The elections use the Single Transferable Vote system, in which voters rank candidates in order of preference and several are elected to represent each constituency.
In its report, the Electoral Commission said the co-option process was in place “to ensure the preference of electors at the previous election continues to be reflected”.
But co-option “removes democratic choice from voters”.
“This issue is likely to be exacerbated in 2027 when both the assembly and local government elections are scheduled to take place,” it added.
The watchdog said a “substitution list” provided by candidates at the time of nomination might be one possible solution.
Stormont’s most high-profile co-optees include Deputy First Minister Emma Little-Pengelly.
She was selected by the Democratic Unionist Party (DUP) to take up former party leader Sir Jeffrey Donaldson’s seat days after his election to Stormont in 2022. He was MP for Lagan Valley and the rules rules do not allow MLAs to hold more than one role.
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