final img report - irish department of defencefile/img.pdf · page 7 of 80 2. executive summary of...

Second Report of the

Independent Monitoring Group

December 2008

Table of Contents 1. Introduction................................................................................................................5 2. Executive Summary of Conclusions and Main Recommendations...........................7 3. Terms of Reference..................................................................................................14

3.1. Approach to this review....................................................................................14 3.2. Background .......................................................................................................14

4. Informing the IMG...................................................................................................16 4.1. Review of developments and initiatives since 2004 .........................................16 4.2. Briefings and consultations with specialist personnel ......................................18 4.3. Focus Groups ....................................................................................................19 4.4. Access to and utilisation of the Defence Forces first Climate Survey..............21

5. Changing Culture: Developments 2004 - 2008 .......................................................23 5.1. Context..............................................................................................................23 5.2. Human Resource Management (HRM) ............................................................24 5.3. Equality Matters................................................................................................26 5.4. Dignity in the Workplace..................................................................................28 5.5. Internal Communications..................................................................................31 5.6. Exit Questionnaire ............................................................................................32 5.7. Changing Culture: Learning from Focus Groups .............................................33 5.8. Changing Culture: Climate Survey Findings....................................................34

6. The New Entrant: Induction and Training ...............................................................36 6.1. Entry to the Defence Forces..............................................................................36 6.2. Cadets................................................................................................................36 6.3. Apprentices .......................................................................................................37 6.4. Recruits .............................................................................................................37 6.5. New Entrant Selection ......................................................................................38 6.6. New Entrant Training .......................................................................................39 6.7. Corrective Action..............................................................................................41 6.8. Student Counsellors ..........................................................................................45 6.9. Personnel not suited to military life ..................................................................45 6.10. Review of New Entrant Training....................................................................47

7. Supporting the Individual and the Organisation ......................................................48 7.1. Designated Contact Person (DCP)....................................................................48 7.2. The Personnel Support Service (PSS): Role and Function...............................51 7.3. Independent Confidential Helpline and Counselling Service ...........................52 7.4. Chaplaincy: Role and Function.........................................................................53 7.5. Complaints Procedure.......................................................................................54 7.6. Ombudsman for the Defence Forces.................................................................56 7.7. Monitoring Training - Brigade/Formation Monitoring Team ..........................57 7.8. Company Sergeants ..........................................................................................57 7.9. Junior NCOs......................................................................................................58 7.10. Health, Safety and Welfare– structure, policy, ensuring ‘best practice’ ........58

8. Supporting the Instructor .........................................................................................59 8.1. Supporting the Instructor: Context....................................................................59 8.2. Importance of the role of the Instructor ............................................................59 8.3. Specialised Instructor Course ...........................................................................60 8.4. Handbook for Military Instructors ....................................................................61 8.5. Selection............................................................................................................61 8.6. Reward and recognition ....................................................................................63 8.7. Review of Staffing ............................................................................................64

8.8. Ongoing Training for Instructors and Equivalence of Standards .....................64 9. Career Development ................................................................................................66

9.1. Performance Appraisal Reports ........................................................................66 9.2. Access of Enlisted Personnel to Commissioned Ranks....................................66 9.3. Procedures for Selection for Promotions, Courses and Overseas.....................67 9.4. Feedback from Selection Boards ......................................................................70 9.5. Mid-Career Survey............................................................................................70 9.6. Career Development and Planning ...................................................................70

10. Continual review of Progress.................................................................................71 Appendices...................................................................................................................72

APPENDIX A - Membership of the IMG ...............................................................72 APPENDIX B - Recommendations from 2004 .......................................................73 APPENDIX C - Focus Groups & Meetings ............................................................76 APPENDIX D - DCP Confidentiality Service Charter............................................77

References....................................................................................................................78

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1. Introduction This is the Report of the Independent Monitoring Group (IMG) presented to the Minister for Defence in December 2008. This report is divided into ten Sections. For ease of reading additional material, including membership of the IMG, is included in a number of appendices. The Report is a review of progress made by the Permanent Defence Force (PDF) since the publication, in September 2004, of Response to the Challenge of a Workplace. This Report in 2008 represents the unanimous views of the IMG and includes observations and recommendations for future consideration and implementation. The IMG reviewed the PDF in its totality; what emerges applies to the Army, the Naval Service and the Air Corps. However, some specific references in relation to the Naval Service and the Air Corps are included in recognition of their differing workplace contexts. The Reserve Defence Force (RDF) forms part of the Defence Forces. However, the IMG agreed that it was not feasible to include consideration of the RDF in this review. The RDF has been engaged in a comprehensive process of re-organisation and phased improvement in training, equipment and capability. The structure of the RDF now mirrors that of the PDF. Of course, the RDF retains its status as a voluntary organisation. The IMG is aware that since 2004 the Human Resource Management (HRM) Section of the Defence Forces organised an awareness campaign, bringing various groups from the RDF together for a full briefing with relevant information and materials on the challenges of the Dignity Charter. Much has been written in the last twenty years about ‘the learning organisation’. Such a workplace would provide a supportive learning environment, with relevant strategic processes for learning and leaders and managers who model and reinforce open, learning attitudes. Such a workplace would attract and keep personnel of excellence with the ability to create, acquire and transfer knowledge and skills. The Defence Forces, especially in the last four years, score very highly on the benchmark as a ‘learning organisation’. Their concrete strategic approaches challenge other businesses and organisations in Ireland. In a recent interview the Chief of Staff stated: ‘These periods of concurrent change have proved that our people can cope admirably and are not afraid of the challenges currently in process, or of what the future will bring.’1 The IMG set out to consider all material and evidence available as to the impact of the changes introduced. Developments in the wider environment were also to be assessed including, for example, EU requirements in the areas of Health, Safety and Welfare. 1 Challenge, change and Chad. Interview with Lt Gen Dermot.Earley. In SIGNAL, Summer 2008, pp.8-15.

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The IMG notes that organisational developments within the PDF since 2004 are a tribute to the vision and work of senior management. At the same time no significant or lasting change happens without the commitment and input of all personnel. Whilst acknowledging the contributions of all members of the Defence Forces, the IMG wishes to encourage continual growth and development in the context of the challenges of military life.

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2. Executive Summary of Conclusions and Main Recommendations This unanimous Report of the Independent Monitoring Group (IMG) presents a review of progress made by the Permanent Defence Force (PDF) since 2004 when they faced a challenge of cultural change within the Organisation. The IMG recognises that a military organisation differs from all other workplaces and that the human resource management challenge to balance the essential ‘chain of command’ with human rights is unique. The Defence Forces has endeavoured to implement the main recommendations made by the IMG four years ago. The emphasis of those recommendations was on improving human resource management and workplace culture including dealing with the issues of bullying, harassment and sexual harassment. Changing Culture: Developments 2004 - 2008 In 2008 the IMG acknowledges that the Human Resource Management (HRM) Section has made impressive progress, working with the Directorate of Administration, the Directorate of Training, the Department of Defence and the men and women of the Defence Forces: - Comprehensive HRM Strategy, 2006-2010 was published in July 2006 - A programme on ‘Effective Interpersonal Skills for Leaders’ was introduced in

order to apply best practice to the HRM activities of the Defence Forces - All personnel in the Defence Forces may now access information held in personal

files without recourse to the FOI Act - Participation in the FÁS Excellence Through People (ETP) Award by twenty-one

Units/Formations to date - Recognition of the Cadet School by the ETP Award as being at ‘the leading edge

of HR best practice in Ireland’ In 2008 the IMG acknowledges that the Defence Forces has made progress on equality matters. In 2004 the first Equality Officer was appointed and equality, diversity and equal status policies are now in place to inform continuing improvements. In this regard the IMG recognises the enormity of the task of relevant regulatory reform. Progress has been slow since 2004 although the overall strategic approach is positive. The opportunity is being used to encompass a full re-write of the regulations and administrative instructions. This comprehensive approach is a slower task than simply making the amendments recommended in 2004. In 2008 there is a high level of awareness among military personnel (including Cadets, Apprentices and Recruits) at home and overseas of the centrality and challenges of human dignity in the mission and culture of the Defence Forces. Negative workplace behaviour such as bullying and harassment is not tolerated in the Organisation. The IMG is satisfied that the relevant statistical records in the various complaint procedures (2004 – 2007) indicate few allegations of those behaviours. Moreover, the two Reports of the Ombudsman for the Defence Forces bear this out. The IMG congratulates the Defence Forces on what has been achieved. However, no workplace can be complacent. There remains the need for continual vigilance, evaluation, updating of policies and procedures and an effective system of communicating the right of each individual to dignity in the workplace, whether in the Army, the Naval Service or the Air Corps, at home or on overseas service and at

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whatever level. The IMG emphasises that it is also incumbent on each member of the Defence Forces to uphold the Dignity Charter. The IMG commends the advances already made in the area of internal communications and notes the Defence Forces’ further proposals in this area. The IMG in 2008 was impressed by the change in culture as evidenced in the focus groups at home and overseas. In February 2008 the Defence Forces conducted their first internal Climate Survey with more than a thousand representative personnel. The HRM Section gave the untouched raw data to an independent researcher appointed by the IMG. The findings, in relation to HR developments, confirmed the outcome from the many focus groups used by the IMG in the course of its work. Changing Culture – IMG Recommendations ♦ The focus on driving responsibility for HR beyond the HRM Section to those

with command of men and women throughout the Organisation should continue ♦ The importance of regulatory reform should continue to be reflected in the

allocation of necessary resources to this area of work ♦ The Dignity Charter and New Entrant’s Handbook should be re-designed from

time to time to guard against dilution ♦ The existing exit questionnaire be discontinued and that resources be

concentrated on further exploration of mid-career issues in the context of career development and retention of personnel

The New Entrant: Induction and Training There have been important developments and allocation of resources in many aspects of new entrant selection and training within the PDF in the last four years: - significant changes in selection and training of Cadets resulting in a mixed intake

of school leavers, graduates and personnel from the Enlisted Ranks - revised training syllabus for Army Cadets and reduction of course to fifteen

months - appointment of a Student Counsellor in the Cadet School - revised selection processes and procedures for Recruits and Air Corps

Apprentices - provision of a New Entrant’s Handbook for the Army (with same to follow for

the Naval Service, Air Corps and Reserve Defence Force) The IMG recognises the importance of the review of all aspects of recruitment, including attrition, begun in April 2008. Since 2004 the first two weeks of training, known as the “soft landing”, have become a transition phase from civilian to military life. Perhaps inevitably, the outcome has sometimes been counterproductive. The IMG is in agreement with the reservations of trainees and instructors about this approach.

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The IMG recognises that a key function of training is to identify students who are not suited to a career in the Defence Forces and to facilitate their exit from the Organisation before passing out or commissioning. Identifying and facilitating the exit from the Organisation of a new entrant who is unsuitable for a military career should be seen as a success of the training system and not as a failure. The New Entrant: Induction and Training – IMG Recommendations ♦ While the duration of the cadetship for each of the three services varies in length

the period of training of each of the respective syllabi should be of fixed duration ♦ An overall review of the apprentice-training scheme be undertaken with specific

focus on on-the-job training ♦ All apprentices should be made aware of the details of criteria for assessment and

the associated marking schemes used for ongoing assessment ♦ The inclusion of psychometric testing should be considered for recruit selection ♦ The “soft landing” introductory period should last from three days to a maximum

of one week with some elements (career progression, pensions etc.) moved to later in the training course

♦ The planned publication of versions of the New Entrant’s Information Handbook for the Air Corps, the Naval Service and the RDF should be proceeded with as soon as possible

♦ The appointment of a student counsellor should be extended to all Institutions involved in Recruit training and the title ‘counsellor’ should be replaced

♦ The point at which Final Approval is programmed in recruit training should be reviewed

♦ The current process of reviewing cadet training through a study of officers when they have taken up duty should be extended to all categories of new entrant training and continued on an ongoing basis

Robust Training and Corrective Action Concern was widely expressed in the focus groups that a minority of recruits in training challenge legitimate military instructions on the grounds of inappropriate behaviour or health and safety, either through ignorance or as a means of avoiding particular types of work. This is a matter of serious concern to the IMG because it undermines the legitimacy of the inherent and robust nature of military training, which must be maintained in order to produce personnel who can fulfill their role whether in the Army, Naval Service, or Air Corps at home or on overseas peace support missions. Corrective action is part of robust training. Instructors and recruits were realistic about the matter in the focus groups. However considerable concern was expressed that the current emphasis by recruits on ‘their rights’ was leading to ‘softer’ training where NCO Instructors were fearful of using corrective action. A general perception among instructors is that, when complaints or issues arise, the system is now weighted too much towards the trainee. The IMG in 2008 is concerned that the pendulum may have

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swung too far in one direction in the last four years. The result may be that the essential robust nature of military training is in danger of being lost. The existing Training Directive (TI 06/2004) makes it clear that the aim of corrective action is to ‘correct mistakes, promote military discipline and to clarify the standards of behaviour expected’ and examples of acceptable corrective action are given. However, perhaps because of a focus on the need for standardisation, it appears that in its application at the level of the Institution and Unit the focus has switched from the aim to the examples; these have been translated into limited and rigid actions that are applied in all circumstances in a ‘one size fits all’ approach. The IMG believes that to be effective, corrective action must present difficulty and require effort. It is not necessary to apply the same corrective action to each individual for the same behaviour. What is necessary, in such cases, is that the actions required present broadly the same degree of difficulty to each individual. Robust Training & Corrective Action – IMG Recommendations ♦ Greater emphasis should be placed during initial training, and through review

measures, on ensuring that new entrants understand what is and what is not bullying and harassment and inappropriate behaviour

