Commission on the Public Consultation Response Template

1. Capabilities – In this regard, you may wish to consider future integrated capability development and the planning and delivery requirements to support a joint force approach in terms of new equipment, professional military education and training, maintenance and development of infrastructure, developments in military doctrine, and transformative concepts, including specialist capabilities, that prepare and support the Defence Forces for future operations.

Reserve Intelligence Support within the Defence Forces.

Rationale The aim of this submission is to propose the establishment of a Reserve Military Intelligence Corps, mirroring current structure of other Corps units within the Defence Forces at both national and Brigade levels.

The proposal outlines the establishment of two Military Intelligence Reserve Coys, a Reserve MI training Group located at the DFTC and a Reserve Specialist Research Group located at DFHQ.

It is proposed that Platoons from each Coy be regionally dispersed in order to attract a broader academic skillset, provide a vehicle for entry of highly skilled graduates to the Permanent Defence Force and provide commanders with a cohort of personnel capable of deploying in support of Brigade or Battalion operations.

Current Situation The Defence Forces exist an ever changing and dynamic operational environment. Military commanders and national decision makers are faced with an array of issues each with varying information requirements. At an operational level, commanders may need rapidly adapt to changing local, national and international situations.

The current international security environment has been variously characterised as being in a state of ‘constant competition’1. States no longer declare war on each other, as the consequences, costs and particularly the constraints and legal obligations associated with doing so are judged to be too expensive2. Synergising informational and analytic capability has never been more important.

As alluded to in the National Risk Assessment 2019, is a highly globalised open economy and therefore open to a multitude of risks. Much of our security is inextricably and directly related to the state of our economy. Many current and potential reservists

1 UK Ministry of Defence (MoD), Development, Concepts and Doctrine Centre, ‘Joint Concept Note 2/18: Information Advantage’, 2018, p. 4 2 Tanisha M Fazal, ‘Why States No Longer Declare War’, Security Studies (Vol. 21, No. 4, 2012), pp. 557–58

working across a range of sectors are in a unique position to provide insight into changes and threats across a broad range of domains including economic, socio-cultural, environmental, geopolitical, cyber, scientific, medical and technological.

Information is also becoming increasingly integrated across a myriad of digital platforms in a data rich information age3. Digital connectivity permeates every facet of modern life. Furthermore, the information landscape is no longer just an enabler, some states are using it as an instrument of power and a means of achieving potentially decisive influence on a global scale4.The information environment is has become a nexus of conflict and as such is now part of a battlespace, which is not only military in nature but impacts all aspect of society.

Consequently, the breadth and increasingly specialised nature of tasks required of the Defence Forces means that the Permanent Defence Force cannot always provide all requisite capabilities organically, nor may it have the required human skillsets due to increasing competition in the labour market.

Reserve Intelligence Support, whether in the form as a newly formed Corps or National unit, could be used to re-focus elements of the Reserve to provide a niche capability in support of wider defence and national priorities.

International Experiences.

The United Kingdom.

Within the UK Armed Forces, reservists are considered as having the capacity to contribute opportunity to contribute in a variety of ways, from infantryman to intelligence analyst, from engineer to cyber expert, from logistician to medic. And the skills gained in the military can be used to enhance the day job or to help find a new one5. Currently there are four Reserve Military Intelligence Battalions within the UKs 1 ISR Brigade. • 3 MI Bn (London) • 5 MI Bn (Edinburgh) • 6 MI Bn (Manchester) • 7 MI BN (Bristol)

Each of the MI Battalions focuses on development of core Operational Intelligence (OPINT) skills, overlaid by an understanding of actual and emerging threats and theatres of operation.

3 Reynolds, N. (n.d.) ‘Performing Information Manoeuvre Through Persistent Engagement’, p. 64. 4 GOV.UK (n.d.) Information advantage (JCN 2/18) [Online]. Available at https://www.gov.uk/government/publications/information-advantage-jcn-218 (Accessed 20 Dec 2020).

5 UK Ministry of Defence and Parliament (2012) Reserves in the Future Force 2020: valuable and valued, London, Stationery Office.

