Submission to Commission on Defence Forces Cllr. Frankie Keena (Westmeath Co Co) 4Th March 2021
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Submission to Commission on Defence Forces Cllr. Frankie Keena (Westmeath Co Co) 4th March 2021 Background - Historical Custume Barracks, Athlone, housed a regional military headquarters of the Defence Forces from Independence in 1922 until the 30th November, 2012. The first commander was the legendary General Sean Mac Eoin, the ‘Blacksmith of Ballinalee’. The 4th Western Brigade, prior to its disestablishment, had territorial operational responsibility for 10 counties, the five counties of Connacht, Donegal and Cavan in Ulster, and the three Leinster counties of Longford, Westmeath and Offaly. The 4th Western Brigade oversaw Defence Forces operations in the Midlands, West and Northwest of the country and had operational responsibility for 263 kilometres of the 499-kilometre border with Northern Ireland. The 2nd Eastern Brigade had operational responsibility for the remaining 236 kilometres of the Border. In December 2011 the Minister of Defence issued a Directive to the Chief of Staff that the Army would reorganise its structure from a three Brigade Army to a two Brigade Army. The Directive was issued without any prior expert military analysis of the national security implications or military operational consequences. The decision was made with no real study of the first and second order effects of the decision. A lot of those negative effects are being felt today. These consequences will be dealt with later. In 2012 the announcement of the disestablishment of the 4th Brigade was made in Dail Eireann by the then Junior Minister of Defence. Post disestablishment, the Minister ordered the Department of Defence and the Chief of Staff, that the remaining positions in Custume Barracks would be almost 1,000 personnel. This was the central message from the Minister and the Department which became their mantra. This imposed figure for Custume Barracks by Ministerial Order was in effect an interference on the issue of Defence Forces deployments, and by extension interference in its operational capacity and output, all for political expediency. Prior to this Ministerial Directive regarding the post Reorganisation strength remaining in Custume Barracks, military planners had recommended significantly less numbers that the ‘almost 1,000’ would remain in Custume Barracks as they had a national operational remit to satisfy. Decision to Close - Clarity For clarity, NO military commander, or appointment holder, of any rank, was involved or consulted prior to the Ministerial Order of December 2011. The decision on this issue was made by Ministerial Order. In the years since the decision was made, the Oireachtas and the public has been continuously misled in stating that it was the military alone who decided on what formation or units should be disbanded. Yes, the military was involved in the required decision-making Post December 2011, not Pre December 2011, as required by Ministerial Order. Had this unilateral Ministerial Order not been issued then the joint Department of Defence/Defence Forces implementation group would not have been required. The Minister set the boundaries by ordering a Brigade closure. Consequences of Brigade Closure It is a cornerstone doctrine in all militaries throughout the world that the Command and Control (C2), decision making centre of gravity is located closest to the frontline operational troops. Military decision making and oversight of military units by commanders in formation headquarters distant from the location of operational units are destined to be flawed and negatively affect operational output. In removing the 4th Brigade Headquarters in Athlone in 2012 this cornerstone military doctrine was rendered null and void. For instance, having the 28th Infantry Battalion in Donegal overseen from Dublin rather than Athlone, or the 1st Battalion in Galway overseen from Cork rather than Athlone, flies in the face of military C2 doctrine. It increased rather than decreased the distance between brigade headquarters and its constituent operational units. Since 2012, the whole 499-kilometre border with Northern Ireland in now overseen militarily from a brigade headquarters in Dublin. Prior to 2012 there 1 was a split border oversight by two brigade headquarters in Dublin and Athlone, 236 kilometres and 263 kilometres respectively. Even a non-military observer would laud the pre 2012 reality. Structure Prior to the 2012 Reorganisation there were five operational units based permanently in Dublin. Now there are only two operational units there. There has been no decrease in operational taskings in Dublin. This has resulted in daily transporting in rotation of personnel from Dundalk, Athlone and, alarmingly, Donegal, to carry out required security duties in Dublin. It is unsustainable, wasteful of budgets and resources, and most certainly not in compliance with any serious carbon footprint saving policy of this government. Added to the Dublin taskings which has the Brigade fully stretched with, the full security of the Border by just two Battalions stationed in