♦ The Training Directive (TI 06/2004) and the workshop on corrective action, that is conducted as part of the pre-orientation course for instructors, should be reviewed

♦ Training establishments should regulate for their own corrective action guidelines in Unit Standing Orders

♦ Wider use should be made of case studies in the area of corrective action; these case studies should be used in training and should form part of the pre course orientation workshops on corrective action

♦ Training establishments should regularly discuss and assess the corrective actions in force

♦ The role of the Unit/Sub-Unit Commander in the area of corrective action should be included in the syllabus of the Junior Command and Staff course

♦ The Training Diary should be amended to include a separate section for recording corrective action

Supporting the Individual and the Organisation Within general HRM provision the Defence Forces have a comprehensive support system in addition to the expertise available within the chain of command and including: - Designated Contact Persons (DCP) - Personnel Support Services (PSS) - Independent Confidential Helpline and Counselling Service - Chaplaincy service The IMG is aware that the Defence Forces is one of only two major employers in the State that in 2003 introduced DCPs appropriately selected, trained, supported and monitored. The DCP service promotes organisational culture by helping to resolve a

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range of issues, including bullying, at the informal level. The confidentiality of the role of the DCP means that it is not possible to quantify the contribution made by the men and women in the Army, Naval Service and Air Corps, at home and overseas, who volunteer personal time, experience and expertise to listen and support colleagues in difficult situations. The IMG supports this positive, voluntary, confidential service and applauds those men and women who continue to be part of it. There is also the more formal, though important, support for personnel in the Complaints Procedure. The IMG is satisfied that the current procedures for dealing with complaints of unacceptable behaviour as outlined in Administrative Instruction A7 Chapter 1 are adequate. However the IMG is aware that there are some issues relating to the operation of the current Redress of Wrongs process, from the perspectives of both the individual complainant and the Organisation. In September 2005 the first Ombudsman for the Defence Forces (ODF) was appointed. The IMG has been informed in its work by the two annual reports issued by the Ombudsman. Supporting the Individual and the Organisation – IMG Recommendations ♦ The work of the Consultative Committee in guiding, supporting and monitoring

the DCPs should continue ♦ The DCPs continue to be supported by all Unit Commanders and their

subordinate Commanders of all ranks ♦ Continued monitoring of the PSS to ensure that the levels of resources and

expertise are sufficient to meet demand ♦ The distribution of the Tac Aide, containing contact details for support services,

be resumed ♦ A review of the internal redress system and procedures should be undertaken

with a view to improving the operation of the system for all stakeholders ♦ A Brigade/Formation training monitoring team, along the lines of the one

operating in the 2 Eastern Brigade, should be established in each Brigade/Formation

♦ Company Sergeants should be considered a priority in relation to interpersonal relationship training and leadership development

♦ The Potential NCO training syllabus should devote particular attention to developing self-awareness and skills re.: managing/mentoring effectively; understanding how attitudes are developed; the power of their own example and influence as NCOs

Supporting the Instructor Response to the Challenge of a Workplace (September 2004) strongly emphasised the importance of the role of the instructor. In 2008 the IMG agrees that Instructors play a significant part in determining how effective new entrants may be throughout their careers. Underlying best practice in initial training is the care with which instructors and trainers are selected, trained, upskilled, motivated and monitored. Only the best personnel with the requisite personality, experience, expertise and training are suited to the role of initiating trainees into the PDF. While the IMG is satisfied that advances

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have been made in supporting instructors in their role since 2004, more needs to be achieved. Supporting the Instructor – IMG Recommendations ♦ With effect from 1 January 2009:

o At least one Specialised Instructor Course should be conducted in each quarter of a year (Jan-Mar, Apr-Jun, Jul-Sept, and Oct-Dec) and these should be provided for in the Annual Training Directive. Additional courses may be required initially to deal with the backlog

o Permanent instructors may be posted to an institution without having completed the Specialised Instructor Course, but must complete the next quarterly course after the date of posting

o Only personnel who have completed the Specialised Instructor Course should be employed as temporary instructors in general training institutions

o The recommendation of the IMG in 2004 regarding the ‘Instructor’ badge should be implemented

♦ Criteria (both desirable and essential) for selection as an instructor should be standardised across the Defence Forces for appointments in similar institutions (e.g. BTCs)

♦ Revised procedures should be put in place for the selection of the OC Cadet School inviting all officers of Lt Col rank to submit an “expression of interest” when the appointment is being filled by the COS

♦ Within existing training policy, access to suitable accredited external courses should be made available to instructors of all ranks on an ongoing basis

♦ An immediate review of the staffing levels of the general training institutions with the aim of creating sufficient capacity to facilitate the release of instructors for career courses and overseas service at stages consistent with the career profile norms for their rank and service

♦ Regular seminars for instructors at both Institution and Defence Forces level should be included formally in the Annual Training Directive from 2009 onwards

♦ The model of recruit training encountered by the IMG in the 2 E Bde (as described in section 8.8 of this report), if not already in use, should be adopted in all cases

♦ Formal links at instructor level between the general training institutions should be established to enhance equivalence of standards

Career Development The performance appraisal system currently in place is comprehensive, well established and in line with best practice. However the infrequency of formal performance feedback was a concern among the focus groups. Personnel movement between Units and the work demands of the system have contributed to appraisal reports not being compiled in some cases and therefore no record being on file for promotion competitions.

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In 2004 equality issues focused particularly on selection, the interview process, redress and protection. In 2008 in relation to interview boards the IMG acknowledges that the Defence Forces is in line with best practice in terms of composition and task. However focus groups in 2008 revealed ongoing discontent about selection and interviews for enlisted personnel in particular. Moreover, the IMG is conscious that the ODF, in her Annual Reports (2006; 2007), has recorded concerns around selection for promotion and courses. The IMG understands that a new promotion selection system for enlisted personnel is nearing agreement. It will be a welcome development. The new arrangements will incorporate most of the recommendations of the 2004 Report and introduce a fundamentally changed system that will contribute to the changing culture in the Defence Forces. HRM Section issued interim procedures for selection of enlisted personnel for career courses and overseas service in 2006. These are under discussion with PDFORRA at Conciliation & Arbitration Forum and the IMG understands that a conclusion is near. The IMG welcomes ongoing developments in the area of feedback from selection boards. Career Development – IMG Recommendations ♦ The agreed procedures governing the performance appraisal system should be

strictly adhered to ♦ Career progression courses for junior officers should provide increased

instruction in the area of performance appraisals and specifically on the conduct of appraisal interviews

♦ The review of the NCO Performance Appraisal System, which in 2004 was part of HRM Section’s strategic plan, should now take place

♦ The cadetship competition should be monitored to ensure that it remains effective as the primary means of providing enlisted personnel with access to the commissioned ranks

♦ When the new promotion selection system for enlisted personnel is agreed, an awareness campaign of briefings should be undertaken by HRM Section

♦ When the finalised procedures for selection of enlisted personnel for career courses and overseas service are agreed, an awareness campaign of briefings should be undertaken by HRM Section

♦ A change should be made to the appeals procedure governing selection for career courses and overseas service for enlisted personnel; this appeals process should be exhausted before a Redress of Wrongs application is investigated

♦ The Defence Forces should further develop a system of providing career advice to personnel

Continual Review of Progress Continual Review of Progress - IMG Recommendation ♦ A follow up review should take place before the end of 2013 ♦ The review in 2013 should focus appropriately on the progress made by the

Reserve Defence Force

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3. Terms of Reference The Independent Monitoring Group, in Response to the Challenge of a Workplace (September 2004), recommended ‘continual review of progress’ within the Defence Forces and an independent review in 2007. A representative group, including an external expert with relevant experience, should conduct such a follow up activity. This report in 2008 is the outcome of that recommendation. The remit of this review was to: 1. Report on progress since the publication of Response to the Challenge of a

Workplace (September 2004) as proposed in the recommendations of that report 2. Take account of any relevant developments within the Defence Forces and

developments in employment law and practice 3. Make recommendations as appropriate 3.1. Approach to this review The IMG addressed its terms of reference through a comprehensive review by:

♦ Examining all relevant reports, documents and instructions within the Defence Forces since 2004

♦ Examining the extent to which the recommendations of the IMG in 2004 were implemented

♦ Identifying evidence of cultural change by exploring the management of policies, procedures, programmes, levels of action and evaluation

♦ Seeking a variety of briefings from key personnel involved in developments in the Defence Forces

♦ Consulting individuals with specific roles in relation to the Defence Forces

♦ Deciding on necessary research to inform any recommendations that might be advisable

♦ Undertaking discussion with focus groups at home and overseas so as to ascertain the impact of the 2004 report on men and women in the workplace

♦ Conducting a total of nine meetings between February and November 2008 and regular communications to ensure timely completion of this report

♦ Analysing the recently conducted Defence Forces Climate Survey with independent expertise

3.2. Background In essence Response to the Challenge of a Workplace (September 2004) challenged the Defence Forces to a cultural change to be delivered through a range of practical measures. Research and literature on such change is in agreement that approximately seven years is advisable before further formal evaluation and assessment. Nonetheless, the Minister and the Defence Organisation were determined to face the task within a shorter period of time. The recommendations published in Response to the Challenge of a Workplace were directed at improving practices in human resource management and dealing with

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bullying, harassment, sexual harassment and any type of discrimination under Equality legislation. There were nine main recommendations in 2004 (see Appendix B). The appointment of the 2008 IMG fulfils one of those – for continual review of progress. It is important to recognise that this review took place at a time of significant challenges to the Defence Forces especially in overseas service. Some organisations might have quietly avoided an independent review, pleading over-stretch. The Defence Forces did not do so. The IMG is aware that recommendations at a set point in time may be affected by such realities as change of personnel, new workplace demands and changes in legislation. Since 2004 the Defence Forces has experienced all of those changes.

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4. Informing the IMG 4.1. Review of developments and initiatives since 2004 In the four years since the publication of Response to the Challenge of a Workplace (September 2004) the Defence Forces has pursued relentlessly the observations and recommendations of that Report. In so doing it has demonstrated its ‘proven capacity for change and flexibility’ (DOD/DF. Strategy Statement, 2008-2010, p.17). The IMG is aware that internal structures were put in place to facilitate and monitor the implementation of the recommendations of Response to the Challenge of a Workplace. In tandem with this, implementation of the Government’s Strategic Management Initiative and the Delivering Better Government policy document ensured that changes introduced followed a logical sequence and were in line with best practice. The scale of the work that was accomplished over a four-year period has impressed the IMG in 2008. The IMG compliments the Defence Forces for its positive and pro-active approach in applying the recommendations in a systematic and sustained manner. Nonetheless, given human nature and the continuing challenges of any workplace, the IMG is alert to the fact that there can never be complacency in relation to human dignity, leadership, management and achievement of the purpose of any organisation. The IMG is aware that there are a number of recommendations from Response to the Challenge of a Workplace, which have still to be progressed. These recommendations are referred to, as appropriate, throughout the body of this report. The IMG wants to acknowledge that members were given full access by the Department of Defence (DOD) and the Defence Forces (DF) to relevant papers, reports and documentation outlining the many developments and initiatives undertaken by the Defence Forces since 2004. Merely listing them below gives some sense of their extent: ♦ Sept 2004 - Publication of IMG Response to the Challenge of a Workplace

♦ Oct 2004 - Issue of Training Instruction 06/2004, Military Codes of Practice for Instructors and Students in the training environment

♦ Oct 2004 - Deputy Chief of Staff (Support) initiated an Action Plan for the implementation of the recommendations of Response to the Challenge of a Workplace

♦ Nov 2004 - Steering Group set up by the Deputy Chief of Staff (Support) under the chairmanship of the Assistant Chief of Staff (Support) and including the Director Human Resources Management Section, the Director Defence Forces Training and the Director of Administration to oversee the implementation

♦ Nov 2004 - Briefings on the content of Response to the Challenge of a Workplace undertaken throughout the Defence Forces to include the PDF and RDF

♦ Dec 2004 - Equality Officer assigned within Human Resource Management Section (HRM Section)

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♦ Dec 2004 – DCP Consultative Team established at national level chaired by the Director HRM Section and including an External Consultant, the Head Chaplain to the Defence Forces, the two Representative Associations and two Designated Contact Persons (DCP) Trainers

♦ Sept 2005 - DCP Programme formally launched by the Deputy Chief of Staff (Support)

♦ 2005 - Defence Forces Leadership Centre of Excellence (DFLCE) established in the Military College

♦ 2005 - Military Career Planning Office initiated within HRM Section

♦ Defence Forces Strategy Statements (2003-2005; 2005-2007) focused on organisational aims and objectives

♦ Defence Forces Annual Reports (2004; 2005) provided comprehensive updates on progress and challenges

