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Charities (Amendment) Act 2024

By
Paul Foley
The Charities (Amendment) Act 2024, enhances and renders more onerous the current legal regime for charities and for charity trustees. Its amendments to the Charities Act 2009 will also facilitate the introduction of financial regulations for the charities sector proportionate to the size of charities.

© Copyright Paul Foley Law June 2024: All Rights Reserved. For advice and drafting in order to comply with the Charities (Amendment) Act 2024 referred to below, please contact the firm at paul@paulfoleylaw.ie


The changes to the Charities Act 2009 (Principal Act) that arise from the Charities (Amendment) Act 2024 (New Act) will require ministerial commencement orders before they can come into operation.

This Article covers the main amendments (which are substantial) from the perspective of an affected charitable organisation and its trustees.   

Text reproduced from the Principal Act is in italics and text reproduced from the New Act setting out the changes, are in italics and shaded blue.

Charitable Purpose (section 3)

Amendment 4 in the New Act

What constitutes charitable purpose is substantially clarified. This will now include ‘the advancement of human rights’ as a new charitable purpose under section 3(1)(q)of the Principal Act.

Register of charitable organisations (section 39)

(Amendment 7 in the New Act)

Section 39 of the Principal Act, is substantially amended by Amendment 7.

S39(5) Subject to subsection (6), an application under this section shall:
  • (a) be in writing:

  • (b) in the case of an application by, or on behalf of, a charitable organisation that: (i) is established in the State or, (ii) is established in a state (other than an EEA state or the United Kingdom), or (iii) is established in an EEA state or the United Kingdom and that has a principal place of business in the State, specify the name of the charitable organisation and its principal place of business in the State,

  • (c) in the case of an application by, or on behalf of, a charitable organisation that: (i) is established in an EEA state or the United Kingdom), and (ii) does not have a principal place of business in the State, specify the name of the charitable organisation and its principal place of business in the state referred to in paragraph (i).

  • (d) specify the name, address, e-mail address and telephone number of each charity trustee,

  • (da) be accompanied by: (i) documentary proof of address for each charity trustee, and (ii) a declaration in writing made by each charity trustee, in such form as may be specified by the Authority, stating that he or she is not disqualified for the position of charity trustee under section 55.

Section 39(5)(l) of the Principal Act updates the reference to ‘vulnerable people’ in line with the National Vetting Bureau (Children and Vulnerable Persons) Act 2012. Section 39(6) is deleted. 

Amendment 7 inserts new sections 39(6A) & 39(6B) into the Principal Act, enabling the Authority to request additional information, where it is not satisfied that the requirements set out in section 39(5) are met. The text reads:

S39(6A) Where the Authority considers that an application does not satisfy the requirements of subsection (5), the Authority may by notice in writing require the applicant to provide it with specified information or documents, not later than 21 days after the date of the notice, or such longer period as the Authority may specify.

S39(6B) Where information or documents required by the Authority under subsection (6A) are not provided by the applicant within the period referred to in that subsection, or within the period as specified by the Authority, the application under this section shall be deemed to be withdrawn.

Amendment 7 (further additions) inserts sections 11A, 11B and 11C into section 39(11) of the Principal Act:

S39(11A) A registered charitable organisation shall, as soon as may be, notify the Authority in writing where:
  • (a) the charitable organisation breaches or fails to comply with a condition attached to the registration under subsection (9)(b),

  • (b) information or a particular entered in the register in accordance with subsection (7) ceases to be correct,

  • (c) information or a particular provided in an application under this section in respect of a charity trustee ceases to be correct,

  • (d) it is proposed to wind up the charitable organisation or to cease its operations, or (e) there is a resignation or appointment of a charity trustee.
S39(11B) A notification under subsection (11A) shall be in such form as may be specified by the Authority and shall be accompanied by the following particulars:
  • (a) in the case of a notification pursuant to paragraph (d) of subsection (11A), by: (i) a statement of the assets and liabilities of the charitable organisation, and (ii) particulars of any proposed transfer of the assets of the charitable organisation.

  • (b) in the case of a notification pursuant to paragraph (e) of subsection (11A), by the declaration referred to in subsection (5)(da)(ii) in respect of the appointment of a new charity trustee.
S39(11C) Without prejudice to the generality of subsection (11B), the Authority may, following a notification under subsection (11A), require the charitable organisation to provide it with specified information or documents within such period as the Authority may specify.


Certain charitable organisations deemed to be registered (section 40).

Amendment 8 in the New Act

Section 40 relates to organisations deemed registered by reason of having a CHY number prior to the formation of the register under the Principal Act. Section 40(2) as amended, enables the Authority to require ‘deemed registered’ charities to supply the same information that would be required, if they were an applicant under section 39 of the Principal Act.

Name of charitable organisation (section 42)

(Amendment 9 in the New Act)

Section 42 of the Principal Act is supplemented by the insertion of an important new section 42A. 

S42A(1) A registered charitable organisation shall make an application to the Authority in order to: (a) change its charitable purpose, or (b) amend a specified clause.

A ‘specified clause’ means a clause in the constitution relating to: (a) the objects, (b) the income and property, or (c) the winding up, of the charitable organisation (section 42A(8)).
S42A(2) An application under subsection (1) shall (a) be made in writing in such manner and form as may be specified by the Authority, and (b) contain such information as may be prescribed.

S42A(3) A registered charitable organisation shall not change its charitable purpose or amend a specified clause without the consent of the Authority and the Authority shall not give such consent if the Authority is of the opinion that:

(a) in the case of an application referred to in subsection (1)(a):(i) the proposed purpose is not a charitable purpose, or (ii) the charitable organisation has not demonstrated that it has or will have the organisational structure or expertise required to advance the proposed charitable purpose, or (b) in the case of an application referred to in subsection (1)(b), the proposed specified clause would be contrary to this Act.