On joining a Military Intelligence Battalion all personnel undergo initial Phase 1 training to become a soldier, following which, they complete a challenging Phase 2 Intelligence training package6. Upon completion of these courses, reservists develop further skillsets in their respective Coy special to role capability–for example, 62 Military Intelligence Company based in Thiepval Barracks Lisburn, focus on Materiel and Personnel Exploitation7. 7 MI Battalion based in Bristol provide imagery analysis support to the Watchkeeper Force8. Reserve MI units in the UK also deliver military capability through on- the-job training. For example intelligence reservists from all three Services often work on active intelligence issues as part of their annual training commitment9.

Individuals selected to become Intelligence Corps Reserve officers must have passed Special to Arm (StA) selection for the relevant MI unit and be capable of securing Developed Vetting (DV)10

In addition, the Specialist Group Military Intelligence (SGMI), based at Hermitage, is a National unit also under command of 1 ISR Brigade. This group constitutes a pool of officers who are considered sufficiently expert in their own fields so as not to need to complete as much training as the remainder of the UK . SGMI recruits’ personnel primarily for their academic, scientific and/or professional skills gained from fulltime civilian employment or academic immersion in their specialist fields. Candidates will ordinarily be expected to have progressed beyond Masters Degrees and/or have secured national prominence professionally, and be members/fellows of the academic or professional bodies relevant to their specialisation. SGMI personnel are subject matter experts in scientific, technical, human domain and regional and thematic areas of high value to UK Defence Intelligence11. They are required to complete 16 days annual continuous training, with the option to complete up to 32 days12.

Separately, The Joint Cyber Reserve Force (CRF) is part of the Joint Forces Cyber Group which was created in May 2013 to deliver defence cyber capability13. In the Irish context, the cyber realm is within the CIS Corps.

6 https://www.army.mod.uk/who-we-are/corps-regiments-and-units/intelligence-corps/our-units/ (n.d.) Intelligence Corps Battalions [Online]. (Accessed 19 March 2021). 7 RFCA (NI) (2020) ‘Reserve Forces and Cadets Association for : Annual Report 2019 | 2020’, [Online]. Available at http://www.reservesandcadetsni.org.uk/sitefiles/resources/pdfs/rfcaannualreport2020b.pdf (Accessed 12 January 2021). 8 Watchkeeper is an intelligence, surveillance, target acquisition and reconnaissance (ISTAR) asset, that can collect, process and disseminate high quality imagery intelligence. https://www.army.mod.uk/news-and- events/news/2020/08/watchkeeper/ (n.d.) Watchkeeper [Online]. (Accessed 19 January 2021). 9 UK Ministry of Defence and Parliament (2012) Reserves in the Future Force 2020: valuable and valued, London, Stationery Office. 10 UK Ministry of Defence (2018) ‘The Reserve Land Forces Regulations’, UK Ministry of Defence [Online]. Available at https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/826095/ AC_72030_Reserve_Land_Forces_Regulations_Amendment_3.pdf. 11 Ibid. 12 Ibid. 13 GOV.UK (n.d.) Working for JFC [Online]. Available at https://www.gov.uk/government/organisations/joint- forces-command/about/recruitment (Accessed 18 January 2021).

The United States.

As far back as 1920, US land forces were reorganized into the Regular Army, a National Guard, and an Organised Reserve (Officers and Enlisted Reserve Corps). Simultaneously, intelligence was recognized as a function of the new Officers Reserve Corps and a military intelligence (MI) reserve was established within it14.

Following numerous iterations in the intervening period, an Army Reserve MI command was established in 2004. Following the events of 9/11, U.S. Reserve Component (RC) intelligence capacity has increased to meet the demands posed by ever changing and complex threats. As a consequence, the Military Intelligence Readiness Command (MIRC) is a functional command under the U.S. Army Reserve Command (USARC) and Forces Command (FORSCOM). It is comprised of seven Major Subordinate Commands and 6,200 Soldiers at 40 locations across the United States. MIRC reservists are required to complete 38 training days per year and is organized around all of the intelligence disciplines.15.

Similarly, the U.S. Navy The Navy Reserve intelligence community also contributes daily to the processing and evaluation of intelligence information. The Navy Reserve Intelligence Program has over 4,000 reservists, who serve, on average, about 80 days per year. A high degree of integration and hybridisation between reserve and active duty units exists across all branches. 16.

Europe

Many countries across Europe utilise reserve forces personnel in an intelligence capacity, however, given recent changes to the security landscape, cited above, many European states are pivoting their reserve intelligence capability towards development of cyber reserves. In a comparative study across selected European states, Baezner et al. (2020) conclude that such moves are very much dependent on national context and resource availability. However, they did find that use of reserve forces in the cyber realm counter acts the skills shortage, but that the use of reserves in this way was “very much a work in progress”17.