♦ July 2006 - First Defence Forces Human Resource Management Strategy (2006-2010) published presenting a number of initiatives within a vision and a framework to support the leadership and management of human resources

♦ 2006 - External auditors from the State Claims Agency carried out their first comprehensive audit of Defence Forces Health & Safety Management systems

♦ 2006 - New Specialised Instructor Training course began – for personnel selected to train inductees

♦ Jul 2006 - Admin Instr A7 Chapter 1 was amended primarily to incorporate changes in government equality legislation and to clarify in detail the role of DCP in the procedures for dealing with bullying, harassment and sexual harassment

♦ Nov 2006 - New Entrant’s Information Handbook (Army version) published and formally issued as part of each entrant’s kit

♦ 2006 - Full review of the Personnel Support Service (PSS) undertaken and PSS staff trained in Bereavement counselling

♦ 2006 - Defence Forces committed to the FÁS ‘Excellence Through People Scheme’, the national standard for human resource management, with the aspiration to attain certification for all PDF Units

♦ Dec 2006 - Defence Forces first ‘Equality Policy’ and ‘Equality Status Policy’ introduced

♦ Apr 2007 - The PSS produced a newly updated ‘Overseas Service Guidance Booklet for Defence Forces Families’

♦ May 2007 - Defence Forces Centre of Excellence for Human Rights established in the Military College; first education course in cultural awareness conducted

♦ Jun 2007 - Chief of Staff convened an Internal Communications Working Group

♦ Oct 2007 - Report of Working Group: ‘Effective Internal Communications in the Defence Forces'. Report accepted and implementation commenced

♦ Nov 2007 - Administrative access given to all ranks to review personal files

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♦ Nov 2007 - Deputy Chief of Staff (Support) issued updated and amended ‘Equality, Diversity and Equal Status’ policies, prepared by HRM Section

♦ Feb 2008 - As part of the first internal Climate Survey 1,067 PDF personnel completed questionnaire

♦ Aug 2008 - New ‘Handbook for Military Instructors’ produced

In addition to the developments and initiatives undertaken by the Defence Forces listed above, the following developments since 2004 are also relevant: ♦ Sept 2005 - Following Government approval, Ms Paulyn Marrinan Quinn, SC was

appointed by President McAleese as the first Ombudsman for the Defence Forces

♦ July 2006 - Enactment of legislative changes to enable participation by the Defence Forces in EU Battlegroups

♦ Sept 2006 - Minister for Defence reduced minimum height requirement for entry to the PDF and RDF in order to increase the potential recruitment pool of females

♦ Mar 2007 - Publication of TNS/MRBI study commissioned by the DOD on the ‘Retention and Recruitment of Women in the Defence Forces’

♦ Apr 2007 - Enactment of Bill to amend the Defence Act 1954 (Part V), providing for disciplinary procedures under military law, in line with the European Convention on Human Rights

♦ June 2007 - Annual Report to the Minister for Defence for 2006 – the first combined Report encompassing the performance of both the Department of Defence and the Defence Forces

♦ DOD/DF Strategy Statement (2008-2010) sets out ‘the Vision and Mission of the DOD/DF for the next three years’ (p.3) in the context of the Programme for Government in relation to modernisation of Defence

4.2. Briefings and consultations with specialist personnel In addition to perusing reports etc. the IMG sought a number of briefings and consultations with specialist personnel on key aspects of the review. The discourse, questions and interaction at these briefings and consultations enabled the IMG members to examine aspects of the workplace more closely and gain insights into best practice and any gaps that might exist.

The IMG is particularly appreciative of the open attitude and professionalism displayed by all throughout the meetings. The quality of these interactions was such as to inform the direction of this review.

The briefings and consultations included:

Briefing by Steering Group (mentioned in 4.1 above) on progress in relation to the implementation of the recommendations of Response to the Challenge of a Workplace (September 2004)

Presentation of statistics in relation to alleged bullying/harassment 2004-2007 covering redress of wrong complaints, formal complaints under A7 Chapter 1,

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calls to independent helpline run by Staffcare Services Belfast, compensation claims and judicial reviews

Presentation by and consultation with Ms Bernadette Kinsella, external consultant to the DCP Consultative Committee, on Interpersonal Relationships in the Defence Forces, the DCP service and the wider legislative perspective

Presentation by and consultation with Brig Gen Chris Moore, Assistant Chief of Staff (Support), on Health and Safety Legislation: current implementation: DF Risk Management Structure, Administration Instruction A7, Management of work-related stress, European Agency for Safety and Health at Work and the role and audit by the State Claims Agency as External Auditor of the Health and Safety process within the Defence Forces

Briefing in Kosovo on KFOR Mission by Task Force (Central) Commander Brig Gen Gerry Hegarty: Camp Clarke Personnel Brief by Comdt Sean Murphy, 38 Inf Group KFOR: Operational Familiarisation, Public Order Training demonstration

Presentation by Cdr Hugh Tully, Captain of Naval Service Offshore Patrol Vessel the L.E.Eithne

Consultation with Mons. Eoin Thynne, Head Chaplain to the Defence Forces

Consultation with Ms Paulyn Marrinan Quinn, SC, Ombudsman for the Defence Forces (ODF)

Briefing by Lt Col Oliver Barbour, Officer-in-Charge, Personnel Support Service (PSS)

4.3. Focus Groups

4.3.1. Focus Groups: Background The IMG agreed that since 2000 the Defence Forces were in danger of being overly researched as a workplace. No other workplace in Ireland can give demonstrable evidence of a similar appraisal, focus and evaluation over a protracted period. The IMG was alert to the danger of a process that might lose its usefulness by being too frequent, overly intrusive or mere research for its academic sake. In the light of the many changes in leadership and management practices that had taken place since 2004 the IMG decided against any major quantitative research at this stage. The day before the first meeting of the IMG on 21 February 2008 the first internal Climate Survey had been administered in the Organisation. Details are outlined later in this Report. The IMG chose to base its research partly on outcomes from focus groups. As a means of research focus groups date back to the early 1940s and became more widely used since the eighties. Effective focus groups are well-organised discussions that are useful in collecting data, exploring ideas and attitudes by enabling discussion among individuals with a common interest. Moderators of such groups seek to identify any trends or patterns in thinking, beliefs and experience. Gaps between policies, procedures and

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implementation may also emerge. It that sense, focus group research is user-centred. Ideally, there should be a sufficient mix of ages and gender so as to be representative of the organisation as a whole. The literature on focus groups agrees that between six and twelve people in a group is sufficient. The IMG decided on ten as the desirable number. All groups were inclusive of varying age, rank and gender. Standardisation of the data from focus groups can be problematic. However, individual members of the IMG were experienced in research and in the process of working with focus groups. 4.3.2. Focus Groups: Implementation Each focus group was aware that the IMG was seeking views on the implementation of the recommendations of 2004. What had changed in the last four years and how had it affected daily interaction in the workplace? The IMG was alert to the challenge of getting valid feedback in a military organisation. The nature of work in any military force is not conducive to feedback. The use of focus groups provided a structured means whereby the IMG could make direct contact with the personnel. The approach also had the advantage of enabling more members of the PDF to contribute to a review of their workplace. The IMG hoped to get some detailed insight into current beliefs and experiences. Moreover, thanks to the Deputy Chief of Staff (Support), Maj Gen Dave Ashe, it was possible to plan participation by a wide-ranging and representative group of men and women. Separate focus groups were drawn from the Naval Service and the Air Corps because of the differing contexts of their role in the Organisation. Two focus groups, representing personnel at mid-career stage, were selected with the collaboration of RACO and PDFORRA. The IMG was at pains to ensure that each venue and atmosphere encouraged synergy or the interaction between individuals during discussion. This is particularly challenging in the context of the chain of command and the inherent nature of military organisations. The IMG wishes to acknowledge the ‘hidden’ people who facilitated our research needs in the various locations and formations visited.

Three members of the IMG had served on the first Independent Monitoring Group and could therefore compare their experiences of working with the focus groups. While such comparisons do not constitute hard evidence they can be indicative of workplace culture. In 2008 growth in confidence within the PDF was evident in the readiness of all ranks to contribute in the many focus groups. Participants were willing to voice concerns and issues across the spectrum of annoyance, irritation, anxiety, personal or/and career interest, self-focus, interest, enthusiasm, loyalty, idealism, experience, inexperience, ambition. Moreover, there is a perception among the IMG of 2008 that lateral thinking informed many of the contributions from the focus groups and from a

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small number of individuals who subsequently chose to communicate their ideas to members of the IMG. Details of the various focus groups may be found in Appendix C. 4.3.3. Focus Groups: Overseas In the fiftieth anniversary of unbroken PDF participation in overseas service, it is fitting that the IMG would make special mention of this aspect of the Organisation’s role. The Defence Forces took up international peacekeeping service for the first time on 28 June 1958 in the Lebanon where fifty officers were part of the United Nations Observer Group. Since then, despite its size as a small island on the periphery of Europe, Ireland has played a significant and internationally acclaimed part through the Defence Forces in peace support operations. The quality of the individual officers and enlisted personnel, their ‘discipline, duty, dogged good humour’ (Myers 2008) and ability to network internationally is the recurring mark of the Irish contribution. Thanks to the Defence Forces, in 2008 Ireland can justly celebrate the fiftieth anniversary. Overseas peace support participation is an important aspect of the Irish Government’s foreign policy in meeting international obligations as a Member of the UN and the EU. Overseas service is a core aspect of service within the Defence Forces. The overseas environment for the PDF differs from home service. Personnel operate in conflict zone environments that test leadership and interpersonal skills, often in pressured scenarios. It tests the training that has been provided to deal with increased levels of responsibility and more diversified job experience. The circumstances in which negative workplace behaviour could arise also differ. In addition, the work of DCPs could be more isolated due to the long lines of communication. On the other hand the challenging atmosphere of the missions, the greater emphasis on teamwork and Unit cohesion, and the fact that the individual’s sojourn is timebound can contribute to a positive workplace culture. While there is a good degree of overseas experience among members of the IMG the group considered it essential to their work that they had an appreciation and understanding of how personnel interact and how procedures are applied in a highly operational environment. The IMG therefore decided to work with a number of focus groups and key personnel in one of the current overseas missions – (KFOR) in Kosovo. The IMG also considered that it would be appropriate that the DCP external consultant should be invited to participate. 4.4. Access to and utilisation of the Defence Forces first Climate Survey The Defence Forces initiated their first internal climate survey and a questionnaire was administered to 1067 personnel of all ranks on 20 February 2008. This survey was previously recommended by the first IMG Group in 2004. The purpose of the survey was to get a snapshot of the Organisation through the attitudes and perceptions of a random sample of personnel and to provide a benchmark for future studies.

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Similar surveys in international military organisations were used to inform the preparatory work in the Irish Defence Forces. The voluntary, anonymous, ‘Your-Say Survey’ provided personnel with the opportunity to record their perceptions of ‘various dimensions of PDF leadership’. The range of headings is indicative of the comprehensive nature of the questionnaire: military life, life as a whole, workload, commuting, overseas service, work-life balance, fairness, the Organisation as a whole, personal expectations, organisational culture, leadership, obligations, commitment, human resource policy, and attitudes to staying or quitting the Defence Forces. The Chief of Staff readily agreed that the IMG be given the raw statistical data for analysis. In the best interests of objectivity the IMG engaged Dr. Mark Morgan, Professor of Education, St. Patrick’s College of Education/DCU and an internationally acknowledged researcher, to analyse the findings independently and to present these in due course. The IMG wishes to acknowledge the openness, transparency and willingness of the Defence Forces in enabling this independent analysis to be carried out.