S42A(4) The Authority shall, as soon as practicable after receiving an application under subsection (1), by notice in writing inform the charitable organisation of its decision and where the Authority refuses to give its consent under subsection (3), the notice shall include:

(a) the reasons for the decision, and

(b) the entitlement under section 45(1B) to appeal the decision.

S42A(5) A charitable organisation that is a body corporate that contravenes subsection (3) shall be guilty of an offence.

S42A(6) Where, in relation to a charitable organisation, there is a contravention of subsection (3), each of the charity trustees of the organisation shall be guilty of an offence.

S42A (7) This section does not apply to an education body.


Removal of charitable organisations from register (section 43)

Amendment 10 in the New Act relates to section 43 of the Principal Act. The amendment provides for additional circumstances where an organisation registered under section 39 of the Principal Act may be removed from the register.  Amongst the changes, the new sections 43(2A) and 43(2B) are important:

S43(2A) Where a charitable organisation fails to comply with a condition attached to the registration under section 39(9)(b), the Authority shall, on the specified date, remove from the register all of the information entered in relation to that organisation, and that organisation shall, thereupon, cease to be registered.

S43(2B) Where a charitable purpose is changed or a specified clause is amended in contravention of section 42A(3), the Authority shall, on the specified date, remove from the register all of the information entered in relation to that organisation, and that organisation shall, thereupon, cease to be registered.


Determination that charitable organisation to which section 40 applies no longer deemed to be registered (section 44)

Amendment 12 (Removal notice) in the New Act provide for additional circumstances, set out in a new section 44A, where an organisation registered under section 40 of the Principal Act may be removed from the register. They are not reproduced here.

References to charitable status (section 46)

Amendment 15 in the New Act updates in several places, section 46of the Principal Act. For example section 46(2) is amended and is reproduced below.

S46(2) A person (other than a registered charitable organisation or a person who is acting on behalf of a registered charitable organisation) who, in any notice, advertisement, promotional literature or any other published material, describes himself, herself or itself or his, her or its activities, in such terms as would cause members of the public to reasonably believe that he, she or it is a charitable organisation shall, subject to subsection (6), be guilty of an offence.

Section 46(7) as amended (below), will require greater uniformity in respect of the information to be included in all public documents and other publications issued by charities.  The text will read (with 46(7)(b) being deleted) as follows:

S46(7) A registered charitable organisation shall, in all public documents and such other publications as may be prescribed, including on television or the internet, state in legible characters: (a) that it is a registered charitable organisation, (b) deleted, (c) the name of the charitable organisation as it appears on the register, (d) its registration number, and (e) such other information, including the names of the charity trustees and the address of its principal office, as may be prescribed.

Duty to keep proper books of account (section 47)

Amendment 16 in the New Act updates section 47 of the Principal Act and clarifies the requirement for all charities to keep proper books of account.

Section 47(11) which says: This section does not apply to charitable organisations that are companies, is deleted and a new section 47(12) is added as follows:

S47(12) This section shall apply to a charitable organisation that is a company from the commencement of the first financial year of the company that occurs after the coming into operation of section 16 of the Charities (Amendment) Act 2024.

Annual statement of accounts (section 48)

Amendment 17 in the New Act updates section 48 of the Principal ActThese amendments will facilitate (so the draft explanatory memorandum on the Bill prior to adoption says) indicates, the introduction of essential Charity Accounting and Reporting Regulations.

Section 48(3)(a) (reproduced below) concerns the preparation of income and expenditure accounts by charities and is updated to provide for an increase in the income or expenditure threshold from €100,000 to €250,000.

The provisions in S48(6)(c) reproduced below, update the conditions under which a charity is exempt from the requirement to prepare an annual statement of accounts. Section 48 as amended is reproduced immediately below:

S48(1) Subject to subsection (3), the charity trustees of a charitable organisation that is not a company shall, in respect of each financial year, prepare a statement of accounts (in this section referred to as the “annual statement of accounts”) in such form and containing information relating to such matters as may be prescribed by regulations made by the Minister.

S48(3)(a) Where the gross income or expenditure of a charitable organisation referred to in subsection (1), in a financial year does not exceed €250,000, the charity trustees may, instead of preparing an annual statement of accounts in respect of that year, prepare an income and expenditure account in respect of, and a statement of the assets and liabilities of, the charitable organisation. (b) An income and expenditure account and a statement of the assets and liabilities of a charitable organisation prepared under paragraph (a) shall be in such form as may be prescribed by the Minister.

S48(3A) A charitable organisation that is a company shall prepare financial statements in accordance with: (a) the requirements of Part 6 of the Act of 2014, and (b) regulations made under subsection (3B).

S48(3B) The Minister may, having regard to the requirements of Part 6 of the Act of 2014 and after consultation with the Minister for Enterprise, Trade and Employment, prescribe the form and content of financial statements, additional to the requirements contained in Part 6 of the Act of 2014, to be prepared by a charitable organisation referred to in subsection (3A).

S48(6) This section does not apply (a) deleted (b) to an education body, (c) to a charitable organisation in respect of a financial year in which 2 or more of the following conditions are met: (i) its balance sheet total does not exceed €10,000, or such greater amount not exceeding €50,000 as may be prescribed; (ii) its gross income does not exceed €10,000, or such greater amount not exceeding €50,000 as may be prescribed; (iii) it has no employees, and (d)
in relation to a centre for education designated by the Minister for Education under section 10(4) of the Act of 1998.


Annual audit or examination of accounts (section 50)

Amendment 18 in the New Act updates section 50 of the Principal Act and it is reproduced below (changes in light blue).

