Simon Coveney (Cork South Central, Fine Gael) | Oireachtas source

I am pleased to be in the House to discuss the forthcoming White Paper on defence prior to its finalisation and submission to Government. I hope this will happen in two weeks' time. First, I wish to congratulate Rear Admiral Mark Mellett, whose name was approved by Cabinet today to go for approval to the President to be the next Chief of Staff of the Defence Forces from the end of September. I thank Lieutenant General Conor O'Boyle for his singularly positive work as Chief of Staff in recent years.

Security is the bedrock on which a society's cultural, social and economic achievements are built. In a modern state defence is conceived as the ultimate guarantor of freedom. Members of the Defence Forces are called upon to undertake difficult missions and we remember those who have made the ultimate sacrifice in the service of the State, including on overseas peace support operations in support of the United Nations.

Defence policy encompasses defence of the State from armed aggression, contributions to domestic security and international peace and security. In addition, a broad range of non-security supports are provided to Departments and agencies. As such, there is a significant cross-cutting policy dimension to the White Paper on defence, and defence policy should be viewed in these broader terms. Defence policy should be afforded the appropriate level of debate and I have sought this session explicitly to outline key issues and the associated implications for defence provision in the new White Paper. It is the final part of a lengthy and comprehensive consultative process. I recognise the involvement of some colleagues opposite in that process.

As Members are aware, the White Paper on Defence 2000 was the first such White Paper in the history of the State and it has stood the test of time, providing a flexible policy framework within which defence provision has evolved in light of a dynamic security environment. It is fair to say that this policy framework has also proved sufficiently durable during successive governments. In this context I firmly believe that defence policy is an aspect of public policy where cross-party support should be sought and, if possible, achieved and I am before the House this evening in that spirit. Although I am aware that we will have differences of opinion I have no doubt that we all have the best interest of the State at heart and an interest in ensuring that the Defence Forces are fully supported in discharging the roles assigned by the Government at home and abroad.

The Green Paper on Defence, published in July 2013 by the then Minister, Deputy Alan Shatter, initiated a broad public consultation process that has contributed to the development of the draft White Paper. A total of 122 written submissions were received as part of that consultation process. There was a particular focus in many of the submissions on the State's maritime domain and the issues raised were fully considered. I thank those from Fianna Fáil and Sinn Féin and the parties for making individual submissions in that process. As a follow-up to those submissions, civil and military personnel from the Department of Defence and the Defence Forces met a range of individuals and organisations to further explore their proposals. In addition to the public consultation process, officials from the Department of Defence liaised extensively with a broad range of Departments and agencies which have 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 Partnership for Peace.

An interdepartmental group undertook a detailed security assessment which provided a basis for determining future policy requirements. The group was comprised of representatives from the Department of An Taoiseach, the Department of Foreign Affairs and Trade, the Department of Defence, including the Director of Military Intelligence, the Department of Justice and Equality and An Garda Síochána. As part of the preparations I set up an external advisory group to assist in assessing the various opportunities and challenges for defence. The advisory group is chaired by John Minihan and includes Frank Lynch, Karl Croke and Marie Cross. All four have extensive experience in foreign affairs and military and defence issues. They have played an important role in recent weeks as we have worked to finalise the White Paper.

I propose to provide a broad overview of the key issues that have arisen and to get the views of Members on these key issues. As I have already said, the White Paper has not been brought to Government yet, although I hope to arrange that in the next two weeks. In that context I emphasise that I cannot definitively state what will be in the White Paper. Ultimately, that will be a decision for Government. I note Deputy Ó Fearghaíl is smirking at that comment.

The White Paper will assess the future security environment. It will set out a policy response to security challenges and other requirements for defence, including non-security related supports to other Departments and agencies. It will consider the roles assigned to the Defence Forces and update these in light of a changed environment and changing future requirements. It will consider the implications of these requirements on defence capabilities and set out priorities in this area, including those relating to command and control, intelligence, surveillance and reconnaissance issues and required equipment. Given the importance of human resources to defence capability there will be a full chapter devoted to this subject. There will also be individual chapters dealing with the future development of the Reserve Defence Force and the Civil Defence respectively. The final chapter will deal with implementation.

Consideration of the security environment and challenges that may emerge in future will be a key component of the White Paper. As I have previously outlined, a contemporary and forward-looking assessment of the domestic, regional and global situation has been prepared by an interdepartmental group. This forms the basis of the policy response requirements.

