Most local authorities are failing to comply with legislation to safeguard the rights of Irish language speakers.
The annual report of An Coimisinéir Teanga shows that just two out of 31 councils are fully compliant with provisions in the Official Languages Act.
Public bodies are obliged to offer services through Irish for anyone who wishes to conduct their business in Irish.
An Coimisinéir Teanga investigates concerns relating to agencies that fail in this regard.
An audit of local authorities carried out in the past 12 months revealed widespread failings when it came to recorded oral announcements and the option to choose services through Irish.
The commissioner found that only Donegal and Laois county councils were fully in compliance with regulations.
Rónán Ó Domhnaill is also critical of the efforts being made by some Government departments to allow people to use Irish.
He wants a provision to ensure State employees working in Gaeltacht areas are fluent in Irish.
The report says online forms on State websites need to be altered, so Irish speakers can correctly register their data.
A total of 709 complaints were made in 2014, broadly in line with figures for previous years.
Most cases are resolved informally but formal investigations can be launched when organisations fail to adequately respond.
More than 100 complaints were made to the Office of the Commissioner about public bodies that are not covered by existing legislation.
These include the Road Safety Authority and Irish Water.
The report recommends that all newly-established public bodies be automatically covered by the Official Languages Act.