S50(1) The accounts of a charitable organisation in respect of a financial year (in this subsection referred to as the “relevant financial year”) shall be audited not later than 9 months after the end of the relevant financial year by a qualified person if the gross income or total expenditure of the charitable organisation in:
  • (a) the relevant financial year,

  • (b) the financial year (if any) of the charitable organisation immediately preceding the relevant financial year, or

  • (c) the financial year (if any) of the charitable organisation immediately preceding the year referred to in paragraph (b), exceeds such amount as may be prescribed.
(2) The Minister shall not prescribe an amount under subsection (1) greater than €1,000,000.

(3) Subject to subsection (4), the accounts of a charitable organisation (other than a charitable organisation to which subsection (1) applies) in respect of a financial year shall, at the election of the charity trustees, either:
  • (a) be examined by an independent person approved by the Authority, being a person who has the requisite ability and practical experience to carry out a competent examination of the accounts, or

  • (b) be audited by a qualified person, not later than 9 months after the end of the financial year concerned.
(4) The Authority may give a direction to the charity trustees of a charitable organisation to which subsection (3) applies requiring that the accounts of the charitable organisation in respect of such financial year as is specified in the direction be audited by a qualified person.

(5) Where there has been a contravention of subsection (1) or the Authority is not satisfied with the manner in which the accounts of a charitable organisation to which that subsection applies have been audited, the Authority may appoint such qualified person as it considers appropriate to audit the accounts concerned.

(6) Where there has been a contravention of subsection (3) or the Authority is not satisfied with the manner in which the accounts of a charitable organisation to which that subsection applies have been examined or audited, as the case may be, the Authority may appoint such qualified person as it considers appropriate to audit the accounts concerned.

(7) The expenses incurred in the carrying out of an audit by a person appointed under subsection (5) or subsection (6) including the auditor's remuneration, shall be recoverable by the Authority as a simple contract debt in any court of competent jurisdiction:
  • (a) from the charity trustees of the charitable organisation (who shall be jointly and severally liable for those expenses), or

  • (b) from the charitable organisation concerned, where it is not practicable to recover them from the charity trustees.
(8) The Authority may give such directions as it considers appropriate, with respect to the carrying out of an examination under subsection (3)(a), to charity trustees of a particular charitable organisation or generally.

(9) Where, in relation to a charitable organisation, there is a contravention of this section the charity trustees shall each be guilty of an offence.

(10) It shall be a defence to proceedings for an offence consisting of the contravention of a requirement under this section for the defendant to prove that he or she believed on reasonable grounds that a competent and reliable person was duly charged with the duty of ensuring compliance with that requirement and was in a position to discharge that duty.

(11) A charity trustee who obstructs or fails to cooperate with a person appointed under subsection (5) or subsection (6) or who fails to give him or her such assistance as he or she may require for the purpose of carrying out an audit of the accounts of the charitable organisation concerned shall be guilty of an offence.

(12) Where, in relation to a charitable organisation, there is a contravention of a requirement in a direction under subsection (4), each of the charity trustees of the organisation shall be guilty of an offence.

(13) This section does not apply:
  • (a) deleted

  • (b) to an education body,

  • (c) to a charitable organisation in respect of a financial year in which 2 or more of the following conditions are met: (i) its balance sheet total does not exceed €10,000, or such greater amount not exceeding €50,000 as may be prescribed; (ii) its gross income does not exceed €10,000, or such greater amount not exceeding €50,000 as may be prescribed; (iii) it has no employees,

  • (d) in relation to a centre for education designated by the Minister for Education under section 10(4) of the Act of 1998.
(14) In this section “qualified person” means:
  • (a) a person who, in accordance with section 187 of the Companies Act 1990, is qualified to be appointed as a company auditor, or

  • (b) in relation to a charitable organisation that: (i) is established in an EEA state or the United Kingdom, and (ii) does not have a principal place of business in the State, a person who is qualified under the law of the state in which the charitable organisation is established to perform functions the same as or similar to those performable in the State by a person referred to in paragraph (a).

Annual reports (section 52)

Amendment 19 of the New Act amends section 52 of the Principal Act. The amendment amongst other things provides that the term ‘annual return’ will be used to describe the information required to be submitted to the Authority under section 52 of the Principal Act, rather than the term ‘annual report’. Additionally section 52(4)(a) is substantially amended (not reproduced here) and section 52(5) is deleted. 

Requirement to provide information (section 53)

Amendment 20 of the New Act relates to amendments to section 53 of the Principal Act.

Section 53(1) of the Principal Act is amended to read:

S53(1) The Authority may, by direction in writing, require a charitable organisation or a charity trustee of a charitable organisation to provide the Authority with such information as it may reasonably require to enable it to perform its functions, within the period and in the manner specified in the direction.

Section 53(2) of the Principal Act is deleted. 

Section 53(3) of the Principal Act is amended to read:

S53(3) The Authority may request the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, to provide it with such information, relating to a charitable organisation that is an education body, as the Authority may reasonably require to enable it to perform its functions.

The following sections are inserted.

S53(4) If a charitable organisation that is a body corporate fails to comply with a direction under subsection (1) it shall be guilty of an offence.

S53(5) If a charity trustee of a charitable organisation fails to comply with a direction under subsection (1) he or she shall be guilty of an offence.

S53(6) If, in relation to a charitable organisation, there is a failure to comply with a direction under subsection (1) each of the charity trustees of the charitable organisation shall be guilty of an offence.

Public inspection of annual reports, etc (section 54)

Amendment 21 in the New Act amends S54(1) and (2) of the Principal Act so that they read as follows:

S54(1) Subject to any enactment or rule of law prohibiting the disclosure of information, the Authority shall make available, on the internet or in such other manner as it considers appropriate, all annual returns and documents attached thereto that remain in its keeping in accordance with section 52(6).

