AUGUST 2015 White Paper on White Paper ON DEFENCE White Paper Defence AUGUST 2015 Contents Message from An Taoiseach iii Ministerial Foreword v Chapter 1 - Introduction 1 Chapter 2 - The Security Environment 11 Chapter 3 - National Security - Defence Policy Response 23 Chapter 4 - Other Policy Requirements 47 Chapter 5 - Roles of the Defence Forces 59 Chapter 6 - Capability Requirements 61 Chapter 7 - Defence Human Resources 73 Chapter 8 - The Reserve Defence Force (RDF) 95 Chapter 9 - Civil Defence 103 Chapter 10 - White Paper Implementation 109 Appendix A 120 Appendix B 121 Appendix C 122 Glossary of Acronyms 126 i ii Message from An Taoiseach I am very pleased, on behalf of Government, to present this White Paper on Defence. It sets out a long-term and forward-looking approach to defence provision. The decisions taken in this White Paper will influence the development of defence capabilities for the next decade and beyond whilst acknowledging that the future is inherently uncertain. The maintenance of such flexible and adaptable military capabilities represents a very pragmatic and appropriate approach to dealing with such uncertainty. Irish people take great pride in our Defence Forces and the contribution made by the Permanent Defence Force, the Reserve Defence Force and by Civil Defence. I have witnessed at first hand the important work that the Army, Air Corps and Naval Service undertake both at home and overseas. I am also acutely aware of the excellent work of Civil Defence as part of the local government response, in supporting communities in times of adversity. The commitment of the members of Civil Defence and the Reserve Defence Force is also testament to the continued spirit of voluntary service. The defence contribution to our domestic security, international peace and security and to a broad range of supports to government departments and agencies means that this White Paper is important to a wide range of stakeholders, who have been consulted during the development of this document. This White Paper charts a course for the continued development of capabilities across the Defence Organisation, whilst recognising that people are the key element of success. The Government are committed to ensuring that the Defence Organisation remains one in which people, both civil and military, are proud to serve. The Department of Defence continues to provide leadership on defence policy and to ensure efficient and effective defence provision. Since taking up office, the Government have made a number of decisions in order to maintain and develop the operational capacity of the Defence Forces. This White Paper is further demonstration of the Government’s commitment to ensuring that defence policy and associated capabilities offer a pragmatic and appropriate response to a highly dynamic security environment and anticipated future operational requirements. ENDA KENNY T.D. TAOISEACH iii iv Ministerial Foreword As Minister for Defence it is both a privilege and an honour to introduce a White Paper that sets out a defence policy framework and practical vision for the next ten years. From my experience as Minister the single greatest asset the Defence Forces has is its personnel. I have witnessed at first hand their operational skills and commitment both at home and overseas. The professionalism and dedication shown in a wide variety of roles has been inspiring. A career in the Defence Forces is a form of patriotism that provides an outstanding example to all of Irish Society. We are a small State and dependent on global trade for our economic well-being. Ireland is vulnerable to a broadening range of security threats that affect the world today. Such security threats are increasingly interconnected, more diverse and less predictable. No one country acting alone can adequately respond to them. This White Paper contains a comprehensive security assessment that provides the context for the defence policy response. In setting out defence policy to meet these security challenges, it builds on an all-embracing Government response and effective engagement with international organisations. In this context, it situates defence policy within the State’s broader security framework. A key goal is to ensure that Ireland retains credible military capabilities that can meet anticipated future threats to the State’s security, whilst ensuring that those capabilities remain flexible and responsive to a changing environment. Ireland has a long and proud tradition of participation in UN mandated peace support operations. The deployment of the Defence Forces on such missions 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 throughout the world. Defence capabilities and resources are also used to provide support to other state bodies in a variety of roles. This has significant benefits to the State in maximising the utility of defence capabilities and reducing the duplication of service delivery. While recognising the core functions of defence, this White Paper also sets out a framework through which defence can contribute further to our political, social and economic development. The Government value the service and contribution that members of our Defence Forces make to the State. We remember those who have made the ultimate sacrifice in the service of the State including those on overseas peacekeeping missions in support of the United Nations. The Government also recognise the contribution of the Department of Defence and the service of those volunteers in the Reserve Defence Force and Civil Defence who devote so much time in service to the State. I also acknowledge the service and contribution of our veterans and their continued active support of the Defence Forces. I am very proud to have had the opportunity to shape this White Paper on Defence, which sets out the future strategic direction for defence policy. I would like to thank all of those who supported me in its development, in particular the team in the Department of Defence and the Independent Advisory Group chaired by John Minihan. Finally I would like to acknowledge the work of my predecessor Alan Shatter, T.D. for his vision in developing the Green Paper on Defence in advance of this document. v I believe that this White Paper on Defence sets out a policy framework that will deliver the flexibility, support and modernisation needed to respond to a complex and changing environment both at home and abroad over the next decade. SIMON COVENEY T.D. MINISTER FOR DEFENCE vi vii 13 1 Chapter 1 | Introduction 1.1 Context The security of the State and its citizens is a primary responsibility of Government. It is a whole of Government concern and a broad range of government departments and agencies are assigned security responsibilities. Providing for the military defence of the State’s territory is a fundamental security requirement and responsibility for this is vested specifically in the Department of Defence1 and the Defence Forces. In a modern state, Defence2 is conceived as the ultimate guarantee of freedom. The defence contribution to security also encompasses defence inputs to domestic security, in particular in support of An Garda Síochána who have primary responsibility for protecting the internal security of the State; defence inputs to the State’s response to large scale emergencies; and defence inputs to international peace and security. In addition, defence resources are used for other non-security tasks which maximise the utility of defence assets for the benefit of the State. All of these requirements highlight the key role that the Department of Defence, the Defence Forces and Civil Defence play within the State’s security and support framework. Security is the bedrock on which a society’s cultural, social and economic achievements are built. Defence underpins Ireland’s security as well as the promotion of the State’s strategic interests in the international environment. As such, there is a significant cross-cutting policy dimension to this White Paper on Defence and Defence policy should be viewed in these broader terms. Defence policy is a manifestation of civil control3 of Defence and encompasses a number of essential components including: decisions on defence requirements and the defence contribution within a wider security framework; decisions on the use of defence assets towards non-security ends; decisions on the financial resourcing of defence and capabilities to be retained and developed; and matters relating to the administration of defence. There are many possible approaches to the provision of defence but a key consideration relates to how Ireland engages with other countries. In this context defence policy and foreign policy must be fully congruent. 1.2 New Challenges Historically and from a state perspective, the concept of national security was principally associated with defending the sovereignty of nation states. In this context, the focus of national security, for most countries, was towards external threats from hostile forces. As such, defence policy is fundamental to the well-being of the State and its citizens. Given our particular history, the threat of internal subversion of the State was also a 1 The Department of Defence comprises civil and military elements with distinct but complementary roles. Defence Forces Headquarters (DFHQ) is the military element of the Department of Defence. References to the Department of Defence in this document refer to both the civil and military elements unless otherwise qualified. 2 Other terminology used in the White Paper is as follows; the term ‘Defence’ is used to refer in a broad sense to defence provision in Ireland; “Defence Forces” refers to the military organisation; the term “Defence Organisation” refers to the Department of Defence and the Defence Forces. 3 In Ireland, civil control of Defence, including the armed forces of the State, is exercised by the Government through and by the Minister for Defence.