Paul Kehoe (Wexford, Fine Gael) | Oireachtas source

I thank the Chairman and members of the joint committee. I very much welcome this opportunity to engage with the committee on two connected processes currently being undertaken within my Department with civil and military involvement, namely, the ongoing White Paper update for 2018 and 2019 and the White Paper implementation project, which is focused on the establishment of a fixed cycle of defence reviews as a permanent feature of defence policy.

I look forward to listening to and noting the comments and observations of committee members present today. I particularly want to stress that these are new developments in our approach to defence policy. I am very much in listening mode today and I appreciate that any new ways of doing things, particularly when it comes to defence, should ideally attract broad support across the Houses. This has been a long-standing tradition which I am keen to maintain.

As members will be aware, the White Paper on Defence, which was approved by the Government in July 2015, provides the strategic and comprehensive defence policy framework for the ten-year period up to 2025. As such, the White Paper is the Government’s medium-term policy on defence. It is the second White Paper on Defence. Its predecessor, the first White Paper, dated back to 2000. The comprehensive consultation process that led to the approval of the current White Paper commenced with publication of a historic Green Paper on Defence in July 2013. This initiated a public consultation on the White Paper and in doing so it broke new ground by actively encouraging open debate and critical thinking about Ireland’s future defence policy requirements. In response to the Green Paper my Department received a total of 122 written submissions and follow-on meetings with a wide variety of stakeholders and interested parties were subsequently held.

In addition to the public consultation process, officials from the Department of Defence liaised extensively with a broad range of Government Departments and agencies with a common interest in security or which avail of the services of the Department, the Defence Forces and Civil Defence. There was also consultation with international organisations with a particular focus on international peace and security-related peace support and crisis management operations. These included the United Nations, the European External Action Service, the European Defence Agency and NATO’s Partnership for Peace.

The consultation process concluded by bringing all stakeholders together for an open policy debate, with an opportunity for those that made contributions to hear the views of a range of panellists and to debate and express their opinions. This was held in Farmleigh House in May 2015. All who attended found the event to be useful and thought provoking. In addition, a final opportunity to engage on and contribute to the White Paper then under development was afforded to Members of the Dáil and statements were taken in the House at the end of June 2015. The views of all those who contributed throughout the process were carefully considered and there is no doubt that the White Paper has benefited from having had these valuable inputs.

The policy framework set out in the White Paper is designed to be flexible and responsive. This is important, given the dynamic nature of the current security environment. It is also designed to enable the defence organisation, comprising the Department of Defence and the Defence Forces, to be adaptive to these changing circumstances and to use our resources as efficiently as possible.

It is within this context that the White Paper sets out the Government's intention to establish a process of fixed-cycle defence reviews. These are common internationally and give assurance that policy remains up to date and relevant to changing future circumstances. The White Paper specifically provides that these reviews are to have a three-year cycle, with every second review being more comprehensive in nature and, as such, would be styled a "strategic defence review". As set out in the White Paper, strategic defence reviews will commence in early 2021.

Before that happens, however, the White Paper also specifies that the first in the new cycle of reviews will be a White Paper update, which my Department commenced last July. Members will recall that I wrote to the committee last autumn to seek their views. In the interim, a considerable amount of work has progressed, but it is still relevant to obtain members' views, particularly on the long-term approach to the process of fixed-cycle reviews. I have not come to this meeting to advance any particular approach, speak to any particular element of the White Paper or argue any point in our discussion. We debate many issues at this committee and in the House and there are plenty of occasions for me to respond to particular points. This is not such an occasion, however. My approach today is simply to allow a space in which the White Paper update can take account of what committee members have to say. In conjunction with this, and most importantly for the long term, it will benefit all if we can put in place an effective, structured and systematic approach.

The White Paper represents Government policy on defence. It is not intended that the update will reopen fundamentals of defence policy that were settled when the Government approved the White Paper in 2015. These fundamentals include the fact that Ireland will continue to maintain its policy of military neutrality. The White Paper also sets out key principles regarding capability development that have resulted in the subsequent development of rolling multi-annual equipment and infrastructure plans. Developments at international level, including Ireland's decision to participate in the EU's permanent structured co-operation, PESCO, agreement remain consistent with the approach in the White Paper. The White Paper also places a strong emphasis on the development of the human resources of the defence organisation and significant work in this area is under way.