S54(2) This section does not apply to: (a) a private charitable trust, or (b) an education body that is referred to in any of paragraphs (a) to (e) of the definition of education body.

Public inspection of annual reports, etc (section 54)

Amendment 22 in the New Act introduces four new sections into section 54 of the Principal Act, being sections 54A, 54B, 54C and 54D respectively. These important new sections are reproduced immediately below:

Charity trustees (S54A)

S54A(1) Subject to subsection (2), a charitable organisation shall have at least 3 charity trustees who are natural persons and a majority of those trustees shall:
  • (a) be resident in the State, an EEA state or the United Kingdom, and

  • (b) not be a connected relative of another trustee.
S54A(2) A charitable trust may have only one trustee that is a body corporate provided that the body corporate:
  • (a) is incorporated in the State, an EEA state or the United Kingdom, and

  • (b) has at least 3 directors who are natural persons and a majority of those directors who are natural persons are: (i) resident in the State, an EEA state or the United Kingdom, and (ii) not a connected relative of another director.
S54A(3) This section does not apply to an education body.

S54A(4) In this section:

‘civil partner’ has the same meaning as it has in section 2(2);

‘cohabitant’ has the same meaning as it has in section 2(2);

‘connected relative’, in relation to a person, means a child, step-child, parent, step-parent, brother, sister, spouse, civil partner, cohabitant, grandparent or grandchild, or a child of the person’s civil partner or cohabitant.

Principal duties of charity trustee (S54B)

S54B(1) Without prejudice to the duties of trustees generally and to the requirements of this Act, the duties of a charity trustee of a charitable organisation shall include the following:

  • (a) to act in good faith in what the charity trustee considers to be the best interests of the charitable organisation;

  • (b) to act honestly and responsibly in the advancement of the charitable purpose of the charitable organisation;

  • (c) to avoid any conflict between the charity trustee’s duties to the charitable organisation and the charity trustee’s other (including personal) interests;

  • (d) to exercise the care, skill and diligence which would be exercised in the same circumstances by a reasonable person having both: (i) the knowledge and experience that may reasonably be expected of a person in the same position as the charity trustee, and (ii) the knowledge and experience which the charity trustee has.

S54B(2) Where a charitable organisation is on notice that a charity trustee of the charitable organisation has committed a breach of his or her duty under subsection (1), the charitable organisation shall endeavour to remedy the consequences of that breach as soon as practicable after becoming aware of the breach.

S54B(3) A breach of duty by a charitable trustee under subsection (1) shall not of itself affect:

  • (a) the validity of any contract or other transaction, or

  • (b) the enforceability, other than by the charity trustee in breach of that duty, of any contract or other transaction by any person, but nothing in this subsection affects the principles of liability of a third party where he or she has been an accessory to a breach of duty or has knowingly received a benefit from that breach.

S54B(4) In so far as a duty of a charity trustee specified in subsection (1) corresponds to an equitable principle or common law duty of a trustee, regard shall be had to the equitable principle or common law duty in interpreting that duty and in the application of subsection (1).

S54B(5) Where the Authority is of the opinion that there has been a contravention of subsection (1) or (2), the Authority may make an application to the High Court citing paragraph (b) or (e) of section 74(1).

Guidelines and codes of conduct (S54C)

S54C(1) The Authority may issue, and from time to time revise, guidelines or codes of conduct for the purpose of the performance of its functions under this Act.

S54C(2) Guidelines or codes of conduct under subsection (1) may relate to: (a) the duties of charity trustees, (b) minimum standards for the administration and management of charitable organisations, (c) procedural requirements in relation to the occurrence of a significant event (see definition below), (d) the content of the constitution of a charitable organisation, or (e) an agreement or appointment (within the meaning of Part 6A).

S54C(3) A charitable organisation and the charity trustees of a charitable organisation shall have regard to any guidelines or codes of conduct under subsection (1).

S54C(4) The Authority shall publish any guidelines or codes of conduct in such manner and form as the Authority considers appropriate.

S54C (5) In this section, ‘significant event’, in relation to a charitable organisation, means:

  • (a) substantial damage to property,

  • (b) a substantial reduction or loss in assets, or (c) an event or situation that places the charitable organisation or its reputation at significant risk, but does not include a matter that is notifiable under section 59(1).

Register of members (S54D)

S54D(1) A charitable organisation shall keep a record of the members of the charitable organisation (in this section referred to as a ‘register of members’).

S54D(2) A register of members shall include the following information:

  • (a) the name and address of each member of the charitable organisation;

  • (b) the date on which the particulars of the member referred to in paragraph (a) are entered on the register;

  • (c) the date on which the member referred to in paragraph (a) ceases to be a member, if applicable.

S54D(3) Information in relation to a person who has ceased to be a member shall be removed from the register of members one year after that person ceases to be a member.

S54D(4) This section does not apply to an education body.

Persons disqualified for being trustees of a charitable organisation (Section 55)

Amendment 23 in the New Act provides for amendments to section 55 (Persons disqualified for being trustees of a charitable organisation) of the Principal Act. This includes updating certain eligibility criteria for a person to act as a charity trustee.