14 Williams, Col. (Retd), G. K. (2015) ‘The Evolutions of MI in the Army Reserve: An Informal and Unofficial Historical Summary’, Military Inelligence Professional Bulletin, Army Reserve and National Guard Support to Intelligence, vol. Volume 41 Number 3, no. PB 24-15-3, p. pp.15-18. 15 Zarbo, C. S. E. (2015) ‘38 Days: Maximising Military Intelligence Readiness Command.’, Military Inelligence Professional Bulletin, Army Reserve and National Guard Support to Intelligence, vol. Volume 41 Number 3, no. PB 24-15-3, pp.6-9. 16 Thie, H. and United States (eds.) (2007) Factors to consider in blending active and reserve manpower within military units, Santa Monica, CA, RAND National Defense Research Institute.

17 Baezner, M, Cordey, S and Laudrain, A (2020) ‘Study on the use of reserve forces in military cybersecurity: A comparative study of selected countries’, Center for Security Studies (CSS), ETH Zürich [Online]. Available at https://css.ethz.ch/en/services/digital-library/publications/publication.html (Accessed 14 November 2020).

2. Structures – In this regard, you may wish to consider the most effective high-level Command and Control (C2) structures within the Defence Forces to ensure an agile and balanced approach that can function across all domains at home and overseas.

Additionally, you may wish to address appropriate future force structures for the Army (including its brigade structure), the Air Corps, and the Naval Service, individually as component services and collectively as part of an integrated joint force approach.

Furthermore, you may wish to address the changing nature of reservists, which presents an opportunity for the Reserve Defence Force to further integrate and support the Permanent Defence Force through the provision of enhanced collective and specialist capability across all domains.

Proposed Structure

As previously stated, this proposal considers the establishment of two Military Intelligence Reserve Coy, a Reserve MI training Group located at the DFTC, and a Reserve Specialist Research Group located at DFHQ.

Reserve Specialist Research Group

Similar to the UK’s SGMI, the key principle of the Reserve Specialist Research Group (RSRG) would be to deliver a deep subject matter expert (SME) capability that both broadens and augments current intelligence capability in a number of domain specialisms. Outputs would focus on both strategic and operational intelligence.

RSRG personnel could provide deeper insight at the processing and analysis phases. They may also provide advice on possible implications of certain courses of action applicable during operational planning. Potential candidates to the RSRG would already possess a high level of skills and knowledge, and would have most likely have already engaged with processes in corporate and academic worlds which mirror the Intelligence Cycle

Recruitment would take place at national level. A direct entry officer pathway is proposed for new entrants, and a transfer pathway for current reservists with appropriate skillsets.

Domain specialisms may include, but not exclusively, those outlined in Table 1 below:

Table 1: Domain Specialisms Domain Subject Matter Expertise / Desired Qualification / Activity Experience Regional Specialist knowledge or NFQ level 9 / level 10, or extensive experience about regions where career /NGO experience within a the DF may be involved in future particular region. Peace Keeping or Peace Support Operations Economic Potential focus on economically NFQ level 9 / level 10, or extensive vulnerable states where the DF career /NGO experience currently operate or where they may be involved in future operations. Cultural / Cultural ethnic practices and Ethnographic nuances globally. Geospatial & Multi-spatial analysis of NFQ level 9 / level 10, or extensive Environmental infrastructure capabilities and career /NGO experience limits, such as types and conditions of lines of communication and local transportation, ports and airfields, locations for bases, local services, power and fuel supplies, water supplies, public health problems, terrain, and impact of climate on operations. Technical/ Scientific SME focus on emerging NFQ level 10, and/or extensive technologies and potential career experience impacts on the Irish Economy or DF personnel serving overseas. Cultural / Religious SME religious organisations, NFQ level 9 / level 10, or extensive religious groups and/ or career /NGO experience extremist organisations. Digital Information / SME in the online information NFQ level 8 / level 9, or extensive OSINT18 space. Assessment of career /NGO experience disinformation / misinformation. Social Media Analysis Ongoing situational analysis and NFQ level 8 / level 9, or extensive preparation of INTSUMs of the career /NGO experience social media environment Medical / Processing, analysis, and Medical Professional / NFQ Level Epidemiological interpretation of 10. foreign medical, bio-scientific, and environmental information

18 One or more of the Reserve Intelligence Corps platoons could also have a specific tasking in order to support this domain.