The probability of a conventional military attack on Ireland's territory is assessed as low. However, this does not mean we can be complacent. Recent events have highlighted that the security environment can be volatile and unpredictable. New and serious conflicts have erupted on the periphery of the EU. This has challenged perceptions about the stability of the broader European region. The nature of conflict is also evolving and will continue to present new challenges as time passes.

Domestically, the Good Friday Agreement has delivered a stable peace process that commands overwhelming cross-community support. None the less, there is a real and persistent threat from groups prepared to use violence to oppose democracy and peace. While the threat from these groups to this State remains low, it is still classed as severe in Northern Ireland.

As a small state with a dependence on global trade for our economic well-being, Ireland is vulnerable to the broadening range of security threats that affect the world today. The security threats to social and economic well-being are interconnected, more diverse and less predictable than ever before. Transnational organised crime, international terrorism, drugs trafficking, people smuggling, piracy, cyber attacks and the effects of climate change do not respect national borders. The complexity and transnational nature of many of today's threats mean that no one country acting alone can adequately respond to them. In addition, the comprehensive range of policy instruments that are necessary to deal with these threats require considerable thought and consideration.

The future is uncertain and there is always scope for genuine surprises and strategic shocks. The retention of flexible and adaptable military capabilities provides a means to respond, when required, and is a practical approach to dealing with uncertainty. The deployment of explosive ordnance disposal teams to deal with improvised explosive devices at home, the deployment of troops to robust and difficult UN Chapter VII missions and the recent deployment of a Naval Service vessel to rescue migrants in the Mediterranean Sea highlight the range of tasks that can be required of the Defence Forces and lend weight to the rationale for the continued retention and development of flexible and adaptable military capabilities. A wide range of Departments and State agencies are responsible for leading and planning for the response to the threats identified in the security assessment. Membership of and engagement with national and international organisations are central to responding to the threats identified.

The publication of The Global Island: Ireland's Foreign Policy for a Changing World has confirmed that participation in overseas peacekeeping missions remains a key element of Ireland's foreign policy. It is an important dimension in meeting Ireland's international obligations as a member of the United Nations and the European Union. It is also a key factor in advancing Ireland's influence and credibility in the international arena and foreign policy interests. This will be pursued within Ireland's traditional policy of military neutrality. Deployment of Defence Forces' personnel on peace support missions will continue to be in accordance with relevant legislation which contains the requirement for Government, Dáil and UN approval, known as the triple lock.

Ireland has a long and proud tradition of participation in UN-mandated missions and peace support operations. The deployment of the Defence Forces on overseas peace support operations continues to provide an active and very tangible demonstration of Ireland's commitment to supporting the maintenance of international peace and security. This has enhanced Ireland's reputation as a peacemaker throughout the world. Building on this reputation, there is scope to develop a new International institute for peace support and leadership at the Defence Forces training centre at the Curragh. The focus of such an institute would be to address national and international needs in security education and region building in a manner that generates a comprehensive approach to conflict resolution, with a specific focus on areas where Ireland has accepted expertise.

The Defence Forces will continue to be a key constituent of the State's security architecture. They will continue to deliver a broad range of security services, including EOD responses and, on request, armed support to An Garda Síochána. The Naval Service provides unique sea-going capability for the State. It will continue to undertake a range of security and support tasks, including fishery protection in conjunction with the Air Corps. The Air Corps will also continue to provide a broad range of supports. Options to enhance co-operation among those Departments and agencies with responsibilities in the maritime domain will be explored. The defence contribution to cyber-security in support of the Department of Communications, Energy and Natural Resources’ new cyber-security strategy will also be set out.

Unlike in many other states, defence capabilities and resources are used to provide support for other State bodies in a variety of scenarios. This has significant benefits for the State in maximising the utility of resources and reducing the risk of duplication in service delivery. While the primary focus will be the retention and development of defence capabilities for security purposes, the Defence Forces will continue to provide support for Departments and State agencies across a broad range of non-security related roles. This includes both in-crisis responses to emergency matters and routine undertakings agreed between the respective Departments.

In addition to continuing to undertake the roles assigned by the Government, there will be proposals for a number of new initiatives to support economic and social development. The defence organisation, through its commitment to continuous training and education, possesses a wealth of innovative personnel who can contribute to the development of ideas, technology and processes.

There is scope for the Defence Forces to contribute further to Ireland's economic recovery through further engagement with Irish enterprise, research and education sectors. This has mutual benefits in that it provides support for Defence Forces' capability development in crisis management, while also leveraging the opportunities that may arise to support innovation, growth and jobs in Irish-based industries. A good example is evident in Haulbowline.