S55(1) Subject to subsection (3), a person shall cease to be qualified for, and shall cease to hold, the position of charity trustee of a charitable organisation if that person:

  • (a) is adjudicated bankrupt and such bankruptcy has not been annulled or discharged,

  • (b) is an individual who is party to an insolvency arrangement that has not ceased to have effect,

  • (c) is a company that is in the course of being wound up,

  • (d) is convicted on indictment of an offence,

  • (e) is sentenced to a term of imprisonment by a court of competent jurisdiction,

  • (ea) is convicted of a summary offence under section 39, 40, 41, 46, 47, 57, 63, 65 or 68,

  • (eb) is the subject of a declaration under section 819 of the Act of 2014, or is deemed to be subject to such a declaration by virtue of Chapter 5 of Part 14 of that Act,

  • (ec) is, or is deemed to be, the subject of an order under section 160 of the Companies Act 1990 or a disqualification order within the meaning of Chapter 4 of Part 14 of the Act of 2014,

  • (f) is prohibited, removed or suspended from being a trustee of a scheme under the Pensions Acts 1990 to 2008,

  • (g) has been removed from the position of charity trustee of a charitable organisation by an order of the High Court under section 74;

S55(1A) A person who has ceased to hold the position of charity trustee of a charitable organisation by virtue of subsection (1) (other than for the reason in paragraph (g) of that subsection) shall, as soon as practicable, notify the Authority in writing of that fact.

S55(2) A person who, by virtue of subsection (1), is not qualified, or has ceased, to be a charity trustee of a charitable organisation may, on notice to the Authority, apply to the High Court for an order that he or she may hold the position of charity trustee of a particular charitable organisation or of a charitable organisation of a particular class, and the High Court may, upon such an application, make such an order if it considers that it would be in the public interest and in the best interests of the charitable organisation concerned or charitable organisations of the class concerned for it to make such an order.

S55(3) Where the High Court makes an order under subsection (2) in relation to a person, that person may, by virtue of that order, hold the position of charity trustee of: (a) the charitable organisation to which the order relates, or (b) a charitable organisation of the class to which the order relates, but if, after the making of the order, any of the events referred to in subsection (1) (other than paragraph (a)) occurs, the order shall cease to have effect and the provisions of that subsection shall apply.

S55(4) The Authority shall establish and maintain a register of all persons who have ceased to hold the position of charity trustee of a charitable organisation by virtue of subsection (1).

S55(5) The Authority shall, from time to time, review each entry in the register established under this section and, if it becomes aware that any particular in that register is incorrect or has ceased to be correct, it shall make such alterations to that register as it considers necessary.

S55(6) The register established and maintained under this section shall be made available for inspection by members of the public at all reasonable times at the principal office of the Authority.

Obligation to disclose commission of offence to Authority (section 59)

Amendment 24 amends Section 59(3)(d) of the Principal Act, by substituting the term ‘annual report’ with ‘annual return’ to align the terminology with the amendments made to sections 52 and 54 of the Principal Act.

Investigation of affairs of charitable organisation (section 64)

Amendment 25 in the New Act establishes that under section 64 of the Principal Act, an inspector appointed under this section shall be furnished with a warrant of appointment, which can be produced for inspection. New subsection 64(3) sets out that the Authority shall notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the Authority appoints an inspector to investigate the affairs of a charitable organisation that is an education body.

Inspector's reports (Section 66)

Amendment 26 inserts a new section 66A to the Principal Act. This new section grants a statutory power to the Authority to direct that any concerns identified in a report under section 66 be addressed in a specified manner, or by way of a specified plan drafted by the charitable organisation, or both.

S66A(1) Where, on receipt of a final report under section 66(1), the Authority is of the opinion that it is appropriate to give a direction to the charitable organisation in relation to its affairs, the Authority shall by notice in writing inform the charitable organisation of:
  • (a) its opinion and the grounds for that opinion,

  • (b) the proposed measures it considers should be taken by the charitable organisation in relation to its affairs, and

  • (c) the period (being not less than 14 days from the date on which the notice is given) within which representations may be made to the Authority.
S66A(2) The Authority shall, as soon as practicable after service of a notice under subsection (1), notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the notice is served on a charitable organisation that is an education body.

S66A(3) The Authority may, after consideration of any representations made under subsection (1)(c), give a direction by notice in writing to the charitable organisation.

S66A(4) A direction under subsection (3) may:
  • (a) specify the measures to be taken by the charitable organisation in relation to its affairs by such date as is specified by the Authority, or

  • (b) require the charitable organisation to submit to the Authority a draft plan, by such date as is specified by the Authority, setting out: (i) the measures to be taken by the charitable organisation to address the concerns raised in the report under section 66(1), and (ii) the date by which the measures shall be taken.
S66A(5) A direction under subsection (3) shall state that an appeal may be brought by the charitable organisation to the Tribunal under section 45(1C) not later than 21 days after service on the charitable organisation of the direction, or such longer period as the Tribunal may, for good and sufficient reason determine.

S66A(6) The Authority shall, not later than 30 days after receiving a draft plan under subsection (4)(b), approve the plan by notice in writing to the charitable organisation, with or without modifications.

S66A(7) The Authority may, upon the application of the charitable organisation, extend the date specified under paragraph (a) or (b)(ii) of subsection (4), where the Authority is of the opinion that there is good and sufficient reason to do so and the Authority shall by notice in writing inform the charitable organisation of the date as so extended.

S66A(8) If a charitable organisation that is a body corporate fails to comply, by the relevant date, with a direction under subsection (3) or an approved plan under subsection (6) it shall be guilty of an offence.

S66A(9) If a charity trustee of a charitable organisation fails to comply, by the relevant date, with a direction under subsection (3) or an approved plan under subsection (6) he or she shall be guilty of an offence.

S66A(10) The Authority may publish a direction under subsection (3) or an approved plan under subsection (6) in such manner as it considers appropriate.

