Extension of right to vote and change to qualification for membership of the Senedd: summary

The Welsh Government commissioned Thinks Insight & Strategy to undertake a review to meet the statutory requirements under section 38 of the Senedd and Elections (Wales) Act 2020. The review considers the operation and impact of provisions introduced through the Senedd and Elections (Wales) Act 2020. The review considers the extension of voting rights to 16- and 17-year-olds and qualifying foreign citizens, the extension of eligibility for qualifying foreign citizens to stand for the Senedd, and restrictions on county and county borough councillors simultaneously serving as Members of the Senedd.

The research combines a Rapid Evidence Assessment (REA), analysis of available Electoral Commission data, 10 stakeholder interviews and qualitative interviews with those affected by the reforms. The qualitative research includes 20 young people aged 16 to 21, 16 foreign citizens interviewed primarily about voting rights, 6 politically active foreign citizens interviewed about candidacy rights, and 6 councillors affected by the dual-mandate restrictions.

The research explores how the reforms are understood and experienced, their perceived impacts on democratic engagement and participation, and the barriers and enablers that shape their operation. The qualitative findings provide insight into individual experiences rather than representative estimates of impact across Wales. Available quantitative evidence is also uneven, particularly for qualifying foreign citizens and candidacy rights.

Young people: votes at 16

On election day for the 2026 Senedd election, the Electoral Commission estimated that 20,896 local government electors aged 16 or 17 were registered to vote (Electoral Commission, 2026). This figure covers all constituencies except Pontypridd Cynon Merthyr, for which data on registered 16- and 17-year-olds were not available. The figure of 20,896 therefore does not represent the total number of 16- and 17-year-olds registered to vote across Wales.

Existing evidence suggests that 16- and 17-year-olds are not necessarily less politically informed or engaged than older voters, although registration and political education remain important challenges. Previous Welsh research finds that political knowledge is relatively low across age groups, rather than being a problem specific to newly enfranchised young people. Electoral Commission data shows that 80% of 16- and 17-year-olds report being registered, compared with over 93% of those aged 25 to 44 and around 99% of those aged 55 and over. Separate pre-election estimates also identify lower registration among 16- and 17-year-olds, although these measures are not directly comparable. Among registered respondents, 78% of 16- and 17-year-olds report voting, suggesting that registration and preparation may be more significant challenges than the act of voting itself. These are self-reported figures, rather than official turnout rates.

The qualitative research helps explain how awareness, education and confidence influence whether young people exercise their right to vote. Most young people interviewed know they can vote, although some only become aware shortly before or after an election. While voting itself is generally described as straightforward, deciding who to vote for can be more difficult. Participants often feel they lack sufficient understanding of Welsh politics, the Senedd's responsibilities or the choices offered by different parties. Becoming eligible can increase interest and create a stronger sense of having a voice, but this does not always translate into participation. Family and social media are important influences that often leave young people feeling reliant on the opinions of others, while political education at school is often deemed insufficient. The findings highlight the importance of earlier, consistent and impartial political education, alongside clear practical guidance, to help young people make informed decisions independently.

Qualifying foreign citizens: voting rights

On election day for the 2026 Senedd election, the Electoral Commission estimated that 45,345 qualifying foreign nationals were registered to vote across constituencies for which data were available (Electoral Commission, 2026). Data for Gwynedd Maldwyn, Brycheiniog Tawe Nedd, and Pontypridd Cynon Merthyr were not available. The figure of 45, 345 therefore does not represent the total number of qualifying foreign nationals registered to vote across Wales.  

Existing quantitative evidence on the impact of extending voting rights to qualifying foreign citizens is limited, and there is no equivalent quantitative evidence beyond registration for this audience. Wider research identifies uncertainty about eligibility, unfamiliarity with political institutions and access to information as potential barriers to democratic participation among migrant populations. Stakeholders similarly suggest that qualifying foreign citizens may not always realise they are eligible to vote in Senedd elections, particularly given the different eligibility rules across UK elections. 

