Tourism deserves a mention. Almost one in ten jobs across the island depend on tourism, yet international visitor numbers and visitor spending declined last year. At a time when many hospitality workers continue to struggle with low pay and rising living costs, we need policies that strengthen rather than weaken Ireland's attractiveness as a destination. Strong aviation links are central to that.

Sinn Féin supports removing the passenger cap that has become outdated and no longer serves Ireland's interests. We also believe that growth must be properly planned and respect local communities. We need correct and balanced regional development when it comes to aviation.

Dee Ryan (Fianna Fail)
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I welcome the Aire Stáit and thank him for giving us the opportunity to discuss this important issue.

I rise today feeling conflicted. I am a Limerick woman from the mid-west. I spent the six years before I came into this House advocating on behalf of the business community in the mid-west. A key pillar of that was pushing increased investment in the region and promoting balanced regional development.A key component of that balanced regional potential for us is Shannon Airport. It is very difficult as a mid-west woman - I am sure my Clare colleagues will agree - to stomach the dominance of Dublin Airport. I disagree and refute completely that it has not come at a cost to the regions. With the recent figures for growth in regional airport numbers, it absolutely has. How can an airport with passenger numbers of a record high at 2.3 million compete with 36 million? There is no competition.

The airports are self-financing. They have to generate their own revenues. For a layperson's understanding, they use part of the revenue they generate not only to maintain and upkeep the airport, improve facilities and provide services within the airport but also to entice airlines to put on new routes. The Minister of State cannot tell me an airport like Shannon with 2.3 million passengers per annum has anywhere near the pockets the DAA and Dublin Airport have to compete and bid for route development. It is not the case.

I appreciate and acknowledge the Minister has included Shannon Airport in the regional airports programme which I have been seeking for eight years. It is an important extension of Government supports to Shannon Airport but if we are serious about regional development and balanced economic development, we have to recognise the strategic importance of our airports in that. As an island nation, we need those connections to other markets which will support foreign direct investment into regions and support companies in the regions to make those business connections, develop those markets and potentially invest out.

In Limerick and the mid-west region at the moment we do not have daily business connectivity to an EU hub airport. It is shocking as members of the EU - this is our key asset in terms of international trade. We know how important that is to us as an economy. Shannon Airport does not have daily business connectivity to the EU marketplace. Much as we have done in a dysfunctional housing market where we intervened and funded where necessary to provide critical supports and subsidies for people to achieve housing and get on the housing market, we need to look more closely at what policy measures can be drawn up and what funding can be brought into place to fund strategic routes. I am not talking about Ibiza or Santa Ponsa, I am talking about Charles de Gaulle Airport and Amsterdam Schiphol - meaningful connections that will help to develop our regional economy.

I am glad we are finally saying the emperor has no clothes. Dublin Airport has been exceeding its cap for many years. It does not observe it. It is appropriate that we legislate to allow it to continue to grow. I recognise the significant role it has played in our overall economic development and the growth of Dublin but I would like to see meaningful parallel investment in our regional airports.

Victor Boyhan (Independent)
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I welcome the Minister of State to the House.

Jerry Buttimer (Cork South-Central, Fine Gael)
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Sorry; I was taking notes.

Victor Boyhan (Independent)
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The Minister of State is listening.

Jerry Buttimer (Cork South-Central, Fine Gael)
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I have taken five pages of notes.

Victor Boyhan (Independent)
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I welcome the Minister of State, Deputy Buttimer, to the House. I know he takes notes, he listens and he follows through. I am sorry the Minister himself cannot be here.

I will start by referencing what Senator Clifford-Lee spoke about because I fully support what she said. She lives on the ground, as does the Minister. She knows the constituency better than most. I have heard from local representatives of all parties and none there who are deeply concerned. There is a lot of mixed messaging. They represent the people, as does the Senator, which is important. I do not have any problem in developing and wishing well and success to Dublin Airport. It is critical, as its relationship with Fingal, but it has a planning history. I took the time to look at some documents from An Bord Pleanála and Fingal County Council. There is a long, protracted history and concern. For anyone to suggest that people who bought houses there in the sixties, seventies and eighties knew what they would be getting into today is grossly insulting. They did not know what they were getting into. I would not compliment the individual who is purported to have said it, to give him any more publicity than he has already had today. It is important as a public representative, if I were out there. I want to send a clear message to the councillors listening tonight who are aware of it. I have had a few phone calls today about it. We hear what they are saying but unfortunately the reality is the Dublin Airport (Passenger Capacity) Bill 2026 was passed by 118 votes to 28 in Dáil Éireann.