All of the domains cited in Table 1 have multiple sub-domains, and these layers may require the expertise of additional specialists and / or temporary support from personnel in proposed MI Coys.

Other government bodies are having an increasing role to play in the national security space. More recent additions include National Cyber Security Centre (NCSC) and the National Security Analysis Centre at the Department of the Taoiseach. Officers from the RSRG could be utilised to provide additional capability to these organisations.

Reserve Intelligence Corps.

Proposed Establishment (See Fig. 1): • 1 MI Coy within 1 Bde • 2 MI Coy within 2 Bde • MI Group - DFTC

It is proposed that detached MI Platoons from each Coy be co-located with / attached to Infantry Battalions or Permanent Defence Force corps units across 1 Bde and 2 Bde. Co-locating each MI platoon with regular units would mitigate some cost factors. Existing intelligence skillsets and experience, already inherent in PDF units could be utilised in a training and/or mentor role to the attached MI Pln.

The proposed locations are at permanent military barracks. With the exception of Finner Camp, these are in large urban centres and in close proximity to a Third Level institution. Finner is situated a short distance between two Institutes of Technology, Sligo and Letterkenny.

Potential Roles and Outputs:

In the Irish context, considering economies of scale, each proposed Reserve MI Company / Platoon could be adapted and tasked to provide specific niche products, but have a capability to pivot to real-world taskings when required.

Key roles will include: • Recruitment and identification of suitable personnel with a focus on academic institutions. • Ongoing training with focus on basic military skills, along with continuous professional development in non-specific analytical skills (cited above) and operational intelligence. • Scenario based table-top and field exercises.

Other roles & outputs may include: • Specific collection or analysis tasks within a given timeframe. • Assisting in collection and management of information during national crises situations. • Providing suitably trained personnel to assist staffing of Joint Task Force centres in order to relieve colleagues in the PDF at critical times / pressure points. • Geospatial Analysis / Geographical Information Systems. • Collation and analysis and critical infrastructure within Bde AO. • Open Source (OSINT) collection from a broad range of sources.

• Social Media Monitoring with a focus on disinformation / misinformation. • Open-Source research of foreign military operational information (orders of battle, their broad intentions and capabilities, deployments, dispositions and support) • Providing support to national information requirements.

Rather than a vertical hierarchy, personnel within MI Platoons would be encouraged to work in small teams, each with sub-teams working on specific tasking. The absence of vertical hierarchy or flat structure encourages communication among personnel irrespective of rank. While this approach may seem counterintuitive in a military environment, it avoids the loss of information that may occur in regular vertical chains of command19 It has the further advantage of bringing together a broad range of experience regardless of rank.

Training Considerations.

For new entrants, three phases of training are envisaged.

• YEAR 1 - RDF Recruit training OF-1 to OF-3 • YEAR 2 - Structured Intelligence Training delivered centrally through DFTC

Historically, Combat Intelligence / Operational Intelligence training has focused on conventional kinetic warfare scenarios. Currently a reservist’s exposure to combat / operational intelligence training exists within NCO and Officer career courses. The current RDF Standard Officers Course / Junior Command & Staff Course rightly places strong emphasis on the Military Decision-Making Process (MDMP), and exposes reserve officers to situational estimates, operational planning and decision making.

However, given the changing nature of society, the increased use of non-kinetic / hybrid warfare and the weaponization of information20, Ryan (2015) asserts that continuous professional development for all potential MI personnel should have non-specific analytical skills at its core. Recent developments in Crimea, the colour revolutions of the Middle East and the rise of ISIS in Syria cannot be accounted for in training which has as its primary focus fictional soviet era force structures. 21

Ryan further asserts that critical thinking, logic, heuristics, psychology of analysis, statistical methods, mathematics (especially probability calculations) and data skills all constitute core skills. These skills, or the basis thereof, are readily available among undergraduate, post-graduate students and educational professionals. Likewise, many Small Medium Enterprises (SMEs) and Multinational Companies (MNCs) provide possible avenue for recruitment.