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5. Changing Culture: Developments 2004 - 2008

5.1. Context A positive culture is not one thing or one aspect of a workplace. Neither is it visible or tangible. It is more easily recognised in its absence. Culture is the whole organisation. Fundamental in organisational or workplace culture are the values, norms and expectations that are shared by the workers (including management/leadership). The attitude with which people come to their workplace, their interaction with each other, even simple greetings, are all part of the ‘package’ labelled ‘what I as an employee am expected to do in order to fit in and progress here’. The greatest enemy of organisational culture is poor performance. Poor performance by a colleague can be a source of annoyance, anger and de-motivation for others. Where management/leadership is perceived as not dealing with poor performance, for whatever reason, a price will be paid by the organisation: low morale, distrust of authority and sometimes loss of the best personnel. In 2004 a major research project in New Zealand and Australia in nine hundred workplaces (more than 110,000 people) found that the desirable workplace was where people could experience achievement, self-actualisation, a supportive environment that encouraged helpfulness and good relationships with colleagues. The opposite would not energise a motivated workforce because aggressive behaviours, competitiveness, avoidance of responsibility (at any level) and a hidebound attitude to change and development pervaded. Inherent in the Defence Forces (as with any military organisation in the democratic world) is a daily challenge to marry the chain of command with individual workplace aspiration. So on the one hand there is the need for teamwork, leadership, flexibility and commitment that is essential for military functioning; on the other is the demand that all ranks (officers and enlisted personnel) must obey orders. That aspect of military culture is both essential and unique. The OSCE/ODIHR Handbook on Human Rights and Fundamental Freedoms of Armed Forces Personnel, 2008, p.127 (OSCE/ODIHR Handbook) states: ‘Officers are the custodians and shapers of organisational culture’. It is no easy task to strive continually to achieve the vision of the Defence Forces, which is

‘To be a modern, loyal, highly disciplined, well trained, well resourced, interoperable force, which can deploy and deliver effective and flexible military capabilities at home and abroad’. (Defence Forces HRM Strategy, 2006-2010, p.2)

Big companies in the past two decades have tended to allocate the negative aspects of HRM to a specific internal unit or department. Current thinking and best practice would suggest that all levels of management or leadership should function in a manner that can deal with the positive and negative aspects of human behaviour in the workplace. That is not to say that a designated HR unit or section is no longer necessary. Rather the focus of such a unit is better directed to supporting line managers and supervisors and ensuring they have the necessary personality, training, and continual professional development / upskilling to deal with the daily human

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demands of the workplace. So, identification of professional development and training needs is fast becoming a task for HR departments. 5.2. Human Resource Management (HRM)

5.2.1. HRM Section Research into both military and civilian organisations highlights the centrality of HRM for sustainability, motivation and development. Leaders like entrepreneurs are probably not ‘made’ in the sense that education and training may ‘produce’ them. However, even cursory research on leaders in history and to date would suggest that these are men and women who espouse a vision and are open to experience and learning. Response to the Challenge of a Workplace (September 2004) made a strong recommendation in relation to the staffing of the new HR Section (Appendix B, Recommendation 8). In 2008 the IMG acknowledges the rapid response by the Defence Forces in publishing a comprehensive HRM Strategy, 2006-2010 (July 2006). That excellent document acknowledges the men and women of the Defence Forces as the Organisation’s most important asset and states:

‘There is an absolute requirement to utilise our Human Resources in a responsible and efficient manner. We must have a HRM system that gains and retains a high level of trust and awareness of our internal culture and ethos of our employee relations’ procedures and of dignity in the workplace. The Defence Act and Regulatory reform must also be enshrined in our HRM practices. Annual Plans at Directorate level in DFHQ as well as at various other levels in Brigades/ Formations/Units must include HRM strategic objectives and goals to ensure that HRM issues outlined in this Strategy are driven forward’. (p.9)

As part of the strategy a number of existing initiatives were brought within the ambit of the HR structure thereby strengthening potential. More importantly, there was a definite commitment to continual professional development to enhance competency and commitment and to see work within HR as part of a military career. The IMG lauds each Deputy Chief of Staff (Support) since 2002 whose task was to develop what was called in one of the 2004 recommendations ‘the new HR Section’. That recommendation stressed the importance of the HR role in a military organisation and the challenge to make available ‘officers of talent’ even at a time of increasing opportunities overseas. In 2008 the IMG agrees that: ♦ the Defence Forces HRM Strategy document, in its seven ‘HRM Strategic

Objectives’, provides solid criteria against which to assess the progress of the Defence Forces

♦ ‘sustainable change’ depends not only on clearly articulated values and strategies, but also on leadership and management at every level in the Defence Forces

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♦ considerable progress has been made through the leadership of the HRM Section, the Directorate of Administration and the Directorate of Training

The Defence Forces was criticised in 2004 for the unacceptable and complex procedure whereby a member could not access his/her personal file without recourse to the Freedom of Information Act. In November 2007 the HRM Section stated:

‘Administrative access to personnel files held at Brigade/Formation/Unit in respect of NCOs and Ptes and held at Brigade/Formation/Unit and DFHQ in respect of Officers will be granted. Defence Forces personnel may access information held in personal files, (outside Freedom of Information Acts), by submitting an application form in accordance with Administrative Instruction A8, Ch 2, Para 228.’2

The IMG welcomes that change. In 2004 the Defence Forces introduced a programme on ‘Effective Interpersonal Skills for Leaders’ in order to apply best practice to the HRM activities of the Defence Forces. To disseminate this information to the rest of the Organisation, and to provide a pool of expertise, an Instructors’ Course was conducted for a cadre of Officer and NCO instructors drawn from every training institution. This programme of training has since been included in the HRM modules of career courses and delivered by the qualified instructors. In 2008 the IMG admires the extent of what has been achieved by the HRM Section working with the Directorate of Administration, the Directorate of Training, the Department of Defence and the men and women of the Defence Forces.

The IMG recommends that the focus on driving responsibility for HR beyond the HRM Section to those with command of men and women throughout the Organisation should continue.

5.2.2. National HR ‘Best Practice’ Standard – FÁS ETP Award

FÁS Excellence Through People (ETP) Award is Ireland’s National Human Resource Management Standard and is increasingly pursued by private and public sector organisations. Not dissimilar from the ISO international standard, the FÁS Award is comprehensive, demanding commitment, perseverance, openness to change and innovation. The eight core criteria use generic terminology that are tailored to meet the specific requirements of individual organisations, taking into account the particular vision and mission: - Business planning and quality improvement

- Effective communication and people management

- Leadership and people management

- Planning of learning and development

- Training and life-long learning

2 Defence Forces Equality, Diversity and Equal Status Policies, 2007, 3.9.2.

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- Review of learning

- Recruitment and selection

- Employee well-being

The Defence Forces Human Resource Management Strategy 2006-2010 (p.13) identified that a key target area was to comply with the recognised best practice in HRM. To that end, achievement of the ETP Award by mid-2008 was identified as one performance indicator. It was a deliberate initiative by the Defence Forces in benchmarking and as such meets the Government objective for efficiency, effectiveness and value for money. To date, eighteen Units/Formations of the Defence Forces have been successful in achieving the award while a further three Units/Formations will be assessed by the end of 2008. The few remaining Units will be assessed in early 2009 as Brigade single entities in line with a FÁS recommendation. In early 2007 FÁS, in its award to the Cadet School, declared the School to be at the leading edge of HR best practice in Ireland. The IMG noted that involvement in the quest for the FÁS ETP Award was mentioned in a positive manner a number of times by individuals in the focus groups. The IMG commends HRM Section and the Units of the PDF for courageously taking on this challenging award process at a time when the Defence Forces was already involved in a multiplicity of internal developments as well as external commitments. 5.3. Equality Matters

5.3.1. Context In 2004 the second recommendation of the IMG identified an urgent need to raise awareness of equality issues and relevant legislation within the Defence Forces by disseminating a comprehensive programme on equality matters. Any male-dominant or female-dominant workplace needs to manage such awareness sensitively by implementing fair and balanced procedures and practices. Moreover, such procedures merit continual evaluation in the light of emerging legislation and effective leadership. In 2008 the IMG acknowledges that the Defence Forces has made progress on equality matters. 5.3.2. Equality Officer and developments An Equality Officer was appointed in 2004 and the first ‘Defence Forces Equality, Diversity and Equal Status Policies’ document was introduced in December 2006. That internal document set the agenda for significant change in promoting best practice in equality in the workplace. Eleven months later during the European Year of Equal Opportunities (2007) the then Deputy Chief of Staff (Support), Maj Gen Pat O’Sullivan, presented a revised and updated version. The ten chapters of that document are a comprehensive statement of intent on the part of the Defence Forces. As such, the IMG congratulates those who

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contributed to its realisation through a consultative process with Brigade and Formation Commanders. An equality awareness programme was initiated and the Defence Forces continues in 2008 to maintain contact with professionals in the Equality Authority and the Health and Safety Authority so as to keep up to date. In addition, corporate subscription has been taken out with Legal Island, a legal advice and training provider. The IMG wishes to acknowledge: - the commitment of the Defence Forces to the principles of equality

- HRM Strategic Objective 5 (Strategy 2006-2010, p.25) correctly links equality of opportunity with Dignity in the Workplace

- the commitment to equality of opportunity in respect of employment practices, procedures and regulations

- the HRM Section have worked assiduously to promote equality in the workplace both in terms of awareness and actualisation

- the appointment of an Equality Officer is a practical statement of intent by military leadership

The IMG also notes that regular reviews of equality and anti-bullying measures are among seventeen Defence areas named in the Programme for Government 2007-2012.

5.3.3. Equality: more to do The IMG would be remiss not to record some concerns about equality issues. Overall, there was a very positive and desirable attitude about equality from the briefings, professional interviews and focus groups. Achieving the balance, equality, is always a challenge and nowhere more so than in military organisations where traditionally, men more than women served and died. OSCE/ODIHR Handbook (2008, p.161) acknowledges:

‘The growing recognition of service-men and -women as citizens with equal rights to the rest of the population has been a gradual process’.

In 2008 the IMG accepts that the Defence Forces have been striving to achieve a rightful balance for male and female personnel at recruitment stage and beyond. The IMG lauds the Defence Forces aspiration to create ‘a culture that encourages and enables potential recruitment from all sectors of Irish society’. In 2008 when the Irish economy is under pressure that aspiration is admirable, idealistic and worthy of support. However, the need for equality should never lead to any lowering of standards or retention of Recruits or Cadets who are under-performers or unsuited to military life. Unlike many other national armed forces, the Irish Defence Forces have no restrictions as regards the assignment of men or women to the full range of operational and administrative duties and all promotions and career courses are open to both genders on merit. Equality also requires consistency in the commitment to perform the full range of duties, irrespective of gender.

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In the Defence Forces there is no place for inequality in terms of performing security duties, seagoing duties or overseas service. In a workplace where one gender dominates or is almost the majority, effective human resource management needs to examine both the dominant gender and the numerically smaller one. It is possible for the minority group to dominate the majority. While ‘local arrangements’ may at times be good management practice, they may also result in precedents and discriminatory behaviour by an employer. By its nature, a ‘local arrangement’ should be a managerial response to an exceptional circumstance. 5.3.4. Regulatory reform and equality In 2008 the IMG remains concerned that progress on PDF regulatory reform may not be complete. This is a challenging task and involves collaboration between the Defence Forces, the Department of Defence and the legal profession. Certain regulations also require consultation with the Representative Associations, through Conciliation and Arbitration, for a successful as well as legal outcome. The IMG is aware that both the Department and the Defence Forces have invested significant resources in establishing internal structures to progress this task. The IMG is also aware that the work undertaken to date has been wider in scope than just incorporating the recommendations of the Equality Steering Group as set out in Appendix D of Response to the Challenge of a Workplace. The opportunity is being used to encompass a full re-write of the regulations and administrative instructions. This comprehensive approach is a slower task than simply making the recommended amendments. The IMG acknowledges the overall strategic approach adopted and recommends that the importance of this work continue to be recognised in the allocation of resources. 5.4. Dignity in the Workplace In 2004 the IMG noted that the Defence Forces was genuine in its ‘acknowledgement within the organisation of the need to address unacceptable behaviour’. (Response to the Challenge of a Workplace, p.7) In 2008 the IMG believes that there is a high level of awareness among military personnel of the centrality and challenges of human dignity in the mission and culture of the Defence Forces. This was particularly evident in the focus group research at home and overseas. There is no doubt that the message has percolated that bullying or harassment is not longer tolerated in the Organisation. The contrast between the readiness of personnel to discuss the issue of unacceptable workplace behaviour four years ago and now in 2008 was very marked. Clearly, leadership at all levels has communicated the message and heightened awareness. The inclusion of this subject area in the syllabi of all induction, career advancement and other training courses is a significant and positive step forward. The IMG acknowledges that the Centres of Excellence at the Curragh have contributed significantly to this development.

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The Defence Forces disciplinary system provides a support for the Dignity Charter. The newly introduced legislation of 1 Sept 2008, amending the Defence Act 1954 (Part V) by providing for disciplinary procedures under military law in line with the European Convention on Human Rights, is a major step forward. Briefings and training in this area have been undertaken. The definition of workplace bullying remains as follows: The Report of the Task Force on the Prevention of Workplace Bullying (2001) and the Codes of Practice (2002) under the Industrial Relations Act and the Health and Safety at Work Act state: ‘Workplace bullying is repeated inappropriate behaviour, direct or indirect, whether verbal, physical or otherwise, conducted by one or more persons against another or others, at the place of work and/or in the course of employment, which could reasonably be regarded as undermining the individual’s right to dignity at work. An isolated incident of the behaviour described in this definition may be an affront to dignity at work but as a once off incident is not considered to be bullying’. The following tables show the statistical records in relation to allegations of bullying, harassment, sexual harassment and discrimination between 2004 and the end of 2007: Redress of Wrongs

Bullying/Harassment Year Complaints Upheld Not Upheld Withdrawn

2004 6 3 3 0 2005 5 1 4 0 2006 3 0 1 2 2007 7* 0 3 1 * 3 cases from 2007 ongoing. Unacceptable Behaviour – Administrative Instruction A7

Complaints dealt with using Formal Approach – Ref A7, Ch 1, P 164 Year Complaints Upheld Not

UpheldWithdrawn Upheld as a % of Total

Applications 2004 11 6 5 0 66% 2005 10 2 8 0 20% 2006 8 4 4 0 50% 2007 4 1 3 0 25%

There are many ways of viewing the statistical evidence in the tables above. On the face of it the figures are small and generally diminish year on year. An ESRI telephone survey of workplace bullying in Ireland, published in 2007, covering a nationally representative sample of 3,500 adults (response rate 36%), found that 7.9% of those at work reported they had experienced bullying within the previous six months. That finding was not significantly different from the earlier research in 2001 when 7% of the workforce reported experiencing bullying.