We have to be realistic in this Chamber. We are a revising Chamber. That is where we are coming from. We are talking about a very large number in government on that side of the House which has a simple majority. We have a record of a Government that has rarely accepted any amendments to any legislation in the past year and a half since it came into power. The facts speak for themselves. I am happy to share that spreadsheet with anybody. I ask the Minister of State to convey to the Minister, Deputy O'Brien, who is responsible in this area, that I hope he will be genuinely open to dialogue, to listening and taking on board some of the amendments that come from all sides of the House, if both sides of the House are minded to table amendments. There is such a thing as leverage, be it in business or politics. For this Bill to go through, it is open to Government Members of course to propose amendments or seek to negotiate amendments. The Minister may take them on himself. I do not care whose amendments they are. There is scope for it. We can be sure going out of here today, and the Minister of State can take it back to the Minister, that there will be amendments. We will discuss them and tease them out. That is particularly important.

Getting back to the Bill itself, to be fair, it sets out the processes. The Minister of State set that out very well. We talk about environmental impact assessments, appropriate assessments, An Coimisiún Pleanála, its role, timeframes and timescale. There is great clarity in all of that. Whether we like it or not, the process is clear. I commend the people who drew up the process because it is very easy. I read the explanatory memorandum completely in a few minutes. It is logical and sets out in a fair way processes and perhaps tighter timelines but there is discretion to extend some in certain circumstances which is all set out in the explanatory memorandum. I could not argue with the processes as set out in the legislation, which is important.

I want to spend the last few seconds I have endorsing what other Members such as Senator Ryan have said about regional development. We have heard all these platitudes about regional development. The Minister of State is from Cork and Senator Joe Conway is from Waterford. The Cathaoirleach is a great champion of Kerry and everything that comes in and out of Kerry. Regional airports play a key role. I would like to think those on all sides of this House will fight hard to push for balanced regional development. We have leverage and opportunity. I look forward with great anticipation and excitement to reading the amendments in the coming days because this is the time. This is our opportunity. Let us bring our amendments before the House in relation to this legislation.

Martin Conway (Fine Gael)
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I too welcome the Minister of State, Deputy Buttimer, to the House. He has a deep interest in aviation and has advocated for Cork Airport for many years. On what Senator Clifford-Lee and others regarding residents, it is only good manners that should be done. I sincerely hope it is being done. If it is not, it should be enshrined in the legislation to ensure it will be done.

I fully agree with the principle of removing the passenger cap in Dublin Airport. The cap as presented is bonkers. It just does not make sense. Why would you try to stop people coming into the country who want to come into the capital city? It has been violated extensively anyway so let us just deal with that particular issue, as we are doing. What Senator Ryan and others said about regional development is important. Shannon has struggled over the years yet is doing exceptionally well. Knock airport has a proud tradition and is doing exceptionally well at the moment.Kerry Airport is holding its own. We have an opportunity here to do something constructive to support these airports. I was doing a bit of research before speaking. DAA, which comprises Dublin Airport, Cork Airport and Aer Rianta International, still an exceptionally profitable company, had a turnover in 2024 of €1.1 billion. I am considering tabling an amendment to provide that 1% of the turnover of DAA be ring-fenced for a development fund for regional airports to support what is already being done by the Government.

Jerry Buttimer (Cork South-Central, Fine Gael)
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Shannon Airport would not qualify for that.

Martin Conway (Fine Gael)
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It would qualify. I am suggesting that a 1% levy on DAA be made available to the regional airports that are not part of DAA. Based on the 2025 figures, that would amount to €11 million.

Jerry Buttimer (Cork South-Central, Fine Gael)
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They would fly into Cork then.

Martin Conway (Fine Gael)
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Cork is part of DAA.

Mark Daly (Fianna Fail)
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Allow Senator Conway to continue, without interruption.