The qualitative research finds that awareness and understanding of voting rights vary, while the extension of the franchise is generally welcomed when discussed. Some participants know they can vote through registration letters or previous experience but remain unclear about which elections their rights cover or what the Senedd is responsible for. For some, having the right to vote strengthens feelings of recognition and political voice. It can affirm an existing connection to Wales and formalise a sense of belonging. Practical experiences also vary, with some finding registration straightforward and others encountering missed deadlines or uncertainty. The findings suggest that clearer explanations of eligibility, Welsh democratic institutions and political choices, alongside access to trusted information and support, could help foreign citizens participate more confidently. 

Qualifying foreign citizens: candidacy rights

There is particularly little existing evidence on the impact of extending candidacy rights to qualifying foreign citizens. Available electoral data does not establish how many eligible foreign citizens consider or pursue candidacy, or whether the reform has changed political representation. Wider research identifies barriers to political participation and standing for office, including political networks, resources and confidence, but does not establish how these affect qualifying foreign citizens specifically. Stakeholders also suggest that awareness of candidacy rights is likely to be lower than awareness of voting rights.

The qualitative research finds that candidacy rights are broadly welcomed, but awareness remains limited even among politically engaged foreign citizens. For some, eligibility strengthens feelings of inclusion and makes standing for office feel like a future possibility, although this does not necessarily translate into an intention to stand. Existing political relationships and encouragement appear important in making candidacy feel achievable, alongside practical guidance, financial support and visible role models. Some participants also identify concerns about hostility towards migrants, public scrutiny and being viewed primarily as a 'foreign candidate'. The findings suggest that extending eligibility is an important first step, but greater representation is likely to depend on wider support and opportunities to enter Welsh politics.

County and county borough councillors: dual-mandate restrictions

Existing evidence on the practical impact of dual-mandate restrictions is limited, particularly regarding political career pathways and local representation. The legislation establishes the restriction and its rationale, while stakeholder interviews identify potential implications for councillors moving into the Senedd, including vacancies, by-elections and continuity of representation. 

The councillors interviewed generally support the restriction, seeing it as a way of ensuring elected representatives can devote sufficient time to their responsibilities. Its significance varies depending on previous local practice, with some viewing it as formalising arrangements that are effectively already in place. None of those interviewed identify the restriction as a significant deterrent to standing for the Senedd, with political ambition and party support appearing more important to progression. While temporary gaps in local representation and potentially consequential by-elections are recognised as drawbacks, these are generally considered preferable to prolonged periods of 'double jobbing'. The findings suggest that managing transitions between elected roles effectively is the main practical consideration.

The available quantitative data provides some indication of the scale of registration and reported participation following the extension of the franchise, particularly for 16- and 17-year-olds. However, gaps in the data mean that it is not possible to provide a complete picture across all newly enfranchised groups. The data also cannot establish the extent to which observed patterns in registration or participation are a result of the reforms themselves or explain the factors influencing whether eligible people register or vote. Quantitative evidence is particularly limited for qualifying foreign citizens and candidacy rights, meaning that conclusions about the longer-term impact of the reforms on participation and representation cannot yet be drawn.

Overall, the qualitative findings suggest that the reforms have widened opportunities for democratic participation and representation in Wales, but extending formal rights does not necessarily lead to meaningful participation. Across young people and qualifying foreign citizens, awareness of eligibility does not always translate into understanding of the political system, confidence in making informed decisions or a sense that participation will be meaningful. The qualitative research adds to existing evidence by illustrating how these barriers are experienced in practice.

Trusted sources of information and support play an important role across audiences, although these differ. Schools, parents and social media shape young people's engagement. Family, friends and familiarity with Welsh institutions can help foreign citizens navigate voting. Political parties and established networks can make candidacy feel more achievable. The findings highlight the importance of supporting people to understand and exercise their rights, rather than focusing solely on communicating eligibility.

The reforms can also have impacts beyond observable participation, including strengthening feelings of political voice, belonging and inclusion. However, the evidence cannot yet establish whether these changes will translate into sustained voting habits or greater political representation over time. Further evidence will be important in understanding the longer-term impacts of the reforms, particularly among qualifying foreign citizens and those considering standing for the Senedd.

Report authors: Thinks Insight & Strategy

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:

Public Services and Local Government
Knowledge and Analytical Services
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: Research.PublicServices@gov.wales

Social research number: 95/2026
Digital ISBN: 978-1-80853-619-9