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The Defence Forces was not a separate category in the 2007 survey so it is not possible to compare the findings of the RoW and A7 statistics above to the 2007 survey. Nevertheless, the IMG accepts that only a small percentage of RoW applications relate to alleged bullying and /or harassment. The IMG congratulates the Defence Forces on what has been achieved. Policies and procedures are now in place for dealing with bullying, harassment and sexual harassment. However, no workplace can be complacent and there is a need for continual vigilance, evaluation and updating of policies and procedures and an effective system of communicating what relates to the Dignity Charter. The IMG is aware of the possible ripple effects of bullying or harassment on an individual member of the Defence Forces and on the spouse, family, colleagues, friends as well as the Organisation itself. Negative behaviour may leave a residue that can result in serious difficulties unless robust HRM policies, procedures and, more importantly, skilled people managers are continually alert. The IMG acknowledges that negative human behaviour such as bullying and harassment may continue to be part of any workplace. There is a strong challenge to Commanders (Officers and NCOs) at every level in the Defence Forces to be alert and proactive in promoting dignity in the workplace. It is also incumbent on each and every member of the Defence Forces to uphold the Dignity Charter. In 2008 the IMG notes the important role of the Representative Associations in the process. Their robust contribution included awareness campaigns, daily interaction with individuals who called their offices, consistent support of personnel and the prompt responses of the General Secretaries and all personnel in the Associations. The Associations continue to contribute very positively to a wide range of interpersonal issues. OSCE/ODIHR Handbook (2008, p.209) emphasises the importance of ethical leadership:

‘In all military systems, the power to command and the duty to obey are of central importance. Commanders play a crucial role in all military, social, and moral aspects of their Unit. Commanders – both officers and non-commissioned officers (NCOs) – can be considered to be the first line of defence against violations within the barracks. Their leadership is crucial for respect for human rights within the barracks’.

The Handbook highlights the role of commanders in ‘creating a climate of trust and mutual respect among soldiers’ and their ‘obligation to take all measures necessary to prevent subordinates from committing unlawful acts’. The IMG supports the recommendation in the Handbook (2008, p.218) that:

‘Officers and NCOs should be provided with adequate training, not only in the exercise of leadership but also on military law and human rights law’.

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The IMG notes the importance of keeping the message up to date by: - re-designing the Dignity Charter and New Entrant’s Handbook from time to time

to guard against dilution of the challenge - ensuring, through review measures, that new entrants are clear on what bullying is

and is not - not relying on lectures alone to communicate the message: several focus groups

suggested the use of appropriate case studies on training programmes 5.5. Internal Communications

5.5.1. Context The essence of the communication challenge in any workplace is to keep every person up to date while encouraging an open and inclusive culture where feedback is facilitated and welcomed. That has a special challenge for military organisations anywhere because of the fundamental, vital and basic chain of command. Effective communication within a workplace is never completed because personnel move and have differing needs in new roles and at varying career points. 5.5.2. Communications: working group In Response to the Challenge of a Workplace (September 2004, p.8) the IMG emphasised the need for openness, transparency and the development of more effective internal communication with all ranks. The Defence Forces Human Resource Strategy, 2006-2010 took up the challenge and set out to develop effective internal communication through planning, establishing and maintaining mutual understanding between the Defence Forces and the internal public. The Strategy advocated a review of internal communication, an updated and user friendly Intranet and the implementation of effective communication methodologies and procedures. As a result, on 28 June 2007, the Chief of Staff convened a Working Group on Internal Communications. The Group represented all ranks from across the Army, Air Corps and Naval Service. Their task was to review all aspects of the methodology, dissemination, barriers and range of the communication of all types of information as well as associated technology. Their report, four months later, was accepted in principle by the Chief of Staff who set up an Implementation Group to advance the recommendations. At present the Implementation Group is actively drawing up a proposed policy, overseeing the upgrade of the Intranet and the introduction of a pilot electronic notice board in all seven Barracks in the Curragh. The IMG viewed a demonstration of the proposed type of information for dissemination and its associated technology. 5.5.3. Communications: developments The Defence Forces recognises that using the chain of command as the principal channel for communicating information of interest to individual members of the Forces can result in delays in the information reaching individuals and that a separate ‘chain of information’ is required. The electronic notice board is seen as a means of ensuring timely and relevant delivery. Information displayed will be immediate in that it will be refreshed at least once daily by designated staff and will come in a variety of on-screen formats such as photos, video and the written word. It is not intended that

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the electronic notice board will replace the Unit notice board, but will augment it by providing information on day-to-day events throughout the Defence Forces and locally within the Brigades/Formations. The use of a chain of information separate from, but parallel to, the chain of command should not compromise the latter in any way. The Intranet site has recently been re-vamped and updated and will generate easy access for all ranks to various information sources such as the New Entrant’s Information Handbook, the new Defence Amendment Act, policies on overseas service and selection procedures for promotion and courses. It will also provide easy access to pay rates, regulations and other useful information and will be linked to other associated websites such as the Defence Forces, the Department of Defence, the Ombudsman, ONET, IUNVA and the Representative Associations. The IMG is aware that other developments are being pursued and supports the following:

- Revised and updated ‘Talks to Troops’ within Units - Review of current feedback mechanisms - Examination of other areas of official communication such as Routine

Orders - Further training of personnel in communications/leadership etc.

The IMG commends the advances already made and notes the Defence Forces’ proposals in the area of internal communications. The demands on the system to ensure correct and topical information should not be underestimated. The individuals who manage the technology will be the keys. The focus groups identified the potential for access to information about courses, career progression, etc. for recruits. At present, their immediate superiors are the principal source of information. Technology could strengthen this, support their work and enable the Organisation to further promote learning. 5.6. Exit Questionnaire

5.6.1. Context The use of exit questionnaires is a well-established practice in human resource management. Its purpose is to capture some of the experience and insight of workers who are about to or have recently left or, retired from a workplace. The problem of doing the research post retirement is that individuals are already in a new phase of living and are often reluctant to respond or may be inaccessible due to travel etc. Mandatory questionnaires or face-to-face interviews are unlikely to be trusted by all participants. There is also the risk that respondents may be fearful of saying anything that might be interpreted as criticism. On an island community with a small population like Ireland that fear may not be unfounded. Such approaches might also be perceived as failing to give due dignity to adults who may have devoted many years to a company or organisation.

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Traditionally, the Defence Forces had used a mandatory questionnaire about two months before personnel retired. This approach would be counter to best HRM practice in 2008. It might also be hard to make it fit with the Dignity Charter. In 2004 the IMG, with the co-operation of the Defence Forces and the Representative Associations, used an external agency to design, pilot and process an exit questionnaire and semi-structured interviews. A number of organisational factors added to the complexity of the process at that time (Response to the Challenge of a Workplace, 2004, p.29-30). It is true to state that some of those complexities are no longer relevant. 5.6.2. Exit questionnaire: 2006-2008 The use and results of the process have been disappointing. In 2006 less than 13% and in 2007 only 6% of personnel leaving the Defence Forces completed the voluntary exit questionnaire. Such a poor response is not unknown internationally. The poor response rate may be due to a number of factors including the voluntary nature of the activity, the composition and content of the existing questionnaire and lack of interest in its completion. There is no definite way of knowing. The IMG considered further use of the exit questionnaire in the light of feedback from the focus groups, the Representative Associations, the HRM Section and overall use of resources. We therefore recommend that the existing exit questionnaire be discontinued and that resources be concentrated on further exploration of mid-career issues in the context of career development and retention of personnel. 5.7. Changing Culture: Learning from Focus Groups

5.7.1 Context

In recent times researchers agree that organisations need appropriate procedures for staff to communicate their concerns. Failure to plan for such feedback often leads to poor morale and the dominant influence of negative personalities, prevalent in Irish society. Feedback from focus groups forms part of communications in the workplace. One of the most significant aspects of the focus groups in 2008 was the readiness of the participants to interact, to voice differing views and perspectives openly, with concern not anger. 5.7.2. Changing culture: developments As already stated, three of the IMG had previous experience of focus groups in the Defence Forces from 2002 to 2004 prior to the publication of Response to the Challenge of a Workplace. They could therefore compare and contrast the general climate of the groups. By contrast with the earlier period when guardedness was often evident, the interaction in 2008 displayed enthusiasm for reflection and analysis of organisational changes from their experience as officers and enlisted personnel.

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The IMG sees this as a powerful statement about a changing culture and therefore worthy of recognition. The OSCE/ODIHR Handbook (2008, p.161) states:

‘The military profession can maintain its dignity and professionalism only if the human rights of soldiers are respected’.

How can the Defence Forces ensure that there is some procedure to allow for discussion, opposing views and suggestions for a better workplace while at the same time maintaining the ethos of a hierarchical chain of command? With each member of the Organisation subject to military law as well as the civil law, how can the Defence Forces allow for a match between civilian society and not deny legitimate self-expression in a democracy and retain strong military discipline? No civilian workplace has to face that type of communications challenge. Side by side with the essential chain of command is the challenge to ‘provide appropriate legal and administrative procedures to protect the rights of all its forces personnel’.3 The IMG in 2008 was impressed by the change in culture as evidenced in the focus groups at home and overseas. There was a healthy balance between outward conformity as personnel of the Defence Forces and the skill with which individuals could express agreement as well as disagreement and suggestions. There was almost a tangible expectation in each focus group that individuals knew their opinions would be respected. Participants could easily distinguish between their obligations and duties within the command structure and the expectation that their observations about their workplace would receive due consideration. Moreover, the content analysis of the focus groups proved to be a rich source of information on the implementation of the recommendations of Response to the Challenge of a Workplace. Such a development does not happen overnight. It is the result of a changing style of leadership across the Defence Forces. Clearly, the HRM Strategic Objective 5, 5.2 for effective communication is being actively implemented. The nature of communications within any workplace is such that it will never be perfect because each worker is an individual with his/her own maturity, experience, perception and stage on a career path. The IMG is pleased with that development and encourages continual investment in education and training at all levels to foster communications as endorsed by OSCE/ODIHR Handbook (2008, p.123):

‘Armed forces personnel, whether conscripted or volunteers, are part of a chain of command in which the interests of the individual are subordinated to the requirements of military duty. Yet they remain citizens in uniform, and must be granted the same rights as civilians, without prejudice to military discipline’.

5.8. Changing Culture: Climate Survey Findings The IMG has considered the findings very carefully in relation to HR developments within the Defence Forces. In general, these findings reflect what the IMG learned in the focus group research and from the various briefings and interactions with PDF 3 OSCE. 1994. Code of Conduct on Politico-Military Aspects of Security. Cited in OSCE/ODIHR. 2008. Handbook. Box 16.1, p.166.

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personnel. What emerges, therefore, is a very positive picture of the Organisation and of the progress made by the HRM Section in directing developments. There are issues in the Climate Survey above and beyond the remit of the IMG. The DOD/PDF and the Representative Associations as relevant and appropriate will pursue these. However, the IMG notes the following positive indications reflected in the Climate Survey: - a high level of satisfaction in relation to developments within HR - changes in Interpersonal Relationships /A7 Policy - specific developments relating to workplace dignity - the strong agreement about the drug testing policy - developments in training Perhaps predictably, there was considerable concern about promotion, performance appraisal, and complaints procedures. The IMG supports the HRM Section in its intention to pursue the implications of the Climate Survey over the coming months. The IMG acknowledges the wisdom, leadership and strategic management of the Organisation, especially under DCOS (Sp) in initiating this first Climate Survey.

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6. The New Entrant: Induction and Training 6.1. Entry to the Defence Forces The main routes of entry into the PDF are as:

♦ Cadets (for officers)

♦ Apprentices (for Army and Air Corps technicians)

♦ Recruits (for general service in the Army, Air Corps or Naval Service)

The different roles on completion of training necessitate different entry criteria, selection methods, as well as duration and types of training.

6.2. Cadets The IMG acknowledges that since 2004 there have been significant changes in the selection and training of Cadets. The changes in the selection criteria and systems were agreed with RACO and designed to change the composition of the groups from predominantly school leavers to a mix of school leavers, graduates and personnel from the enlisted ranks. This new mix has provided more mature and experienced groups of Cadets and the consensus is that this has enhanced the programme because Cadets from each background contribute particular value. The new system also provides enlisted personnel with greater opportunities to progress to commissioned officer rank, as recommended by the IMG in its first report. The IMG specifically acknowledges that the training syllabus for Army Cadets has been revised and the course shortened to fifteen months. In the course of the three focus groups with personnel in the Cadet School in 2008, it was evident that considerable time and energy had been invested in implementing the recommendations of the first IMG report and in endeavoring to ensure that the School’s systems and activities reflect best practice. Evaluators of the national HR awards FÁS ETP concluded: ‘The Cadet School is now at the leading edge of HR practices in Ireland’. Because of its role in training the future leaders of the Defence Forces it is critical that these efforts continue and the School remains the model for other Defence Force training institutions. There is concern that the length of the Air Corps Cadet course can vary considerably depending on availability of training aircraft and weather conditions. In a recent case the course exceeded the expected two years by nine months. This unsatisfactory situation is unfair and demoralising for the Cadets. While the duration of the cadetship for each of the three services varies in length the IMG recommends that the period of training of each of the respective syllabi should be of fixed duration. The IMG is aware that new aircraft have been purchased at significant cost and that the Air Corps Cadet training system is currently under review. The outcome should help to ensure that the Air Corps Cadetship is of a fixed duration.

