Public Consultation: Commission on the Defence Forces

The Commission on the Defence Forces public consultation commenced on 22 January 2021, and over 500 written submissions were received by the closing date of 19 March 2021. A small number of submissions were received after the closing date and were also taken into account by the Commission.

Initially, the Commission is publishing submissions received from Government departments and agencies, representative associations and trade unions, political parties and public representatives, business and interest groups, and academics. Submissions from individuals are still being processed, and will be published at the earliest opportunity.

You can see the currently published submissions here.

The Commission on the Defence Forces has been tasked by Government to undertake a comprehensive review of the Defence Forces and to report on its recommendations by the end of 2021. As part of its work, the Commission is conducting a public consultation and invites your views.

In the context of the current security environment and the roles of the Defence Forces as assigned by Government to the Defence Forces, and having regard to the detailed Terms of Reference assigned to the Commission on the Defence Forces by Government, you are invited to make a submission to the Commission under any or all of the four following headings:

1. Capabilities

2. Structures

3. Staffing

4. Any other comments in relation to the Defence Forces having regard to the Commission’s Terms of Reference

Your submission can be as brief as you wish but, in any event, should not exceed 5,000 words in total. A response template is attached.

The formal consultation process has been extended until 19 March 2021 and submissions are welcome from any interested parties. Using the response template, you are invited to email your submission to info@codf.gov.ie or alternatively to send it by post to:

Please note that submissions received will not be responded to, but their receipt will be acknowledged. Submissions will be collated with a view to informing the deliberations of the Commission on the Defence Forces. Personal, confidential or commercially sensitive information should not be included in your submission. All submissions will be subject to Freedom of Information and Data Protection legislation. Following the closing of the consultation period, submissions may be made available on the website of the Commission on the Defence Forces, but individuals’ names will not be disclosed.

The current White Paper on Defence approved by Government in 2015 provides the strategic and comprehensive defence policy framework for the period up to 2025. The White Paper at the outset sets out a comprehensive and forward looking assessment of the dynamic security environment which provides the context for the government’s defence policy response.

The White Paper Update 2019 includes an update of the security environment assessment in order to provide an overview of key developments and, in particular, to note changes that occurred since the White Paper was published in 2015.

The relevant chapter of the White Paper Update 2019 can be accessed here.

The roles of the Defence Forces, as set out in the White Paper on Defence 2015, are as follows:

• to provide for the military defence of the State from armed aggression
• to participate in multi-national peace support, crisis management and humanitarian relief operations in accordance with government direction and legislative provision
• to aid the civil power – meaning in practice to assist, when requested, An Garda Síochána, who have primary responsibility for law and order, including the protection of the internal security of the State
• to contribute to maritime security encompassing the delivery of a fishery protection service and the operation of the State’s Fishery Monitoring Centre, and in co-operation with other agencies with responsibilities in the maritime domain, to contribute to a shared common maritime operational picture;
• to participate in the Joint Taskforce on Drugs interdiction
• to contribute to national resilience through the provision of specified defence aid to the civil authority (ATCA) supports to lead agencies in response to major emergencies, including cyber security emergencies, and in the maintenance of essential services, as set out in MOUs and SLAs agreed by the Department of Defence
• to provide a Ministerial air transport service (MATS)
• to provide ceremonial services on behalf of Government
• to provide a range of other supports to government departments and agencies in line with MOUs and SLAs agreed by the Department of Defence, for example search and rescue and air ambulance services
• to contribute to Ireland’s economic wellbeing through engagement with industry, research and development and job initiatives, in support of government policy
• to fulfil any other tasks that Government may assign from time to time

Roles of the Reserve Defence Force (RDF):

• to augment the PDF in crisis situations
• to contribute to state ceremonial events

In December 2020, the government approved the establishment of a Commission on the Defence Forces in accordance with the commitment given in the Programme for Government, and provided the following Terms of Reference for the Commission:

In addressing the detailed tasks as provided for in its Terms of Reference, the Commission will have regard to immediate requirements while also seeking to develop a longer term vision for beyond 2030. This is against a backdrop of the high-level Defence goal which is to provide for the military defence of the State, contribute to national and international peace and security and fulfil all other roles assigned by Government.

This fits within the broader context of the protection of Ireland’s defence and security interests nationally and internationally. The Commission’s approach should aim to ensure that the Defence Forces will remain agile, flexible and adaptive in responding to dynamic changes in the security environment, including new and emerging threats (such as from climate change) and technologies.

It is understood that recommendations of the Commission may require legislative changes. In arriving at its findings and recommendations for arrangements for the effective defence of the country, the Commission will have regard to the level of funding provided by Government for Defence.

The following Terms of Reference, and the Commission’s overall approach will be guided and informed by both the White Paper on Defence 2015 and the White Paper Update 2019, which set out Ireland’s extant Defence Policy, including the current Security Environment Assessment, as set out in the White Paper Update.

The Commission will take account of Ireland’s particular defence requirements, including its strong international commitment in the overseas domain as well as the particular roles of the Defence Forces in the domestic security environment which itself continues to evolve.

The Commission will consider and recommend the appropriate structure and size of the Permanent Defence Force (PDF) and the Reserve Defence Force (RDF). This will encompass consideration of appropriate capabilities, structures and staffing for the Army, and its brigade structure, the Air Corps and the Naval Service along with the appropriate balance and disposition of personnel and structures across a joint force approach in the land, air, maritime, cyber, intelligence and space domains.

With regard to the RDF, the Commission will consider a wide range of options and will make recommendations to better leverage the capabilities of the RDF in their supports to the PDF and to make service in the RDF a more attractive option.

The Commission will examine the structures in the Defence Forces as well as the work of the White Paper Command and Control project to date. In that context, the Commission will consider the most appropriate governance and effective high-level command and control structures in the Defence Forces.

The Commission will examine the evolution of all remuneration systems and structures currently in place in the Defence Forces noting what the Programme for Government states in relation to a future Permanent Pay Review Body. Upon completion of the Commission’s work, the Minister for Defence will consult with the Minister for Public Expenditure and Reform on the establishment of a permanent pay review body, reflecting the unique nature of military service in the context of the public service.

All recommendations by the Commission or the successor body and their implementation must be consistent with national public sector wage policy.

The Commission will set out a strategic perspective on HR policies, and associated strategies, including grievance processes and consideration of appropriate structural flexibility, to fulfil the requirements of military capabilities for a more agile and adaptive Defence Forces in a manner congruent with modern society, and in light of the prevailing dynamics of the labour market, while consistent with public sector pay and personnel policy.

The Commission will consider and recommend appropriate turnover and retention approaches, having regard to work undertaken to date, and international best practice, to deliver the capabilities required of a modern military force. In addition, it will recommend approaches to recruitment, including identifying military career options that could create a more diverse, gender-balanced, flexible and responsive force, with a system of career progression to meet the recommended force structures and disposition.