19 Sanchez, R. (2019) ‘Exclusive: Inside access to Israel’s secretive cyber spy agency - which headhunts recruits at 16’, The Telegraph, 16th June [Online]. Available at https://www.telegraph.co.uk/technology/2019/06/16/inside-israels-secretive-cyber-spy-agency-helping-fuel- tech/ (Accessed 03 March 2021). 20 https://www.gov.ie/en/publication/a519cf-white-paper-on-defence-update-2019/ (n.d.) White Paper on Defence: Update 2019 [Online]. (Accessed 03 February 2021). 21 Ryan, S. (2015) Finding the Right Answer: Adapting Military Intelligence to the Information Age (2015) RUSI. Available at: https://rusi.org/publication/rusi-journal/finding-right-answer-adapting-military-intelligence- information-age (Accessed: 19 March 2021).

3. Staffing – In this regard you may wish to consider the HR policies that support the requirement for an agile and adaptive modern military force. You may wish to consider issues such as recruitment and retention, organisational culture and values, gender and diversity, career progression, and industrial relations machinery.

Recruitment & Personnel It is envisaged that the main effort for recruitment to both the proposed MI Corps and RSRG would be in Third Level Institutions, SMEs and Multinational Companies.

Recruitment of individuals at third level could be incentivised through a system of college credits. Similarly, employers could be incentivised through tax breaks and / or enhanced productivity through transferable skills.

For current Reserve personnel who may wish to transition into MI, a modular Intelligence training course suitably adapted from current syllabi could delivered over the course of weekends and two-week blocs. It is well documented that the current age profile of many reservists is in the upper age cohorts. However, despite many challenges faced, this cohort of predominantly Officers and NCOs have demonstrated committed and steadfast service in keeping with core Defence Forces values.

Because of age, this cohort will most likely not be deployable on overseas service. Given that they already possess a reasonable level of military skills, knowledge and experience, they may be best suited to filling initial positions within MI Coys.

Benefits, Opportunities and Challenges.

Benefits to the Defence Forces • A Reserve MI structure, with focused Platoon specialisms could act as a incubator to provide highly skilled critical thinkers the Permanent Defence Force. • Individuals with existing specialist civilian skills & expertise are more cost effective and provide higher levels of readiness. • Purposed Reserve MI Officers / NCOs may add value to military education. Using a train- the-trainer approach, these reservists could be utilised to brief or train colleagues in the Permanent Defence Force in relevant specialisms. • Building networks and relationships between the Defence Forces and a wider range academic institutions strengthens the perceived role of the DF in society, most notably among younger age cohorts. • Attached Reserve MI platoons can provide Unit Commanders with a blended military- civilian analytical skillset and capability to support field exercises and operations. • Personnel within a locally formed MI Pln would by their nature possess a high level of inherent local knowledge.

Benefits to the Reservist • The combination of skills, knowledge and training obtained both through reserve career courses and Intelligence training, experience would provide an individual reservist with highly transferable and marketable skills sought by employers. Such skills include critical thinking, planning, research and presentation skills.

Opportunities. • Enhanced links with a broader range of academic institutions22. • Increased networking between the Defence Forces, academia and industry. • Further enhancement of Defence Forces profile and footprint within Irish society. • Identification of

Challenges Keene (2015), put forward four challenges facing recruitment and retention of ‘the right people’.23 He asserts that the reputation of MI depends very much on accuracy of analysis, and therefore finding the right people is essential, especially in the case of proposed Specialist Research Group.

In the case of RSRG, a second challenge would be to successfully recruit ‘that individual’ may prove challenging. Even though many recruits to the RDF are not primarily motivated by pay, where there is a close overlap between the functions of their civilian career and their work as a Reservist, individuals may be dissuaded. However, a potential recruit may be rewarded a direct entry rank commensurate with their civilian post.

A third challenge is security clearance. Given the potentially sensitive nature of subject matter content, candidates to the proposed Specialist Research Group may require a higher degree of vetting. The ‘right person’ in terms of subject expertise may not be able to obtain security clearance for varying reasons.

A key challenge across the wider Defence Forces is retaining the expertise. Initially potentially valuable expertise may be lost from the time of application and to attestation. Keene alludes to a study of reservists in the UK where “administrative blunders” in the initial recruitment phases were cited as reasons for loss of potential expertise.

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22 Note: The Defence Forces currently has strong relationships with Maynooth University and Carlow IT 23 Keene, S. D. (2015) ‘The Effective Use of Reserve Personnel in the US Military’, p. 64.

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