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6.3. Apprentices Within the PDF there are two schemes for Apprentice training: ♦ Trainee Technician Scheme (TTS) for personnel recruited from within the

Organisation ♦ New entrant Apprenticeships for specialist areas such as Heavy Vehicle

Mechanics and Aircraft technicians Air Corps Apprentices have a four-year training programme that includes military training as well as classroom and on-the-job technical training. 6.3.1. Apprentices: training The IMG recognises the importance of having the best possible training for apprentices and technicians in the Defence Forces. The point was made during the focus groups that on-the-job training could be broadened. The IMG recommends that an overall review of the apprentice training scheme be undertaken with specific focus on on-the-job training. 6.3.2. Apprentices: progression Examinations and continuous assessment test progress in the apprenticeship. The apprentices understand the examination system, including marking. However, the focus groups revealed that apprentices are not fully aware of the details of the methodology of the ongoing assessment system. The IMG recommends that all apprentices should be made aware of the details of this system, including the criteria for the assessment and marking systems. 6.4. Recruits Recruit platoons undergo a seventeen-week basic training programme; this includes a two-week ‘soft landing’ or introductory phase. The programme is conducted either by: ♦ The Brigade Training Centre (BTC) or

♦ Line Units within the Brigades designated for that purpose on a case by case basis by the General Officer Commanding (GOC)

6.4.1. Recruits: rates of attrition

The average number of recruits per year is approximately five hundred, with an annual attrition rate over the past seven years ranging from 15.5% to 31.07%. Many of those who leave do so because they are not suited to military life or because the demands of military life conflict with their domestic responsibilities or requirements. The attrition rate in the Dublin area is higher than the national average and this continues to be a matter for concern. However, this is not a new phenomenon and has been identified as an objective for particular attention within the Defence Forces Human Resource Strategy, 2006-2010.

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6.4.2. Recruit training: review A Defence Forces board was convened in April 2008 to review in detail all aspects of recruitment, including attrition. The report will shortly be presented for consideration by the authorities. The IMG values the timeliness of this review.

6.4.3. Recruits: focus group The IMG was very impressed by the standard of the recruits who participated in the focus group. They were at the end of their basic training and showed a genuine awareness of the challenges within the PDF, the need for robust training and what might constitute bullying and harassment behaviour. They had clearly developed as a team and had a firm grasp of the concepts of duty, dignity and respect. They were very positive about their future careers in the Defence Forces and all were anxious to serve overseas, preferably in Chad, which they recognised as the most difficult and highly operational mission. 6.5. New Entrant Selection Investment by the Organisation in the selection process for new entrants should be proportionate to the level of the job involved and the costs arising from personnel who do not complete their training. There have been significant developments in this area since the IMG report in 2004 and these changes are: Cadets: An assessment phase has been added to the selection process for Cadets and includes an overnight in the Curragh incorporating: - A fitness test - Psychometric testing - A group exercise - A realistic job preview over a 24-hour period Air Corps Apprentices: Psychometric testing and a competency based interview have been introduced Recruits: The selection process includes: - A competency based interview - A medical examination - A physical fitness test The IMG recommends that, given the significant difference between civilian and military cultures and the relatively high ‘voluntary’ attrition rates for recruits, the inclusion of psychometric testing should be considered for recruit selection. Recruit Interview Board Training is now conducted by a Defence Forces Occupational Psychologist on an ongoing basis. The IMG understands that standard guidance for Recruit Interview Boards is being issued across the Defence Forces.

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6.6. New Entrant Training The initial training of each Cadet, Apprentice, or Recruit is designed: ♦ to provide the basic skills for performance in the PDF ♦ to be a basis for further development ♦ to introduce the new entrant to the culture of the Organisation ♦ to inculcate each individual with the military ethos and values In 2008 the IMG affirms that the purpose of initial selection and training is: - to produce the soldiers, sailors and airmen/women required for the modern

Defence Forces All members of the Defence Forces must be prepared to function effectively in a situation of military conflict. The success of the mission, their own lives and those of their comrades may depend on their ability to do this. Consequently, all military training must be robust. This is particularly the case with new entrant training, because, in addition to imparting particular military skills, the training must manage the individual in the significant transition from a civilian culture to a military one. The challenge to the Defence Forces is to balance the demands of robust training with the individual’s right to dignity in the workplace. This balance is not easy to achieve and, in its first report, the IMG predicted that it would take some time. It is clear that there has been very considerable progress in this area. The focus groups with Cadets, Apprentices and Recruits in 2008 indicated that new entrants are now: ♦ alert to the support structures available to them ♦ confident in the process ♦ clear on what is required of them ♦ clear on what would constitute acceptable behaviour by themselves and their

instructors Each group conveyed confidence in and respect for their instructors and genuine appreciation for their dedication and hard work. Comments were endless about instructors’ readiness to work ‘after hours’ in order to enable recruits to achieve the required standards. However, the focus groups conducted with instructors and trained personnel in various locations highlighted a requirement for further re-balancing, or fine-tuning, in order to ensure that there is no compromise in relation to the essential robustness of training. 6.6.1. New entrants: ‘Soft Landing’

The concept of a ‘soft landing’ for all inductees into the PDF from 2004 was a genuine attempt to realise the Dignity Charter, to be sensitive to the sea-change from life as a civilian to that of a military person where even the requirement to wear boots, not sneakers or runners was indicative of two very differing worlds. The intention was to provide a ‘soft landing’ for the individual and reduce the degree of culture shock experienced.

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In practice, the new entrants are introduced to the PDF and given briefings on a range of subjects from interpersonal relationships to pensions. They are told what to expect in their training, what the Defence Forces offers them and what is expected of them. There is no formal military training during this period.

In 2008 the consensus among all focus groups, new entrants, trained personnel and instructors, was that this ‘soft landing’ period is too long. It may even be counter-productive by giving new entrants a misleading impression of actual training and life in the Defence Forces. The IMG recommends that: - the introductory period should last from three days to a maximum of one week

- some elements (career progression, pensions etc.) should be moved to later in the training course.

6.6.2. Robust Training: concerns in 2008 Concern was widely expressed in the focus groups that a minority of recruits in training challenge legitimate military instructions on the grounds of inappropriate behaviour or health and safety, either through ignorance or as a means of avoiding particular types of work. This is a matter of serious concern to the IMG because it undermines the legitimacy of the inherent and robust nature of military training that connotes: - Training that is vigorous, strong, sturdy and requiring strength by human beings

(sons/daughters/brothers/sisters/spouses/partners) whose cherished ambition is to deserve and earn membership of the PDF

- Training that is straightforward, clear and unambiguous

- Training that demands personal responsibility and commitment

- Training that is challenging, bold, unyielding while, at the same time, respecting the dignity of each individual involved, whether instructor or learner or recruit as well as the Defence Forces that promotes workplace dignity

- Training that means learning or acquiring the skills necessary to function effectively in the Defence Forces

- Training that is psychologically fit and in keeping with the Dignity Charter

Such behaviour by a new entrant can undermine the instructor who often feels the need to refer the matter to superiors for confirmation. There is a legitimate, professional concern by instructors that, if this behaviour is not effectively dealt with during basic training, it continues when the individuals are assigned to Units as trained personnel. This can have a very detrimental effect on morale among instructors during training and later among personnel at home or overseas who may encounter poor performance. This is a matter that must be resolved during basic training. Greater emphasis should be placed, during the introductory period, on ensuring that new entrants understand what is and, perhaps more importantly, what is not bullying and harassment or inappropriate behaviour. While instructors are trained on ‘Effective Interpersonal Skills for Leaders’ during their career courses and during pre course orientation and

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training, the IMG recognises that, equally, they should be given ongoing support and information to ensure that they are sufficiently confident in their knowledge to be able to deal with incidents on the spot. 6.6.3. New Entrant’s Information Handbook In January 2007 the Defence Forces introduced a New Entrant’s Information Handbook for the Army. This is now formally issued to all new entrants and provides them with information on the work of the Defence Forces as well as a range of issues on workplace interpersonal relationships. It also sets out, in summary for new entrants, what is required of them in their career in the Organisation. This excellent publication is very useful to the new Cadet, Apprentice and Recruit and was the subject of very favourable comment during the focus group sessions. The fact that the book is part of the Recruit’s kit has enhanced its relevance. Moreover, the IMG notes with pride that OSCE/ODIHR Handbook (2008, p.167) cited this development in the Irish Defence Forces as one worthy of replication. The IMG recommends that the planned publication of versions of the New Entrant’s Information Handbook for the Air Corps, the Naval Service and the RDF should be proceeded with as soon as possible. 6.7. Corrective Action

6.7.1. Context It is never easy to regulate sanctions or corrective action because between what is written and usage is individual to tutor/teacher/superior/instructor and the learner/ trainee, recruit or cadet. The OSCE/ODIHR Handbook (2008, p.218) in relation to best practices and recommendations states: ‘Commanders should use their position of leadership to build effective working relationships among their troops, thus fostering a climate of mutual trust and respect; An effective system of sanctions should be provided for in case of abuse of the command functions; In training, commanders should be made aware of their duty not to issue illegal orders or to impose illegal punishments; Illegal punishments should be outlawed, in particular collective punishment and punishment resulting in demeaning treatment, humiliation, or torture’. Understandably, since 2004, the Defence Forces has put a spotlight on training and therefore on Instructors. Forms of corrective action in particular were under scrutiny as Commanders at all levels sought to find appropriate procedures to deal with poor performance, negligence, abuse of command functions etc.

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6.7.2. Trainees (Cadets, Apprentices, Recruits and Potential NCOs): experience of corrective action The IMG found that Recruits were realistic about the need for corrective action, which generally consisted of physical exercise, essay writing or reduction of time off. The worst sanction for Recruits was the essay. More importantly the recruit experience indicated an admirable standard of recruit-management, fairness in general and fairness to individuals who may have been ‘back-platooned’ in order to achieve required standards of performance. Indeed, the overall message conveyed to the IMG was about Instructors who ‘bent over backwards’ to bring Recruits through. Corrective action in the Defence Forces is action that is aimed at correcting behaviour which, although deserving of reproof, does not constitute an offence or does not warrant disciplinary proceedings under military law. The issue of confusion among instructors about acceptable sanctions for trainees (Cadets, Apprentices, Recruits and Potential NCOs) was a matter of concern to the IMG in its first report in 2004. Since then a great deal of work has been done to clarify and standardise the approach to corrective action. The Director of Defence Forces Training, in October 2004, issued a Training Directive (TI 06/2004) to govern this area. This was followed, in May 2006, by a Training Syllabus (TS INF 56/2006) governing Pre Course Orientation for Instructors and this specifically provides for a workshop on corrective action to be carried out before training commences. In addition, ongoing seminars on corrective action have been conducted for instructors throughout the Defence Forces over the last four years. In 2008 the IMG sees these developments as a step in the right direction and the basis for emerging consistency across the Defence Forces. 6.7.3. Instructors and corrective action In 2004 (Response to the Challenge of a Workplace, p.23) Instructors expressed concerns about possible erosion of standards resulting from the strong emphasis on dignity etc. In 2008 the IMG was therefore alert to feedback from instructors. Their measured responses are acknowledged in this report. From the Instructors’ point of view there was agreement that neither the essay nor the very limited number of press-ups that can be given were helpful in bringing Recruits to grow in a sense of responsibility and best performance. In addition, considerable concern was expressed that current emphasis by Recruits on ‘their rights’ was leading to ‘softer’ training where NCO Instructors were fearful of using corrective action. A general perception among instructors is that, when complaints or issues arise, the system is now weighted too much towards the trainee. The perception is that they will not always receive the support of superiors when complaints or issues arise, even when they act within the guidelines and instructions. Moreover, there is a perception that action is not taken because of fear of a negative behaviour put on either an instructor’s or a superior’s record. A lack of balance in the provision of support between trainees and instructors, leading to fear for one’s future promotional prospects within the PDF is contributing to a weakness in training.