Martin Conway (Fine Gael)
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This additional €11 million would be available to support new routes that are of strategic importance, as Senator Ryan pointed out. It would also be available to assist in marketing, expand routes and support airlines that are prepared to take the risk of flying into places like Knock, Shannon and Waterford airports and, potentially, Galway, Donegal and other airports. While €11 million is not a huge sum, it would still go a significant way to enhancing the budgets of these airports. It would create more scope for critical infrastructure developments but, much more importantly, for supporting strategically important routes. We have tourism and regional development policies, and the rural first policy. Here is an opportunity to take just 1% of the turnover of Dublin Airport Authority and balance it in that way.

I reiterate that I am not a fan of the cap. I think it is punitive and ridiculous but there are other ways to skin the cat, and this is one of them. Let us talk about it. I would be happy to engage with the Minister of State's officials to come up with a wording that would be acceptable to him.

Jerry Buttimer (Cork South-Central, Fine Gael)
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I thank Members for a great debate. This is why I love coming back to the Seanad. I miss this debate in the other House.

Victor Boyhan (Independent)
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We will keep the seat warm for the Minister of State.

Jerry Buttimer (Cork South-Central, Fine Gael)
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I would never come back as Cathaoirleach again.

Victor Boyhan (Independent)
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The Minister of State did a fabulous job the last time.

Jerry Buttimer (Cork South-Central, Fine Gael)
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I will come back to what I was going to say in a second. The speech I have been given has been made redundant, but that is okay. The world of aviation has changed. We have to look at it through the prism of various things. I will not name any individual but the number one issue is what the airline wants. The second is what the population mass of the catchment area of an airport is, and the third is what the passenger loads are going to be. We are an island nation which, whether we like it or not, is very much beholden to the connectivity provided by airlines to bring us to and from the island.

The fundamental point, which was well articulated by Senator Clifford-Lee and other speakers, is that we must not dismiss the frustration of residents. Senator Boyhan is right that the residents who bought their houses in the 1960s, 1970s and 1980s did not foresee where we would be today; none of us did. I say this as somebody who grew up in a family home under the flight path to Cork Airport. I remember sitting in the back garden as a child waving at planes and thinking the passengers could wave back at me. I could nearly see in the windows, and I am not exaggerating. We have to understand the frustration of neighbours and residents. Senator Clifford-Lee made a point about a school. We have to take cognisance of that, and I say that genuinely.

Senator Conway spoke about Seán Citizen but the balance we need to get right is that if we do not do what we are doing tonight, Seán Citizen will lose because jobs will go, our reputation in aviation will be lost and people will vote with their feet. We have to get the balance right. We cannot dismiss jobs or the local economy. I hear the point about connectivity, roads and transport, which is important. Senators Clifford-Lee and Duffy referred to listening to the residents. We must do that. Nothing I say is meant to dismiss in any way the views of residents because we cannot do that. I mean that most genuinely, having been a public representative now for 22 years.

I will bring back to the Minister the need to emphasise the principle of good neighbourliness, which DAA must live up to. I go back to the people of Cork and the model Cork Airport uses in its engagement with stakeholders. It may not be perfect but the airport will sit down with neighbours, residents and groups. We have had issues but it dealt with them comprehensively through engagement and by being honest and up-front. When the Minister issues the stakeholder expectation letter to the new chair and the board, I will ask him to engage further and make that clear.

Senator Conway referred to the letter in terms of aviation. The Senator is right that I have a huge interest in aviation. I am also a former member of the transport committee. Aviation is a highly regulated area and safety and security are of the upmost importance. We debated the aviation Bill in the House with Senator Craughwell before I left to go to the Chair. The Department, our officials and the Ministers in the Department are very much aware of the concerns raised by the letter the Senator read to the House tonight. Officials are examining it and will come back to him on it.

I am smiling because when I was here I often spoke up for Cork Airport and the need for balanced regional development. I will make this point to Members. If there is a preponderance of Government policies towards Dublin Airport, and it does feel like that sometimes, many of us also advocate for other areas. In my case, it is Cork. I will put a couple of figures on the record. I congratulate Senator Duffy on Ireland West Airport in Knock celebrating its significant anniversary this year.

Martin Conway (Fine Gael)
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Hear, hear.

