Following on from the general elections in November 2024, over a six-week period, Fianna Fáil (48 seats), Fine Gael (38 seats) and the Regional Independent Group (7 seats) negotiated the formation of a coalition government. On 23 January, Fianna Fáil’s leader, Micheál Martin, was nominated by the Dáil to serve as Taoiseach. On the same day, the 2025 Programme for Government (PfG) was ratified by the new Cabinet.
But what does the new Programme have to say about Europe? In the section, “Strengthening Ireland’s place in Europe and around the world”, the Programme sets out the new Government’s commitments on EU issues. However, EU initiatives also feature heavily in many other national policy themes for the next mandate. Indeed, there are more than 100 commitments within the 2025 PfG which relate to work to be done at the EU level. This Just the Facts has all the information you need to know on the new Government’s position on EU issues.
What is different about EU-related policies in this PfG and the 2020 PfG?
The 2025 PfG shifts focus from Brexit and COVID-related measures which featured heavily in the 2020 PfG, de-emphasising quota negotiations and UK waters access. While EU strategic autonomy remains a priority, the emphasis has shifted to “competitiveness,” mentioned 24 times. Climate commitments are less prominent, with fewer mentions of the European Green Deal, the “environment,” and “climate”.
New priorities include data centres and artificial intelligence, with data centre policy addressed under environmental protection. Disinformation, absent in the previous PfG, is now mentioned under a dedicated section (“Protecting our Democracy”). Defence and security receive greater focus, with increased financial and structural support. The Triple Lock legislation will be reformed while maintaining military neutrality, and co-operation on cyber security and infrastructure is highlighted.
Migration policy sees major changes following Ireland’s opt-in to the EU Pact on Migration and Asylum in 2024. The focus shifts from integration to border security, accelerated processing, and efficient returns, now under the title “Safe and Secure Communities”.
Climate and Environment
Climate objectives and renewable energy (pp. 50-58)
The PfG reaffirms certain commitments relating to European Green Deal objectives. For example, it states that the Government will deliver “actions to achieve a 51% reduction in emissions from 2018 to 2030 and net-zero emissions no later than 2050” (p. 50). The recast Renewable Energy Directive which entered into force in 2023 set a new binding renewable energy target for 2030 to a minimum of 42.5%. To this end, the PfG pledges to “achieve 80% of Ireland’s electricity generation from renewable sources by 2030” and to deliver “9GW of onshore wind, 8GW solar and at least 5GW of offshore wind by 2030” (pp. 52-53). Additionally, regarding renewable energy, there is also reference to “enhanced EU co-operation and improved European grid connectivity” (p. 138). In relation to accelerating the transition to electric transport the PfG highlights the development of a new “National EV Infrastructure Strategy which ensures EV charging is ahead of demand and in line with EU mandated obligations” (p. 78). In 2023, the EU adopted a new law to make all new cars and vans sold in Europe zero-emission from 2035.
Agriculture (p. 22 and p. 55)
When it comes to agriculture, the PfG mentions that the Government will “recognise the distinct characteristics of biogenic methane” and will “advocate for the accounting of this Greenhouse gas (GHG) to be re-classified at EU and international level” (p. 51). Biogenic methane from cattle and sheep contributes 58% of Irish agricultural GHG emissions. In terms of the EU’s Nature Restoration Law (NRL), which was approved in June 2024, the PfG commits to developing “Ireland’s Nature Restoration Plan” and ensuring that all measures under the legislation will be “completely voluntary for farmers” (p. 58 and p. 26). The Government also maintains that it will “do everything within its power to make the case at EU level to secure the retention of the Nitrates Derogation” (p. 25).
Migration
EU Pact on Migration and Asylum (pp. 122-126)
All policies related to migration in the PfG are stipulated under the section titled “Migration – A Fair but Firmer System” (pp. 122-126). A major introduction to come with the new PfG will be the introduction of a new International Protection Act to implement the EU Migration and Asylum Pact which Ireland opted into in July 2024. According to the PfG, various new domestic legislation will be enacted in 2026 to provide for “faster processing of applications, stronger border security, and a more efficient returns system” (p.123). It also states that the Government will “increase resources in the appeals system”, will “support Gardaí to step up immigration enforcement” and will ensure “anyone convicted of a serious crime can be rapidly removed from the jurisdiction” (p. 124). These measures sit alongside a myriad of other commitments. These include, reducing the use of hotels for housing asylum seekers and publishing a “national Migration Integration Strategy” (p. 125), as well as increasing fines for airlines and ferry companies that fail to ensure their passengers are carrying valid documentation to enter the country (p. 124).