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This is a matter of concern to the IMG, given the nature of the rightful, necessary and robust training that is essential in any military organisation. The Training Directive makes it clear that the aim of corrective action is to ‘correct mistakes, promote military discipline and to clarify the standards of behaviour expected’. Moreover, the Directive states: ‘The aim must NEVER be to humiliate the student’. Examples of acceptable corrective action are given. However, perhaps because of a focus on the need for standardisation, it appears that in its application at the level of the Institution and Unit the focus has switched from the aim to the examples; these have been translated into limited and rigid actions that are applied in all circumstances in a ‘one size fits all’ approach. The IMG in 2008 is concerned that the pendulum may have swung too far in one direction in the last four years. The result may be that essential robust nature of military training is in danger of being lost. The answer will not be found simply in updating the Training Directive. Realistic case studies relevant to the Army, the Naval Service and the Air Corps need to be developed and used in training. Responsibilities (as well as rights) in the military context need to be emphasised. The importance of robust training was identified clearly overseas where there are continual challenges, often in unfamiliar atmospheres. A casual attitude, any lack of responsibility, unpunctuality etc. is detrimental to the mission of the Defence Forces. Instructors need to be able to exercise flexibility in utilising sanctions. The IMG acknowledges that sanctions outside training hours may be required. However, it is crucial that sanctions imposed out of hours are transparent, approved and supervised by superior officers. The issue of acceptance of ‘disciplinary charges under military law’ as a normal sanction was raised and the fact that any overuse diminishes and undermines both discipline and the usefulness of charges. Examples of Recruits passing out with several charges during training were given. The IMG views this as undesirable practice. To be effective, corrective action must present difficulty and require effort. Ideally, it should also be seen to relate to the weakness or non-compliance or unsatisfactory performance – though this is not always possible. It is not necessary to apply the same corrective action to each individual for the same behaviour. What is necessary, in such cases, is that the actions required present broadly the same degree of difficulty to each individual. Corrective actions should vary depending on the individual and the circumstances. While an essay may appear appropriate in a particular situation, it must be borne in mind that not all personnel have the same capacity to write an essay. Aptitudes vary. Moreover levels of dyslexia exist. The topic of the essay and the impact of the effort of writing it on the individual must be taken into account. The IMG is aware that the Cadet School set a limit of three A4 pages to ensure that Cadets do not lose sleep from

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carrying out this corrective action, which might then affect their ability to concentrate the following day. The IMG supports such a limitation for trainees in general but emphasises that the essay may not be appropriate corrective action for some individuals.

On physical corrective actions, thirty press-ups might be appropriate in the early weeks of Recruit training when personnel have not yet reached a high level of fitness; at that stage the activity requires a degree of effort. However, that same sanction could not be considered fit for a Recruit towards the end of the training course. The focus should be on the learning intended from the corrective action and away from embarrassment or humiliation of the Recruit. The type of corrective action used, and the manner in which it is conveyed, will continue to have far-reaching effects on the ethos of Defence Forces. While it is a human activity and exercise on the part of instructors it will never be perfect. Nonetheless, such was the depth and extent of concern expressed to the IMG in 2008 that it is important to continue to seek more effective ways of corrective action. The IMG recommends that, in the light of the experience to date, both the Training Directive (TI 06/2004) and the workshop on corrective action, that is conducted as part of the pre-orientation course for instructors, should be reviewed. The list of acceptable corrective actions in the Training Directive should only be used as a basis for training establishments to decide on their own corrective actions guidelines, which should then be regulated for in Unit Standing Orders. For example Cadet School Standing Orders allow for after-hours training projects (such as filling sandbags for future use) to be given as corrective actions. Wider use should be made of case studies rather than specific examples of ‘acceptable’ corrective actions. The case studies should be used in training and should form part of the pre-course orientation workshops on corrective action. It is important for training establishments regularly to discuss and assess the corrective actions in force. Standardisation should be in the approach rather than in specific actions and should be ensured through the seminars and other interactions between instructors of Training Institutions recommended by the IMG in its first report and elsewhere in this report. The importance of properly selected, qualified and experienced instructors who are supported in their crucial role cannot be over-stated. Their work is central to the Defence Forces. Potential Unit/Sub-Unit Commanders need to be fully aware of their role in the area of corrective action. The IMG recommends that this area should be included in the syllabus of the Junior Command and Staff course. Finally, the IMG recommends that the Training Diary be amended to include a separate section for recording corrective action; this will ensure that all records are contained in a single formally recognised document.

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6.8. Student Counsellors Since 2004 the Cadet School has had an officer designated as Student Counsellor, whose function is to provide advice and assistance to Cadets about personal or work related difficulties. This is seen as a very important appointment and one that has been of great benefit to students and to the Organisation. The IMG strongly supports this initiative by the Defence Forces and now recommends its extension to all Institutions involved in Recruit training. Furthermore, the IMG recommends that the title ‘counsellor’ be replaced by a more appropriate title. 6.9. Personnel not suited to military life

6.9.1. Context Not everyone is suited to the military life; neither is that career suitable for everyone. Whatever the sophistication of the selection process for new entrants there will often, if not always, be individuals whose unsuitability is recognised only after acceptance. The easy solution is to seek to enable each applicant to proceed and become a member of the PDF. It is more challenging to identify a mis-match between the Organisation and the person AND to enable such an individual to leave. During their training new entrants must be able to: ♦ assimilate the instruction

♦ learn and develop the necessary skills

♦ meet the prescribed standards of performance

The reality is that individuals learn at differing rates and some may have more difficulty with aspects of training than others. Having difficulties in training does not necessarily mean that the individual is unsuited to the Defence Forces. They may simply need extra help to reach the performance standards required. This may be true of new entrants who are school leavers or are already graduates, who have proven their ability to succeed outside of the Defence Forces. Faced with differing requirements and challenges a very successful graduate or indeed postgraduate may feel inclined to give up on military life. Those coming straight from the sheltered environment of school may face challenges of a different nature. 6.9.2. Another chance The Defence Forces supports new entrants both formally and informally. There is provision for extra instruction. Where there is a failure to pass a particular segment of training, ‘back-platooning’ (in the case of Recruits) or ‘back-classing’ (in the cases of Cadets and Apprentices) enables the individual to repeat that particular segment provided that time allows and that all other aspects of training and performance are already satisfactory.

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The IMG in 2008 is satisfied that where underperformance is due to slowness in assimilating instruction every effort is made to rehabilitate the individual; discharge from the Organisation is seen as a last resort. The Recruits’ focus group were confident that everything possible had been done to help the individuals concerned and that the system is fair. It was also evident that instructors demonstrate an admirable commitment to assisting students who are having difficulty, often working after hours voluntarily, providing extra tuition to students who were willing to avail of it. It was clear that this commitment is deeply appreciated by the students. However, some new entrants will simply be unsuited to military life and will fail to meet the required standards either through unwillingness or inability. A key function of training is to identify students who are not suited to a career in the Defence Forces and to facilitate their exit from the Organisation before passing out or commissioning. 6.9.3. Exit Challenges Concern was expressed during the focus group work that the need to help individuals to leave receives insufficient attention. It was suggested that if a new entrant exits the Organisation, willingly or otherwise, it could be a perceived failure by the staff of the Institution or Unit concerned. Concern was expressed that the idea that ‘everyone succeeds here and nobody drops out’ was a reality in some Training Institutions. This attitude, together with the difficulties of securing the discharge of an individual against their will, can result in a reluctance to address cases of unsuitability by ensuring that they leave the PDF. No selection system is infallible. While the systems used in selecting new entrants, particularly Cadets, are very thorough, there will inevitably be occasions, however rare, when candidates are selected who are not suited to a military career. Due to the intensity of the new entrant courses this unsuitability should become evident during training. Identifying and facilitating the exit from the Organisation of a new entrant who is unsuitable for a military career should be seen as a success of the training system and not as a failure. The IMG wishes to re-assure the PDF and its Instructors that it understands that, if military training is achieving its purpose, there will be an inevitable level of attrition of new entrants. Moreover, it is in the best interests of the new Recruit or Cadet or Apprentice as a person and the Defence Forces as an organisation that those who find they are unsuitable or who are identified as unsuitable should find an alternative career path. 6.9.4. Importance of Records The importance of keeping records on each individual in training was emphasised in a number of the focus groups and the IMG concurs with this, even though it is demanding on instructors. The diligent completion of weekly assessments on each

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individual and its recording in the Platoon Diary is a long-standing requirement and a proven practice, which should be assiduously maintained. 6.9.5. Final Approval Final Approval is a milestone within induction training coming within a period of three months following the date of attestation. It is a significant event and its importance needs to be emphasised at the outset to all inductees. It is the approval given by the Unit Commander of the Training Institution to each individual concerned to progress to the conclusion of initial training. If an inductee is not performing to the standard required this should be flagged to him/her on a week by week basis seeking improvement. Defence Force Regulations state that if at Final Approval time he/she is not considered suitable in all respects for service in the PDF then discharge should be initiated. The status of this event seems to have been somewhat diminished over time and the IMG believes that it is important. The IMG recommends that the point at which it is programmed in training should be reviewed. 6.10. Review of New Entrant Training In its first report the IMG highlighted the importance of reviewing Cadet training through a study of young officers when they have taken up duty. This study was completed. The IMG recommends that this process be extended to all categories of new entrant training and continued on an ongoing basis. On an annual basis commanders of Units to which new entrants have been posted during the year should report on the effectiveness of the basic training as reflected in the operational performance of those trained. In particular, an assessment of deficiencies in the training should be provided. Platoon Commanders and their NCOs who are managing new soldiers on completion of Recruit training should also be considered as a means of insight into the outcome of initial training.

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7. Supporting the Individual and the Organisation

7.1. Designated Contact Person (DCP)

7.1.1. DCP - Context In any workplace there will be individuals whose human qualities draw other workers/colleagues to trust them sufficiently to seek advice, share troubles and workplace anxieties etc. The IMG is aware that such people exist within the Defence Forces though they may never be designated as PSS or DCP or HRM. Nonetheless, as a major employer/organisation in Ireland, the Defence Forces is aware of the need to ensure that such a ‘service’ is recognised. Hence, the development of the DCP process introduced by the first IMG in March 2003 as one informal route for dealing with incidents of alleged bullying or harassment in the workplace. They recommended the appointment of a Consultative Team at national level to ensure an overall effective process for selecting, training and supporting DCPs.

A new Administrative Instruction A7 4, that included the right of the individual to have the support of a third party during an investigation, was formalised and issued within the Defence Forces. Thus the DCP service is a component of Defence Forces policy and procedures in Interpersonal Relationships provided for in Chapter One of the Administrative Instruction. HRM Section retains a database of members of the Defence Forces who have been trained as DCPs.

7.1.2. DCP Service The aim of the DCP service is to provide a voluntary informal resource for personnel of any rank who may wish to discuss an incident of alleged bullying or harassment as provided for in Administrative Instruction A7, paragraph 141.

Unresolved matters are referred by the DCP to any of the Defence Forces DCP Trainers and, if necessary, the issue is conveyed to the DCP Consultative Team at national level. Confidentiality is enjoined at all times. (See Appendix E)

Training continues to be provided by experienced trainers within the Defence Forces. In 2008 the Consultative Team consists of the Director, HRM Section (Chairman), a representative of RACO, a representative of PDFORRA, the Head Chaplain to the Defence Forces, an External Consultant and two DCP Trainers. The Secretary to the Consultative Team is a staff officer of HRM Section. The Team meets regularly under its terms of reference to:

- evaluate and monitor the DCP programme

- provide a link to DCPs for support and direction

- regularly review and respond to training requirements

4 ‘Admin Instruction A7 is a freely available document which encompasses military and civil law and outlines the Defence Forces policy and procedures for dealing with discrimination, sexual harassment, harassment and bullying’ (Launch of DCP, Designated Contact Person, Defence Forces Training Centre).

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- review ongoing changes in workplace legislation in relation to bullying, harassment, sexual harassment and discrimination; such changes are then introduced into the training of DCPs

- provide a link to the Defence Forces Steering Group, which is overseeing the implementation of the IMG Report, Response to the Challenge of a Workplace, September 2004

Numerous briefings and workshops have been held in all PDF Units throughout the country. By 2006 the HRM Section had increased the number of DCPs to two hundred and thirty two personnel trained in all PDF Units at home and on overseas missions. In 2008 the IMG acknowledges the generosity, commitment, courage and professionalism of those men and women in the Defence Forces who have volunteered/agreed to take on the role of a DCP, whether at home or on overseas service. Their contribution to the workplace cannot be fully measured because of the confidential nature of the DCP role. Nevertheless, the IMG is convinced of its value in human terms in promoting organisational culture by helping to resolve a range of issues at the informal level. The work of the DCP Training Team was critical to this development in the Defence Forces and its role is:

- to be available as a support to DCPs

- to deliver the DCP two-day training programme

- to nominate two members to the DCP Consultative Team

- to communicate as necessary to the Consultative Team issues arising from DCPs

- to acknowledge and understand that the Consultative Team acts collectively, as a corporate body

The IMG salutes the commitment, generosity and professionalism of the individual men and women who constitute the DCP Training Team and have proven their readiness to update their methodologies under the guidance of the Consultative Team. The IMG upholds the role of the Consultative Team in advising HRM Section on the selection of DCPs. The role of the Representative Associations is recognised as significant in developing the DCPs and in promoting awareness of their role at all levels in the Organisation. 7.1.3. DCP Training Programme The training programme consists of five modules:

1. Administrative Instruction A7, Chapter One and its key provisions for dealing with harassment, sexual harassment and bullying

2. Role of the DCP in the context of Administrative Instruction A7, Annex ‘D’

3. Understanding bullying behaviour, its characteristics, effects etc.

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4. Key skills: to develop DCP skills of listening, supporting etc. as a third party

5. Case studies: to ensure that each DCP has a clear understanding of the role; to facilitate role-play and learning from the case studies

Any changes in legislation since 2004 have been included in the training and follow-on workshops have taken place so as to meet this need. 7.1.4. Evaluation An evaluation of the DCP service was carried out as part of the terms of reference of the Consultative Team in September 2006. Throughout 2007 the Team continued to evaluate the outcomes of the follow up workshops. The evaluation confirmed that the service was being used, that the DCP role was understood and that the types of concerns being presented (bullying, harassment and sexual harassment) were being addressed. All workshops reflected that a cultural shift in improvement of interpersonal relationships has taken place within the Defence Forces. The evaluation highlighted the need for continual training and upskilling for DCPs. Among the areas suggested were A7, communication skills, case studies, dealing with senior ranks and conflict resolution skills. The DCPs identified a number of concerns for attention: confidentiality, fear that the role might not be understood, fear of retaliation or misuse of the service, unrealistic expectations of the role. The results of the evaluation were communicated back to the DCPs in subsequent refresher training days. The IMG is satisfied that the Consultative Team has a well-designed process of interaction with trainers and the DCPs to ensure continual evaluation and development. The training programme for DCPs continues and is currently being updated in order to include additional case studies for the Naval Service, Air Corps and overseas contexts.