We are also considering a new employment support scheme with the direct involvement of the Defence Forces. The proposed scheme will be aimed at a specific group among those aged between 18 and 24 years. In particular, it is proposed to target individuals who might otherwise struggle to break out of cycles of disadvantage in which they live and who are likely to benefit from the particular programmed regime in the Defence Forces structure. It is intended to provide a highly programmed training intervention over a number of months drawing on Defence Forces' skills, capacities and facilities. I regard this as an appropriate corporate social responsibility initiative using Defence Forces' knowledge and personnel.

Having regard to all of these requirements, the White Paper will set out revised roles for the Defence Forces. It will also include roles for the Defence Forces Reserve. The White Paper will also consider future capability requirements having regard to the types of operation the Defence Forces may be required to undertake in the coming years. It will consider issues such as the ability of the different elements of the Defence Forces to operate together, known as "jointness", and issues such as high level command and control.

There are no proposals to change the existing two-brigade Army structure. The objective of the reorganisation of the Permanent Defence Force in 2012 was to design a viable organisational structure that prioritised the operational capacity of the Permanent Defence Force within a strength level of 9,500 personnel. The proposals for the reorganisation were developed by senior civil and military personnel and the recommendations for the territorial areas of responsibility and the location of brigade headquarters were assessed with due regard to operational requirements. I am satisfied that the current structures optimise the operational capacity of the Permanent Defence Force and have enabled the Defence Forces to deliver the required operational outputs, within their current strength.

On the equipment front, the immediate requirement is to ensure the Defence Forces can continue to undertake the tasks required of them. This will require the replacement of significant equipment platforms over the lifetime of the White Paper, with the replacement of a further three ships, the replacement of aircraft and decisions to be made on the armoured personnel carrier fleet. This will require significant investment over the lifetime of the White Paper. The White Paper will also set out priorities for further investment should additional funding beyond that required to maintain existing capabilities become available. There is a very detailed section in the White Paper on finance which the Members will see when it is published.

Human resources are a key component of capability and the White Paper sets out an ambitious programme in order to ensure the defence organisation can continue to meet the challenges of a changing world. Within this programme a key goal is to allow for personnel and staff across the entire Defence Forces to develop to their full potential and be recognised for this with qualifications.

The White Paper seeks to deal in an ambitious way with the challenge of gender in the Defence Forces both at home and abroad. The issue of gender is a key priority for me in terms of specialised peacekeeping work and the need for the increased participation of women across the Defence Forces generally.

I am particularly conscious of the unique nature of military service. In that context, I have specifically included a section dealing with veterans and the support the veterans organisations will receive from the Department and the Defence Forces. I also believe there is scope to reappraise the current approach to litigation in the case of those members of the Defence Forces who suffer a catastrophic injury during the course of their service. The objective will be to make the process far less adversarial than it is.

The Defence Forces Reserve has undergone significant changes in recent years and I know that many Deputies have been concerned about its continued viability. I have listened carefully to the views expressed and the White Paper will set out a range of initiatives intended to strengthen the Defence Forces Reserve. The possibility of tapping into the professional expertise within it was a recurrent theme and is one I am anxious to develop. In addition, the opportunity for members of the Defence Forces Reserve to acquire operational experience at home and perhaps overseas is another issue the White Paper will consider. The proposals, if approved, will be welcomed by all.

Civil Defence is an organisation that has delivered time and again when required to do so. It contributes to local communities throughout the country and has been a strong support in times of adversity, including during severe weather and searches for missing persons. The White Paper will seek to maintain and develop Civil Defence capabilities into the future. This will include supporting the development of new capabilities such as the remotely piloted aircraft systems recently acquired for search operations and drawing on the technical expertise available in the Defence Forces.

The defence organisation has a very proud track record of reform and innovation.

Implementation of the White Paper will require a fully collaborative approach across Government. As Members are aware, the potential security problems and threats of varying degrees of probability for which defence capabilities are required often do not appear as urgent matters in current terms. In addition, the long lead time in acquiring capabilities means that a "just-in-time" approach is simply not viable. In this context, I am bringing some innovative proposals to Government which are intended to ensure the necessary arrangements are in place, consistent with standing Exchequer budgetary processes, to provide optimal financial resources to respond to emergent challenges in the security environment and to assure foresight, flexibility, poise and overall preparedness.

I thank three individuals from my Department: Des Dowling in particular but also Robert Mooney and Stephen Hall. They have done a huge amount of work in getting this project to where it is and, it is hoped, getting Government approval having heard what people have to say and, one hopes, taking on board some of the suggestions Members may have before we finalise the document and take it to Government in probably two weeks time.

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