S66A(11) In this section ‘relevant date’, in relation to a direction under subsection (3) or an approved plan under subsection (6), means the later of:
  • (a) the date specified pursuant to paragraph (a) or (b)(ii) of subsection (4),

  • (b) where subsection (7) applies, the date as so extended under that subsection, or

  • (c) where an appeal is brought under section 45(1C), the day falling immediately after the expiration of the period of 21 days from the date on which the Tribunal makes a determination varying or affirming the direction in accordance with section 45(5C).

Power of Authority to require production of documents (section 68)

Amendment 27 Insertion of new sections 68A and 68B into section 68 

Appointment of authorised officer (S68A)

S68A(1) The Authority may appoint a person (in this Act referred to as an ‘authorised officer’) or more than one such person for such period and subject to such terms as the Authority may determine.

S68A(2) The Authority may, where appropriate having regard to its functions under this Act, request an authorised officer to carry out an examination of the compliance by a charitable organisation with a provision of this Act.

S68A(3) The Authority may revoke the appointment of an authorised officer appointed under subsection (1) whether or not the appointment was for a fixed period.

S68A(4) An appointment under subsection (1) ceases:

(a) if it is revoked under subsection (3), (b) if it is for a fixed period, on the expiry of that period, or (c) if the person appointed is a member of staff of the Authority, on the person ceasing to be such a member.

S68A(5) An authorised officer appointed under subsection (1) shall be furnished with a warrant of his or her appointment and when exercising a power under this Act shall, if requested by any person affected thereby, produce the warrant, or a copy of it, to that person for inspection.

S68A(6) The Authority shall notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the Authority appoints an authorised officer to carry out an examination in respect of a charitable organisation that is an education body.

Powers of authorised officer (S68B)

S68B(1) An authorised officer shall have all the powers of an inspector under section 65 in carrying out an examination under section 68A, subject to the following modifications: (a) a reference to an investigator in section 65 shall be construed as a reference to an authorised officer, (b) a reference to an investigation in section 65 shall be construed as a reference to an examination under section 68A, and (c) any other necessary modifications.

S68B(2) Following the carrying out of the examination under section 68A, an authorised officer shall make a report in writing to the Authority setting out the findings of his or her examination. (3) An authorised officer shall be independent in the performance of his or her functions.

Entry and search of premises (section 69)

Amendment 28 of the New Act extends the powers under section 69 of the Principal Act, regarding the entry and searching of premises under warrant, to include an authorised officer. It also provides that the offence provision under this section is extended to include any person who obstructs, interferes or impedes an authorised officer in the course of exercising a power conferred by a warrant.

It also extends the timeframe under section 69(2), for the retention of any books or documents obtained in accordance with a warrant, from 3 months to a period of up to 2 years.

Saving for privileged information (section 72)

Section 29 clarifies that section 72(1) of the Principal Act will apply to both inspectors and authorised officers appointed by the Authority.

Intermediate sanctions (section 73)

Section 30 amends section 73 of the Principal Act, which relates to intermediate sanctions. The amendment expands the range of circumstances in which the Authority can impose intermediate sanctions and provides for intermediate sanctions to apply to contraventions under sections 39, 40, 88D, a direction under section 51(2), 53(1) or 66A(3) or an approved plan under section 66A(6) of the Principal Act respectively.

New subsection 73(2A) provides that the Authority shall, as soon as practicable after service of a notice under subsection (2), notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the proposal concerns a charitable organisation that is an education body

Protection of charitable organisations (section 74)

Amendment 31 of the New Act amends section 74 of the Principal Act, which provides that the Authority can apply to the High Court to make an order to protect a charitable organisation. The amendment includes a new ground on which the Authority may apply to the High Court where there is no effective management or oversight of the activities of the charitable organisation by the charity trustees. This amendment, section 74(4) (g), does not apply to an education body. Changes not reproduced here.

Saver in respect of certain schemes (section 88)

Amendment 34 (Insertion of new Part 6A in the Principal Act) introduces a new Part 6A, concerning remuneration to or on behalf of, a ‘relevant person’. It consists of five new sections 88A, 88B, 88C, 88D and 88E.

New Section 88B details the specific instances where a charitable organisation may provide remuneration to, or on behalf of, a relevant person. New Section 88C provides that a charity may enter into agreements and make appointments subject to the prior approval of the Authority. New text set out below in blue.

Section 88A. In this Part:

‘agreement’ has the meaning assigned to it by section 88C(1);

‘appointment’ has the meaning assigned to it by section 88C(3);

‘public body’ means:
  • (a) a Department of State,

  • (b) a local authority within the meaning of the Local Government Act 2001,

  • (c) the Health Service Executive, (d) any other person, body or organisation established:

    • (i) by or under an enactment (other than the Act of 2014),

    • (ii) by any scheme administered by a Minister of the Government, or

    • (iii) under the Act of 2014 or a former enactment relating to companies within the meaning of section 5 of that Act, in pursuance of powers conferred by or under another enactment and financed wholly or partly by means of money provided, or loans made or guaranteed, by a Minister of the Government or the issue of shares held by or on behalf of a Minister of the Government, or

  • (e) any other person, body, organisation or group that the Minister may prescribe to be a public body for the purposes of this Part.
‘relevant person’ means, in relation to a charitable organisation:
  • (a) a member of the charitable organisation,

  • (b) a charity trustee of the charitable organisation, or

    (c) a person with whom a charity trustee of the charitable organisation has a personal connection;
‘remuneration’ means consideration, whether in cash or in kind, paid out of the property of the charitable organisation, and includes a contribution to a pension plan;

‘service’ includes the provision of a good, but does not include a function ordinarily carried out by a charity trustee of a charitable organisation.