Defence and Foreign Policy
Ukraine (p. 139)
The PfG emphasises Ireland’s ongoing solidarity with Ukraine. In line with EU policy on Russian aggression, the government commits to enhancing existing sanctions against Russia, advocating for Ukrainian accession to the EU and contributing to infrastructure programmes in Ukraine (p. 139).
UK (p. 142)
The PfG reaffirms the Good Friday Agreement as the blueprint for our shared island and echoes its commitment to implementing the EU-UK Windsor Framework Agreement in full, in the spirit of “rebuilding Ireland-UK relations” post-Brexit (p. 142).
Israel-Occupied Palestinian Territories (OPT) (p. 140)
The PfG emphasises expanding global support for a two-state solution through the recognition of the State of Palestine. The government underlines the importance of the application of international law and justice to all parties involved in the Israel-OPT conflict, advocating for “a meaningful interpretation of Israel’s human rights obligations under the EU-Israel association agreement…and continue to advocate for a review of the EU Trade Agreement.” Read more about the EU’s obligations in its response to the conflict in Israel, the OPT, and Lebanon in European Movement Ireland’s recent policy briefing. Commitments to progressing the Occupied Territories Bill and ongoing support for UNWRA are also included. Additionally, The PfG asserts that it will “Work with partners in the EU to introduce further sanctions against illegal settler activity in the West Bank and East Jerusalem” (p. 140).
Enhancing the capabilities of the Irish Defence Forces (pp. 144-145)
As regards to defence, the PfG focuses on the modernisation of and investment in Irish defence to “continue to co-operate with international partners in pursuit of our security interests.” It asserts that “while we strongly value our military neutrality, we are not politically neutral.” Commitments in this section will contribute to the EU defence efforts in peacekeeping, the protection of critical undersea infrastructure, cyber security, countering hybrid threats and promoting knowledge sharing. A pledge to reform Ireland’s Triple Lock legislation, while ensuring amendments are consistent with Ireland’s policy of military neutrality, is also included. (In comparison, the 2020 PfG maintained that the Triple Lock was a longstanding tradition “in line” with military neutrality). The Triple Lock is essentially a mechanism that sets out the conditions under which, with a resolution from the Dáil, more than 12 Irish troops may participate in overseas peace support operations mandated by the United Nations.
Economy
The PfG firmly states that the Government will “work to deepen the EU Single Market and create a genuine digital single market” (p. 14). Additionally, the PfG sets out the aim to work with other EU countries to protect the “principles of EU economic policy centred on competitiveness, innovation, and a level playing field” (p. 14). There are also mentions to eliminating “unnecessary bureaucracy in EU Directives and Regulations to facilitate business operations” (p. 14) and “reducing red tape” (p. 15).
The Programme commits to “advance the Savings and Investment Union” (p. 20) also known as the Capital Markets Union (CMU) to enhance investment opportunities across Europe. EU “competitiveness” is frequently mentioned in this PfG (the word itself is mentioned 24 times), as well as a specific intention to “adopt the Budapest Declaration” (p. 138), also known as the New European Competitiveness Deal, which was declared by the European Council in November 2024. Enhanced innovation is also referred to throughout the PfG (this word is mentioned 38 times), with specific mentions to EU Research and Innovation Partnerships with small and medium sized businesses, as well as maximised Horizon Europe programme engagement (p. 73).
Democracy, Equality, and Civic Engagement
Rule of Law and sanctions (p. 139)
The PfG commits to strengthening the “application and monitoring” of the rule of law across the EU and ensuring the “non-partisan application of the Rule of Law mechanism”. Additionally, it is stipulated that the Government will support sanctions against countries seeking to undermine European democracy. On the EU level, these responsibilities fall under the remit of Ireland’s new Commissioner, Michael McGrath, who holds the portfolio of Democracy, Justice, the Rule of Law and Consumer Protection. Although the EU reports that there has been improved capacity among Member States in addressing rule of law issues over the last five years, systemic concerns still remain and, in some Member States, conditions have further deteriorated. For further reading, check out our Just the Facts which looks at the tools the EU has to defend the rule of law.
Anti-SLAPP measures (p. 134)
Following the adoption of the EU Anti-SLAPP Directive in 2024, Ireland must now transpose legislation over the next two years to protect journalists and human rights defenders from judicial intimidation in the form of strategic law suits against public participation (SLAPPs). In this vein, the PfG states that the Government will pass the Defamation Bill during its mandate (p. 134) which will include safeguards against SLAPPs.