Dundalk and at Finner Camp in South Donegal, which must also assist in Dublin, you can see if a heightened operational situation developed along or adjacent to the border with NI, a credible response could not be sustained. The Covid 19 pandemic is a salutary warming to the state that the contingency capability provide by the Defence Forces should never have been hollowed out in 2012. The negative consequences of that flawed decision had been felt since, none greater so than during the current pandemic. The total strength of a Brigade headquarters unit is seventy personnel. This number would not and did not impede operational outputs in the former 4th Brigade. In fact, it was an accelerator of operational output through its required training safety, operational audit, mentoring and oversight role of its constituent units. What did impede operational outputs was the disbandment by the 2012 Reorganisation of twelve military units, nine in Athlone, two in Dublin and one in Cork. One new one was formed in Dublin resulting in a net loss of eleven military units. Accordingly, the suggestion that the reduction from three to two brigades has somehow aided operational efficiencies is simply neither true nor defendable. Staffing Recruitment, but more importantly Retention challenges, have plagued the Defence Forces in recent years. This has resulted in parts of the three Services being unable to comply with government mandated operational requirements. Army units, in particular, would not pass the international test of ‘operational viability’ as in most units its leadership positions are less than 50% trained ‘strength in station’ occupied. The General Secretary of RACO, Commandant Conor King, stated on the record of the Oireachtas that a disproportionate number of the thousands of personnel who have retired early from army units in recent years have come from units of the 4th Brigade disbanded in the 2012 Reorganisation. Retention is a major issue for the Defence Forces. Retention in the recent years is proving a strategic threat to the operational viability of the Defence Forces. Many highly skilled and capable soldiers of all ranks are departing the Defence Forces for many reasons. One reason put forward is work life balance. Soldiers and Officers who live in a geographical area of the country and who wish to serve find that they cannot get appointments in towns like Athlone due to lack of vacancies in the senior NCO and Officer ranks due to not having a Brigade Headquarters or brigade units as prior to 2012. Soldiers and officers in the former 4th Western Brigade had career opportunities up to Brigadier General Rank. This allowed officers and soldiers stationed in its area of operations remain in its area of operations and have satisfying and fulfilling careers without continual commutes to the new Brigade Headquarters in Dublin, or units elsewhere in the state. Soldiers and Officers are spending enormous times commuting and on military salaries unable to procure housing inside the commuter belt of Dublin. Exit becomes the option. Recruitment and Retention issues are exacerbated by the decision in 2011 to close the 4th Western Brigade. The extremely poor pay and conditions for members of the Defence Forces needs an urgent review. It is only by doing this that the recruitment and retention issues can be resolved. This is turn will boost morale. 2 RDF The 4th Brigade also commanded a dispersed Reserve in its area of operations. A proven conveyor belt of recruitment of personnel to General Service Recruitment and Cadetships over the decades was from those who had previously served in the Reserve Defence Forces throughout all geographical locations of the state, urban and rural alike. The disbandment of so many Reserve units, most especially in rural Ireland, has been an accelerator of the recruitment problems. In effect, the loss of this critical conveyor belt was a ‘self-inflicted’ injury. This, coupled with the reduced footprint of the Permanent Defence Force in certain geographical regions of the countries of the former 4th Brigade, with the attendant loss of army positions and promotion opportunity where personnel and long-standing family linkages and supports, has compounded the problem. The extensive geographical footprint of the Reserve element of the Defence Forces, and the consequential benefits not alone to recruitment, also ensured that the Defence Forces had a recognised linkage and visibility in all parts of the state which acted also as a force multiplier in ‘local corporate knowledge intelligence’ of local individuals and activities that were potentially injurious to the security of the state. Capabilities: Both the Aer Corps and Naval Service are each one entity in dealing with Defence Forces Headquarters on all issues, including integrated capability developments, planning and delivery requirements to support a joint force approach in new equipment procurement, military education and training, infrastructure, doctrine development, and future Defence Forces operations. However, and crucially, that single ‘one stop shop’ for the Aer Corps and Naval Service does not exist for the Army element of the Defence Forces.