Remuneration (S88B)

S88B(1) A charitable organisation may only provide remuneration:
  • (a) to, or on behalf of, a relevant person

    • (i) under an agreement in accordance with section 88C,

      (ii) in accordance with a court order, or

      (iii) in his or her capacity as an employee of the charitable organisation,

  • (b) to a charity trustee of the charitable organisation in respect of reasonable expenses incurred by him or her in the administration or management of the charitable organisation, or

  • (c) to a charity trustee of a charitable organisation that is an education body or a public body in accordance with an enactment other than this Act.
S88B(2) Nothing in subsection (1) shall prevent a charitable organisation that is an education body from providing funding to a relevant person who is a student of that education body in connection with his or her education.

Agreements and appointments (S88C)

S88C(1) A charitable organisation may enter into an agreement with a relevant person for the provision by the relevant person of a service to, or on behalf of, the charitable organisation for remuneration (in this Part referred to as an ‘agreement’).

S88C(2) Remuneration provided to, or on behalf of, a relevant person under an agreement shall not exceed what is reasonable and proportionate having regard to the service provided by the relevant person.

S88C(3) A charitable organisation may appoint a current employee of the charitable organisation as a charity trustee (in this Part referred to as an ‘appointment’), which appointment shall be in accordance with any regulations made under subsection (7)(a).

S88C(4) A charitable organisation shall not enter into an agreement or make an appointment:
  • (a) in contravention of the express provisions of its constitution, and

  • (b) unless the charity trustees of the charitable organisation (not counting a charity trustee who is a party to the agreement or appointment or a charity trustee who has a personal connection with a party to the agreement or appointment) are satisfied that the agreement or appointment would be in the best interests of the charitable organisation.
S88C(5) Where a charitable organisation has entered into an agreement or made an appointment in a financial year, the annual return (within the meaning of section 52) shall include a declaration that the charity trustees of the charitable organisation referred to in subsection (4)(b) are satisfied that the agreement or appointment is in the best interests of the charitable organisation.

S88C(6) Each charitable organisation shall keep a register of agreements and appointments.

S88C(7) The Minister may prescribe:
  • (a) the circumstances in which a charitable organisation (other than a charitable organisation referred to in subsection (12)) may make an appointment having regard to the requirements of different charitable organisations,

  • (b) the particulars to be included in a declaration under subsection (5), and (c) the particulars to be included in a register under subsection (6).
S88C(8) Where in relation to an agreement or appointment there has been a contravention of this Part, the agreement or appointment, as the case may be, shall be null and void.

S88C(9) Subsection (8) shall not operate to prevent a charitable organisation or a relevant person that has acted in good faith from recovering damages in respect of any loss incurred by it, him or her by virtue of an agreement or appointment to which that subsection applies.

S88C(10) A person who, in purported compliance with this section or regulations made under this section, knowingly or recklessly provides information or a particular to the Authority that is false or misleading in a material respect, or who believes any such information or particular when provided by him or her, in purported compliance with this section, not to be true, shall be guilty of an offence.

S88C(11) The charity trustees of a charitable organisation in respect of which there is a contravention of this Part or regulations made under this section shall each be guilty of an offence.

S88C(12) Subsections (5), (6) and (10) do not apply to an education body or a public body.

Permission to enter into certain agreements with charity trustees or connected persons (section 89) Amendment 35 of the New Act.

Section 89 of the Principal Act is repealed.

Power of court to grant relief from liability for breach of trust (Section 90)

Amendment 36 in the New Act

New section 90A applies an equivalent level of indemnity, as provided under the Education Act 1998, to charitable organisations that are education bodies under paragraphs (b) and (c) of that definition.

S90A(1) No person to whom this section applies, acting in good faith, shall be personally liable in any civil proceedings in respect of anything done by that person in pursuance of this Act or any regulations made under it.

S90A(2) This section applies to a member of a board (referred to in section 14(7) or 37(4) of the Act of 1998) who is a charity trustee of a charitable organisation that is an education body, referred to in paragraph (b) or (c) of the definition of education body.

Sale of Mass cards (Section 99)

Amendment 37 in the New Act repeals section 99 of the Principal Act.

Amendment 39 in the New Act contains four amendments to the Charities Act 1961 (Act). Subsection 29(4) of the Act is repealed. Section 34(2) of the Act is updated to allow for the sale of charity land for less than market value to a charity that has the same charitable purpose. Sections 53 and 54 of the Act are repealed.


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About Paul Foley Law

Paul Foley Law provides and has provided for many years applicants for investment services authorisation under MiFID II with regulatory law advice and drafting including with specific policies required for the purposes of an authorisation application.

Paul Foley Law also advises authorised MiFID II investment firms on compliance and reporting requirements with/under MiFID II, CA 2014, IFD and IFR, the EU Market Abuse Laws, the EU AI Act, GDPR and all other laws and regulations applying to investment firms.

For legal advice and drafting, contact: paul@paulfoleylaw.ie


MiFID II internal governance

Directive (EU) 2014/65 (MiFID II) (Articles 9, 16, 23 and 24 thereof), Commission Delegated Regulation (EU) 2017/565 and Commission Delegated Directive (EU) No 2017/593 together with certain EBA and joint ESMA and EBA guidelines, form the foundation for the MiFID II internal governance requirements.

IFD and IFR

However, the recently in force Directive (EU) 2019/2034 (IFD) and Regulation (EU) 2019/2033 (IFR) regime, which the EBA argue is consistent with MiFID II, established a dedicated prudential framework for investment firms. The EBA stated that the CRR/CRDIV regime, did not effectively capture the actual risks faced by the majority of EU investment firms. Hence the need for this new regime.

The IFD contains provisions on governance and remuneration set out at Arts 25 to 34 of the IFD. These Arts do not apply to small and non-interconnected firms (Art 25(1), IFD).