Equality, non-discrimination and social protection (p. 97-101)
Regarding equality, non-discrimination and social protection, the PfG mentions measures which have an EU dimension in many areas, including women’s rights, LGBTQI+ rights, and disability rights. In May 2024, the EU adopted a Directive to combat violence against women and domestic violence. From pp. 120-121, the PfG stipulates enhanced measures to safeguard individuals from gender-based violence, including establishing specialised judges to deal with cases of sexual and other forms of gender-based violence and the delivery of at least 280 refuge spaces by 2026.
Additionally, the PfG maintains that the Government will actively advocate for LGBTQI+ rights internationally, as well as engage in discussions on the matter in key international forums, including the EU to uphold fundamental human rights (pp. 98-99).
The PfG also communicates that the Government will implement the EU declaration on ‘Fostering Jewish Life in Europe’ which was adopted in October 2024, as well as “give effect” to the International Holocaust Remembrance Alliance (IHRA) ‘Working Definition of Antisemitism’ (p. 99). The IHRA definition is seen as by the European Commission as an “essential tool” in its work tackling antisemitism. However, there has been longstanding criticism of this definition by various human rights organisations and civil society groups who say that the definition has been used to “wrongly label criticism of the Israeli as antisemitic”.
Following the adoption of the EU Disability Card Directive in 2024, the PfG writes that the Government will “work to deliver the European Disability Card”. Ireland has 30 months from November 2024 to adopt and publish the laws, regulations, and administrative provisions necessary to comply with the Directive and 42 months to apply those measures.
Education
Erasmus Grants for Northern Irish students (p. 142)
In the spirit of our “shared island”, the PfG offers to fund students in Northern Ireland participating in the Erasmus programme in Ireland and the EU. Additionally, the PfG will “advocate for proposals that facilitate the UK’s re-entry into the Erasmus+ student exchange system”.
EU careers (p. 139)
The PfG strives to increase the number of Irish people applying for positions in the institutions of the EU. This will include “a communications campaign targeted at school leavers and graduates highlighting the opportunities available, and a partnership with third level providers to do the same” (p. 139). In this spirit, the PfG will promote foreign languages in our schools and expand the teaching of modern foreign languages in primary schools (p. 66).
Digital Policy
Disinformation and regulation (p. 148 and p. 34)
Commitments to tackle disinformation are also included in the new PfG. The Programme promises to fund a “National Counter Disinformation Strategy” (p. 134), which has been in progress since early 2023 and had been expected to be published in the last quarter of 2024. Moreover, the government will support the media regulator Coimisiún na Meán to implement the Online Safety Code and assist in the development of the EU’s Democracy Shield to combat disinformation from foreign interference (p. 148).
There are also commitments to resource and implement the new EU Online Safety Framework to protect vulnerable groups from online harm (p. 35). This “Framework” includes the Digital Services Act (DSA). Overall, the PfG aims to invest further to “make Ireland an EU centre of expertise for digital and data regulation and being a regulatory hub for companies operating across the EU Digital Single Market” (p. 34). It also states that the Government will invest in the Data Protection Commission to ensure it can deliver on its mandate (p. 122).
Additionally, the PfG mentions that the Government will “work to deliver a new EU Child Sexual Abuse Directive that protects children and young people and holds digital platforms to account” (p. 65). The PfG also mentions investing in digital skills, including basic media literacy (p. 35) through online safety education in schools and public awareness campaigns (p. 70).
Data and artificial intelligence (p. 54)
The PfG recognises that data centres have a “central role” in contributing to economic growth in Ireland (p. 14). Plans regarding data centres feature in the section “Protecting Our Environment” (p. 54), where there are mentions of enhancing data centres’ use of renewable energy sources and efficient grid usage. T
The PfG underlines Ireland’s potential to become a leader in the digital economy and artificial intelligence (AI) (p. 34). Under the EU AI Act, adopted in May 2024, measures were provided for Member States to use high-risk AI in certain instances of law enforcement. This is echoed by the PfG where it is stated that the Government will “support the Gardaí to use AI in criminal investigations subject to clear guidelines and oversight” (p. 117). Moreover, the government expresses its ambitions for Ireland to become the EU regulatory hub for companies and “an EU centre of expertise for digital and data regulation”.
Irish Presidency of the Council of the European Union
The PfG asserts that Ireland’s upcoming EU Council Presidency in 2026 presents a vital opportunity to enhance the country’s influence and reputation within the EU (p. 139). A key priority for the government will be protecting farmers and farming, particularly in relation to the new Common Agricultural Policy (CAP) (p. 23). The PfG promises to host significant EU meetings across Ireland, “ensuring the entire country benefits from the profile the Presidency brings”. Ireland last held the Council Presidency in 2013.