Progress update on implementation of the Commission on the Defence Forces Report
Azure Forum Strategic Insight 005/2024
The Detailed Implementation Plan for the Report of the Commission on the Defence Forces was published on 21st of November 2023. This is another step in the transformation of the Irish Defence Forces and builds on the publication of the Commission Report itself in February 2022; the Government response to the Commission Report in the form of the High-Level Action Plan which was published in July 2022; and the Early Actions Update published in March 2023.
By Brian Molloy, Head of Transformation, Irish Defence Forces
The Detailed Implementation Plan (DIP) sets out an ambitious programme of work, to move the Defence Forces military capabilities to ‘Level of Ambition 2’ (LOA 2), as defined in the Commission Report, by 2028. It provides for significant and fundamental change for the Defence Forces across the Commission’s recommendations, spanning five core areas and associated strategic objectives:
Strategic HR and Cultural Change to be delivered;
New Command and Control and Joint Structures to be established;
Services to be reformed and restructured;
Reserve Defence Force to be revitalised; and
Joint Capability Development to be implemented.
Against the reality of the current global and European threat landscape, it is more important than ever that Ireland has a well-functioning, professional and well-equipped Defence Forces. The implementation of the recommendations set out within the Detailed Implementation Plan provides the basis for ensuring that this will be achieved.
Background to the publication of the Detailed Implementation Plan
The Government appointed the Commission on the Defence Forces in December 2020 with a particular focus on considering the appropriate capabilities, structures and staffing of both the Permanent Defence Force and the Reserve Defence Force with a view to the immediate future and the uncertain period beyond 2030. The Commission published its report in February 2022 and recommended substantial changes to the Defence Forces’ capabilities, culture, high level command and control structures, HR and staffing. In July 2022, the Government published its response to the Commission Report in the form of a High Level Action Plan and approved a decision to move to LOA 2 as outlined in the Commission Report, together with a commitment to move to an annual Defence budget equivalent to €1.5 bn in January 2022 prices, by 2028 (to be agreed through the annual estimates process).
This move to LOA 2 will require an additional 2,000 personnel (civil and military) above the previous establishment bringing the total Permanent Defence Forces establishment to 11,500 supported by a revitalised Reserve Force consisting of 4,500 personnel.
The focus since the publication of the High Level Action Plan (HLAP) has been on putting in place strong foundations and structures to support the journey of transformative change across the Defence Forces. Some of the key achievements to date include:
As part of the annual estimates process, the annual defence budget increased to €1.21bn in 2022 and €1.23 bn in 2024 with an annual capital spend of €176M in each year (this represents a record capital spend provided to Defence).
Full applicable rate of Military Service Allowance paid to Private 3 Star/Able Seaman/Airman ranks with the removal of the requirement to “mark time” (i.e. not receive annual pay increments) for the first three years’ service at that rank.
Existing Sea Going allowances for Naval personnel replaced with less complex sea going duties measures with a significant increase announced to the Patrol Duty Allowance.
Extension of healthcare arrangements to enlisted personnel.
A contract awarded for an additional CN-295 aircraft.
The appointment of staff to the newly created Office of Reserve Affairs.
Inclusion and full participation of the senior on-island serving female officer at all Defence Forces Board meetings.
Roll out of mandatory ‘Gender, Diversity and Unconscious Bias’ training for all personnel commenced.
The appointment of a civilian Head of Transformation and a civilian Head of Strategic HR – both reporting directly to the Chief of Staff and both members of the Defence Forces Board.
Completion of 37 out of 38 Early Actions outlined in the High Level Action plan (in addition, significant progress has been made on the remaining action which relates to the Working Time Directive).
Building on these achievements, the Detailed Implementation Plan sets out a pathway for progressing the implementation of the recommendations set out in the Report of the Commission and the High Level Action Plan over the period to the end of 2028.
Detailed Implementation Plan within the Strategic Framework
The purpose of the Strategic Framework, published in September 2023, was to bring together into one overarching document the immediate actions to be taken to support the transformation of the Defence Forces. The Detailed Implementation Plan for the Report of the Commission on the Defence Forces and the Final Report of the Independent Review Group which examined issues relating to sexual misconduct, bullying, harassment and discrimination in the Defence Forces forms the core elements of this Strategic Framework.
The focus of the Strategic Framework is cultural above all else and the priority and urgency placed on the delivery of change, particularly within the areas of Strategic HR and Cultural change, are reflected in the timelines within the Detailed Implementation Plan. Between now and the end of 2024 this very substantial progress in the area of Strategic HR and Cultural Change will include:
Appointment of a full time senior Gender Advisor;
Implementation of new Career Progression, Talent Management and Promotion systems;
Implementation of family Friendly policies and increased remote learning opportunities;
Implementation of a female mentoring programme;
The provision of additional female specific clothing and equipment;
Removal of any gendered rules, regulations and standards viewed as unfavourable to women or those who do not fit a perceived “norm”;
Modernisation of personal appearance standards;
The removal of blanket exclusion from Organisation of Working Time Act;
Formal finalising of ICTU associate membership; and
Continued integration of dining facilities.
It is key to the transformation process that real progress is felt at all levels across the Defence Forces and this will be measured and monitored using regular surveys which will be published.
Whilst the initial focus is on the changes needed within the Strategic HR and Cultural Change area, the plan sets out the timelines for the delivery of the recommendations across all five Strategic Objectives that had been identified by the Commission.
Governance structures
Strong governance structures outlined in the High Level Action Plan have been established, including an independently chaired Implementation Oversight Group to oversee and drive progress in relation to the implementation of the recommendations and a High Level Steering Board, chaired by the Secretary General of the Department of the Taoiseach to oversee implementation of the Commission Report. Each of the recommendations within the Detailed Implementation Plan has been assigned an “owner” in the Defence Forces or in the Department of Defence at senior management level. Programme Management Offices to manage the implementation have been established (one within the Department and one within the Defence Forces) to support the delivery of the transformation programme required to implement the relevant recommendations from the report of the Commission. Additional resources (internal and external) will be allocated to ensure that each of the recommendations can be delivered in accordance with the timelines set out within the Plan.
Implementation plans ahead
The publication of the Detailed Implementation is a key milestone in the transformation programme as it provides a specific start and finish date for each of the individual recommendations from the report of the Commission on the Defence Forces. The plan is ambitious and reflects a significant commitment to effecting real and lasting positive change across the Defence Forces with a focus on ensuring that the changes start happening as soon as possible. This is reflected in the fact that already 17 of the recommendations are completed, with very substantial changes announced by the Tánaiste in 2023 in area relating to the extension of healthcare to enlisted personnel and in the pay and allowance structures. A further 37 are due for completion during 2024 and 20 more over the course of 2025.
There will be regular reporting on progress through six-monthly reports on implementation of the Strategic Framework (beginning in March 2024) and a Detailed Implementation Plan progress report published annually. Delivery of the actions set out will bring challenges but the significant progress being made to date provides confidence that the transformational change required will be delivered.
This is in no small part due to the dedication of Defence Force and Department personnel and the oversight structures, which have been put in place to support delivery.
Brian Molloy was appointed in June 2023 to the role of Defence Forces Head of Transformation. Reporting directly to the Chief of Staff, he is a member of the senior Defence Forces leadership and management team and the Defence Strategic Management Committee. He supports the Chief of Staff directly, working closely with colleagues and also with external consultants as required, to drive the transformational change that is required within the Defence Forces.
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