Internal governance 

Investment firms must have robust governance arrangements, including all of the following:

  1. a clear organisational structure with well‐defined, transparent and consistent lines of responsibility;
  2. effective processes to identify, manage, monitor and report the risks that investment firms are or might be exposed to, or the risks that they pose or might pose to others;
  3. adequate internal control mechanisms, including sound administration and accounting procedures;
  4. remuneration policies and practices that are consistent with and promote sound and effective risk management (Art 26(1) of the IFD).

When establishing these arrangements, the criteria set out in Art 28 to Art 33 of the IFD (not reproduced here) must be taken into account (Art 26(2)).

The arrangements in Art 26(1) must be appropriate and proportionate to the nature, scale and complexity of the risks inherent in the business model and the activities of the investment firm (Art 26(3)).  Par 20 of the EBA Governance Guidelines (pages 17 to 19) further specifies how to take into account criteria for the application of the proportionality principle.

In addition, Art 9(1) of MiFID II specifies that investment firms and their management bodies must comply with Art 88 (Governance arrangements) and Art 91 (Management Body) of CRDIV.

In November 2021, the EBA published guidelines on internal governance, under Art 26(4) of the IFD (EBA: final report on guidelines on internal governance under Directive (EU)2019/2034 (EBA/GL/2021/14)) which guidelines, provide guidance on the governance arrangements referred to in Art 26(1) (EBA Governance Guidelines).

In accordance with the IFD, the EBA Governance Guidelines apply to all investment firms that do not qualify as small and non-interconnected investment firms (class 3 firms) as referred to under Art 12(1) of the IFR.

Three Lines of Defence

The EBA Governance Guidelines specify in more detail the requirements under the IFD.

The business lines, as part of the first line of defence, take risks and are directly and permanently responsible for their operational management.

The independent risk management function, where established, and the compliance function form the second line of defence.

A member of the management body may be responsible for the risk management function provided that the member does not have other mandates that would compromise the member’s internal control activities and the independence of the risk management function.

The internal audit function, where established as an independent third line of defence, conducts risk-based and general audits and reviews the internal governance arrangements, processes and mechanisms to ascertain that they are sound and effective, implemented and consistently applied.

Investment firms that do not establish an independent audit function must establish other appropriate audit policies and procedures. In any case, the ultimate responsibility for audits remains with the management body (see below).

While the business needs to manage its risksthe EBA Governance Guidelines stress the responsibilities of the second line of defence (the independent risk management and compliance function) and also the third line of defence (the internal audit function).

Management body

The EBA Governance Guidelines specify that the terms ‘management body in its management function’ and ‘management body in its supervisory function’ should be understood as applying to the bodies or members of the management body responsible for that function in accordance with national law.

The EBA Governance Guidelines state that the management body should identify one of its members in line with the requirements under Article 46(4) of Directive (EU) 2015/849 (AMLD IV) to be responsible for the implementation of the laws, regulations and administrative provisions necessary to comply with AMLD IV.

Under the updated joint EBA and ESMA guidelines on suitability of the management function (ESMA35-36-2319 EBA/GL/2021/06), investment firms that do not meet all of the conditions for qualifying as small and non-interconnected investment firms under Art 12(1) of the IFR and that are neither significant nor listed should, as a general principle, have at least one independent member on the management body in its supervisory function. However, competent authorities may not require any independent directors under specific conditions foreseen in the guidelines.

Compliance function

The EBA Governance Guidelines provide that investment firms should establish a permanent and effective compliance function to manage compliance risk, and should appoint a person to be responsible for this function across the entire investment firm (the compliance officer).

The compliance function, policies and procedures should also be compliant with Art 22 of Commission Delegated Regulation (EU) 2017/565 and with also the ESMA guidelines on certain aspects of the MiFID II compliance function.

The EBA Governance Guidelines specify that where it is not proportionate to appoint a person who is dedicated only to the role of head of the risk management function (RMF), taking into account the principle of proportionality, this function can be combined with the head of the compliance function or can be performed by another senior person, provided there is no conflict of interest between the tasks performed. In any case, this person should have sufficient authority, stature and independence (e.g. head of legal).

The compliance function and, where established, the risk management function intervene as necessary to ensure the modification of internal control and risk management systems within the first line of defence.  The ESMA Guidelines On certain aspects of the MiFID II compliance function requirements provide detail and guidance on the outsourcing of the compliance function (at page 21).

Committees of the Management Body

Member States must ensure that investment firms which do not meet the criteria set out in Art 32(4)(a) of the IFD, establish a risk committee composed of members of the management body who do not perform any executive function in the investment firm concerned (Art 28(4) IFD).

Member States must ensure that investment firms which do not meet the criteria set out in Art 32(4)(a) of the IFD, establish a remuneration committee. That remuneration committee must be gender balanced and must exercise competent and independent judgment on remuneration policies and practices and the incentives created for managing risk, capital and liquidity. The remuneration committee may be established at group level (Art 33(1) IFD).

With regard to the remuneration committee, please also refer to the EBA Guidelines on sound remuneration practices under Directive (EU) 2019/2034 (EBA/GL/2021/13 of 22 November 2021).

Investment firms that are legal persons managed by a single natural person

Investment firms that are legal persons managed by a single natural person should have alternative arrangements in place which ensure the sound and prudent management of such investment firms and the adequate consideration of internal governance arrangements (par 21 of the EBA Governance Guidelines on page 19).

Where investment firms are legal persons managed by a single natural person in accordance with their constitutive rules and national laws, the references in these guidelines to a management body should be construed as applying to the single person that is responsible for implementing alternative arrangements to ensure the sound and prudent management of such an investment firm and the adequate consideration of internal governance arrangements (par 31 of the EBA Governance Guidelines on pages 21 & 22).


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