Jerry Buttimer (Cork South-Central, Fine Gael)
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When Monsignor Horan showed vision, many, including the then leader of my party, did not listen to him. It shows the importance of that airport in the west. Last year saw an increase in passenger numbers at all regional airports, with numbers up by 13% to almost 3.5 million in Cork, by 9% to 2.3 million in Shannon, by 13% in Ireland West Airport and by 6% at Kerry Airport. At Donegal Airport, which nobody mentioned tonight, passenger numbers were up by 9%. If it were the case that we were all focusing on Dublin as the only place to go to, why are passenger numbers increasing in regional airports?

Joe Conway (Independent)
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What might the reason be?

Jerry Buttimer (Cork South-Central, Fine Gael)
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Here is the point. Senators should not fall into the trap of blaming Government policy. They should look at what many of us have done and do. Senator Boyhan made a point and I will name Michael O'Leary of Ryanair. He has changed aviation-----

Martin Conway (Fine Gael)
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He has.

Jerry Buttimer (Cork South-Central, Fine Gael)
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He has transformed it, but we cannot just bend the knee to him at every opportunity, as some airports on this island have done. We have to work to ensure we have balanced regional growth. I was in Frankfurt last week visiting Lufthansa with representatives of Cork Airport to do a new direct route from Cork to Frankfurt.

Martin Conway (Fine Gael)
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Well done.

Jerry Buttimer (Cork South-Central, Fine Gael)
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I am not taking the credit for it. We must all promote the routes and ensure we have the offering. It is not about Ibiza or Santa Ponsa, which are important, but about the lines or routes of quality. It is important that we stress that. I want to ensure we have balanced regional development, as does the Government and the Minister for Transport.

Senator Collins is right that it is about an all-island initiative. That is why the Taoiseach, through the shared island initiative, is pushing Dublin to Derry links and I hope we see Cork to Belfast links. Having an all-island dimension is what Brexit has taught us.I have gone off-piste tonight. The officials will never send me out again. We must not forget the slot allocation and the importance of Heathrow. We see the difficulty Aer Lingus is in. We cannot lose that slot allocation as an island because it is critical to flying out of Europe and beyond. I am genuinely interested in this area because I see the potential damage that can be done. Let us look at the number of airlines in America and Europe that have folded. In Cork, we thought Norwegian Airlines was going to be the panacea for everything that had gone wrong. We thought things would get better but, as Senators know, they did not.

It is important that we have balanced regional development. To be fair to the Minister, he is emphasising the importance of the DAA acting as a good neighbour and being a conduit. The other point I will give the senior Minister in the Department credit for is that, for the first time, the regional airports programme, which Members discussed tonight, is being expanded to include airports with up to 3 million passengers. Cork Airport does not qualify for that. Shannon Airport is on an even playing field already. It is flying ahead of us in Cork already at one level. The previous threshold was 1 million. The Minister has changed it now.

There was consensus among Senators on the need for an ongoing commitment to our regional airports. The experience of flying through any of the regional airports is phenomenal in terms of waiting times and security. The investment in Cork Airport means the new security operation is unbelievable. For me, working with my colleagues, this is about ensuring that all of our airports continue to play an essential role in the Irish economy, that we do what we are trying to do here in increasing the passenger cap, while recognising at the same time that people in the Fingal area have genuine concerns. This is landmark legislation which will ensure the country maintains its existing connectivity and employment, while facilitating the new strategic routes we all want, driving national economic growth and creating employment in the future. The hub part of aviation is here to stay, no matter where we live or where we go.

The Minister is committed to listening to and working with Senators. I welcome the tabling of amendments. One of the best things I ever did as Cathaoirleach was to sit down with Martin Groves, the then Clerk of the Seanad, to parse amendments. I learned so much about what the thought process was and what we could all do.

The Minister made a commitment in the Dáil on the flight plans raised by Senators. We will address that on Committee Stage and Report Stage. I thank Senators for the debate. I am sorry for going off script. It was an invigorating debate. I thank Members for their interest. I hope the Bill goes through to the next Stage, so that we can continue to parse it in the debate.

Mark Daly (Fianna Fail)
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When is it proposed to sit again?

Lorraine Clifford-Lee (Fianna Fail)
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At 9.30 a.m. tomorrow.