In undertaking the update, we have focused primarily on an updated security assessment and an analysis of the range of projects being undertaken by way of implementation of the White Paper. The updated security assessment will be published as part of the update, reflecting a reconsideration of chapter 2 of the White Paper. As such, it is the product of an interdepartmental and inter-agency group comprising representatives of relevant Departments and agencies, including An Garda Síochána and the Defence Forces. Such an assessment of the security environment will remain a key component of fixed-cycle reviews, as it will be used to situate appropriately the defence policy response in terms of the lead or supporting roles that defence plays.

In essence, it provides a fully considered and agreed common perspective for all elements involved in protecting the security of the State. As members will appreciate, it would be inappropriate for me to discuss the content of the assessment pending completion of all work being carried out as part of the overall update and, ultimately, its approval by the Government. As with the White Paper, the outcome will be published.

The second key strand of the update, which is well advanced at this stage, is a review of progress in the White Paper's implementation. Following publication of the White Paper, a total of 88 projects were identified to be completed over a ten-year period. From a programme management perspective, these have become 95 discrete projects, with the implementation of each being supported and monitored by a joint civil-military White Paper implementation facilitation team. As part of this strand, the review of progress with implementation has been broken into a four-stage process, involving high-level civil and military engagement. This process has involved a review of all 95 projects, with different considerations arising and being factored into the review of each, depending on its current status, that is, whether it has commenced or is now closed. Two of the four stages have now been completed while work on the final stage, the report capturing the outcomes of the reviews of each project, is under way.

Following completion of these two key strands of the update, and having regard to whatever views members may have, the next important phase of the update will be consideration of the implications of any change in the context of overall policy requirements, associated tasks, capability development and resourcing. All of this work, including that carried out to date, is being overseen by a high-level civil-military steering group that meets regularly to review progress and the overall approach. It is my intention that, when all work is finalised, the White Paper update will be brought to the Government for approval of the outcome and for a decision on any change in approach that may be required.

The second aspect of my engagement with the committee is to listen to the views of members on the White Paper implementation project that is focused on the establishment of a fixed cycle of defence reviews as a permanent feature of defence policy. In this regard, the White Paper sets out the Government's intention that these defence review processes are to be given a new standing in public management terms. The White Paper specifically provides for a new set of arrangements to ensure that a strong strategic defence planning and decision making approach is taken. I have outlined the process already under way in terms of the first White Paper update and the commitment on the part of the Government to commence a strategic defence review in early 2021.

One of the White Paper implementation projects under way in the Department of Defence is focused on developing a formalised structure, to be approved by the Government, for these fixed cycles of defence reviews. This ongoing project, which is being undertaken by a civil-military team, is principally considering the structure and processes for the future conduct of defence reviews and, in doing so, will draw from the experience gained in carrying out the current update. The project team has undertaken a broad-ranging study, including academic review and international comparisons, in order to identify the key elements that could shape the conduct of future defence reviews. When finalised, proposals in this regard will be brought to the Government for approval. Before that happens, however, it is the Government's stated intention in the White Paper to engage in a process of all-party consultation on the overall approach. This committee is an ideal forum to address that commitment.

There are a number of key elements being considered as part of the ongoing project and, subject to the committee's perspective, it is on the following questions, in particular, that I would appreciate views: whether legislative provision should be made for the conduct of fixed-cycle reviews; the extent to which the reviews should differ – for example, what should distinguish an update from a strategic defence review; the level and breadth of consultation for each; the frequency and timing of reviews; and whether, regardless of these reviews, there is a case for a continuing approach that includes provision for further White Papers and, if so, when, within the new cycle of reviews.

Having outlined the purpose of my seeking this engagement with the joint committee, and once again emphasising that my approach today is simply to take account of what committee members have to say, I look forward to listening to and considering their views on these important matters related to the White Paper on Defence.