In 2008 the IMG has considered the role and function of the DCPs to date through consultation with HRM Section, members of the Consultative Team that monitor the service, Ms Bernadette Kinsella, the external consultant, and individual serving DCPs in focus groups (including overseas). In 2008 the IMG notes that: - the Defence Forces was one of (only) two major employers in Ireland to initiate

and develop the concept of ‘contact persons’ as part of the informal process of dealing with workplace bullying and harassment

- the strong emphasis on confidentiality as expressed in the DCP Confidentiality Service Charter is crucial at this informal stage (see Appendix E)

- the PDF and the Representative Associations have invested significantly in growing this service and remain committed to its development

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- the DCP training programme is appropriately supported, monitored and updated under the Consultative Team, within the HRM Section of the Defence Forces

- the Representative Associations and the Chaplaincy have a key role to play in contributing to the process of supporting, monitoring, evaluating and upskilling DCPs

In 2008 the IMG recognises that everybody involved with developing this informal process since 2003 has contributed inestimably to the changing culture in the PDF. It would not be possible to ‘measure’ the extent of that change because the nature of the work of a DCP is that it is quietly supportive, confidential, and not formally recorded. Those who have participated as trainers and DCPs are to be congratulated for their enthusiasm and willingness to take on a challenging role and one that is not obviously rewarded. The IMG recommends that the DCPs continue to be supported by all Unit Commanders and their subordinate Commanders of all ranks.

7.2. The Personnel Support Service (PSS): Role and Function The PSS is a confidential information, education, support and referral service, designed to give Defence Forces personnel access to information and services both from within and outside of the military community. It is a key element of human resource management. There is a PSS office in every major installation in the Defence Forces, with a qualified Barrack Personnel Support Service Officer (BPSSO). The day to day functions of BPSSOs include providing information, assistance and counselling on a range of matters including taxation, social welfare benefits, housing, education, retirement, bereavement, stress, and interpersonal problems. The PSS also conducts pre-retirement courses annually for all ranks. These courses are very favourably received. In addition, each Brigade/Formation has a civilian Defence Force Social Worker whose tasks are to provide assistance (preventative and curative) and support to service personnel and their families, and professional guidance, where required to the BPSSOs. A recommendation of the ‘Challenge of a Workplace’ (2002) was that the ‘staffing of the Personnel Support Service should be reviewed to ensure that expertise and resources are sufficient to meet demand’. That review was incorporated into a full and wide-ranging re-evaluation of the entire PSS in 2006. As a result there are currently 44 people employed in the PSS, comprising:

- 7 Staff Officers

- 7 Social Workers

- 30 BPSSOs

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In 2007 the PSS dealt with: - 6,763 information queries

- 2,569 work related casebooks

- 2,961 personal casebooks

The IMG applauds the significant investment that has been made in training PSS personnel in recent years. Since 2004, eleven staff are either in the process of or have completed a Diploma in Employee Welfare with six more due to commence this course in 2008, thirty staff have completed a course titled Teaching Stress Management and nine have finished various counselling courses including bereavement and addiction counselling. All staff are trained in best practice in relation to traumatic stress and have been awarded the Critical Incident Stress Management Group Crisis Intervention Certificate from the University of Maryland Baltimore (UMBC). The UN has called on their expertise, as have a number of State and Semi-State institutions in Ireland. The PSS review and re-evaluation has contributed to ensuring that the Defence Forces is at the forefront of best practice in dealing with critical incident stress management. It was evident from the focus groups that the PSS staff is professional and experienced in dealing with the many issues that arise. The IMG recommends continued monitoring to ensure that the levels of resources and expertise in the PSS are sufficient to meet demand. 7.3. Independent Confidential Helpline and Counselling Service In 2002 ‘The Challenge of a Workplace’ had recommended the provision of an external counselling service for members of the Defence Forces. The committee that produced that report and relevant organisational research sought to enhance a more positive workplace culture where dignity was valued and practised. The recommendation resulted in engaging, after public tender, an Independent Confidential Helpline and Counselling Service for serving personnel. The service provider is Staffcare from Belfast. The IMG is satisfied that access to the Confidential Helpline has continued since March 2003. The service was endorsed by the IMG in 2004 and continues to date in 2008. Although the number of calls to the Helpline is small, averaging approximately twenty each year, the IMG agrees that the existence of an independent helpline and counselling service is very important for the personnel who do use it. The Helpline is one of a broad range of services within human resource management and employee relations. It was for this reason that the IMG recommended, in Response to the Challenge of a Workplace (September 2004): ‘the linking of the present service from Staffcare within the HRM Section’. This linkage has been achieved by appointment of the Officer-in-Charge (OIC) of the PSS as the only point of contact with Staffcare. Staffcare assesses callers to the Helpline and when counselling is sought by Staffcare it is financially authorised by OIC PSS who is also the established feedback loop on the number and category of referrals though not the identity of users.

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In 2004 a recommendation of Response to the Challenge of a Workplace was that an information card/ Tac Aide (similar to a bank card) containing the telephone numbers of Staffcare, the Personnel Support Service and the Chaplaincy Service was to be distributed to all personnel in 2004. These cards were distributed to all personnel that year and subsequently and are available from PSS offices. This information is now provided to new personnel in the New Entrant’s Information Handbook. However, newer personnel in the Naval Service seemed unaware of the service. It is acknowledged that the New Entrant’s Information Handbook being prepared currently for the Naval Service and Air Corps will address this issue. However, focus group research identified a preference for a separate Tac Aide. Therefore, the IMG recommends that the distribution of the Tac Aide be resumed. 7.4. Chaplaincy: Role and Function The Defence Forces Chaplaincy provides confidential, comprehensive pastoral and spiritual care at home and overseas. In addition, the chaplains support the families through contacts with local clergy in the parishes of personnel. Chaplains celebrate religious ceremonies in barracks at home and overseas and provide spiritual support during training periods including at the Glen of Imaal and Kilworth. They keep contact with past members of the Defence Forces as well as helping Recruits, Cadets and Apprentices adjust to military life. So it can be said that they serve at the beginning and end of the military career; in between, they are with the individual soldier on his/her path as much as the individual may want or need. An essential part of their training as chaplains is that they never intrude; they respect the dignity and uniqueness of each soldier and are completely trustworthy. In one very positive sense it might be said that the Chaplaincy service is the ‘other side of the coin’ of the PSS: both services are totally confidential: one is concerned with the individual and his/her spirituality (and for some personnel that will include a specific religious affiliation, for others there may not be such an affiliation). The Chaplaincy service will provide for liturgy and para-liturgy, both of which are the deeper sides of living. Through their contact with chaplains from other countries the Chaplaincy of the Defence Forces contributes to maintaining the profile of Ireland as a peacemaker. The chaplains are in a unique and valued position in that they are within the Defence Forces and yet not of them; they are not strictly part of the chain of command yet uphold and respect it. Given their commitment to the individual soldier, along with their close understanding and appreciation of the challenges of military life, the confidential service that each and all chaplains provide is a significant ministry and not one that can be measured. The IMG is aware that all denominations in the Defence Forces are catered for through the Chaplaincy service whose members include a Church of Ireland chaplain in the Curragh. Chaplains regularly invite other faith denominations into Barracks to meet personnel of their persuasions or engage in ecumenical services. The IMG acknowledges the commitment and support of all the denominations who so generously engage with the PDF. Since Catholicism is the majority faith in the Defence Forces the IMG appreciates that the Catholic Hierarchy play a more prominent role. In spite of depleting numbers of ordained priests the bishops have continued to provide individual chaplains of the

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highest calibre whose commitment to and respect for the mission of the Defence Forces is admirable. The IMG was aware of the need to consult with the Chaplaincy service albeit knowing the confidentiality of their role and therefore the limitations of what they might be able to say. The IMG wishes to thank Mons Eoin Thynne, Head Chaplain of the Defence Forces, for the measured and diplomatic insight of his contribution. 7.5. Complaints Procedure

7.5.1. Complaints relating to Unacceptable Behaviour Defence Forces Administrative Instruction A7, Chapter 1, which was re-written in 2003 and subsequently updated in line with current legislation in 2006, outlines the approach to the conduct of Interpersonal Relationships within the military work environment. The instruction details the policy and defines six specific areas of Interpersonal Relationships within the Defence Forces. Within each area ‘unacceptable behaviour’ is explained. The procedures for making and dealing with complaints of unacceptable behaviour are also set out in detail. Complaints may be made using the informal or formal approach. The informal approach consists of making another individual aware that their behaviour is offensive and unwelcome and reaching agreement with them as to future behaviour. The formal approach involves the complainant submitting a written complaint to their Unit Commander and the Commander dealing with the complaint either by using the legal/disciplinary process or administrative action. The formal process may include a review by a higher authority. As evidenced by the focus groups the IMG is satisfied that the current procedures for dealing with complaints of unacceptable behaviour are adequate. 7.5.2. Redress of Wrongs

The Redress of Wrongs (RoW) process operates under the provisions of Section 114 of the Defence Act, 1954, as amended. It provides a mechanism whereby any member who believes himself or herself wronged in any matter by any superior or other person may seek redress of the perceived wrong. The objective of the process is to resolve grievances at the earliest possible point within the military structure. The internal RoW process involves a review of the complaint by the complainant’s Unit Commander and may involve a referral to the General Officer Commanding the Brigade (GOC) and ultimately a referral to the Chief of Staff (COS). If the determination from the internal process does not meet the complainant’s approval, he/she may then refer the complaint to the Ombudsman for the Defence Forces (ODF). The following table provides statistics (as at 1 Sept 2008) on the number of complaints dealt with through the RoW process for the years 2004-2008.

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Year Total RoW Application

s

Resolved at Bde Level

Resolved at COS level

With-drawn

Referred to CIO

Referred to ODF

Upheld by ODF

2004 32 1 11 1 19 N/A N/A 2005 28 0 11 1 14 2 1 2006 96 23 21 16 61 30 18 2007 2092 64 14 14 N/A 1004 8

(to date)2008 (to 1/9/08)

1803 7 1 9 N/A 9 0 (to date)

1Complaints referred to the CIO in 2006 related to actions, which took place before 1st Dec 2005

2Includes 42 complaints submitted by one (1) person in relation to a particular incident and 6 complaints submitted by a second person in relation to a particular incident. 3Includes 98 complaints submitted by one (1) person. 4Includes 45 complaints (42 from one (1) person and 3 from another) where no ruling was issued by the ODF due to jurisdictional issues The statistics above show a definite increase in the total number or redress applications since the establishment of the Ombudsman’s office at the end of 2005. In line with this increase, the number of cases referred to the Ombudsman also increased significantly in 2007. The figures to date in 2008 indicate that this increase rate has now levelled off. The increases most likely arise from an increased awareness of the Office of the Ombudsman as well as increasing confidence in the system among members of the Defence Forces. The following table provides a breakdown of redress applications, by category of complaint, for the years 2007 and 2008 (as at 21 Aug 2008):

2007 2008 Category of Complaint No. of

Complaints% of Total

No. of Complaints

% of Total

Selection for Promotion

42 20% 17 10%

Selection for Course (Career)

39 19% 19 10%

Selection for Course (Non-Career) /Posting

11 5% 2 1%

Selection for Overseas Service 17 8% 7 4%Alleged Inappropriate Behaviour/Bullying

7 3% 2 1%

Others

931 45% 1332 74%

Total 2091 100% 1802 100%1Includes 42 complaints submitted by one (1) person in relation to a particular incident and 6 complaints submitted by a second person in relation to a particular incident. Of the 209 complaints, 100 were referred to the ODF 2Includes 98 complaints submitted by one (1) person. Of the180 complaints, as at 31 Aug 2008, 9 have been referred to the ODF The IMG accepts that only a small percentage of RoW applications relate to allegations of bullying and /or harassment.

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The IMG is aware that there are some issues relating to the operation of the current Redress of Wrongs process, from the perspectives of both the individual complainant and the Organisation. The IMG recommends a review of the internal redress system and procedures with a view to improving the operation of the system for all stakeholders. 7.6. Ombudsman for the Defence Forces In September 2005 the first Ombudsman for the Defence Forces was appointed and the Office became operational in December of that year. Under Section 7 of the Ombudsman (Defence Forces) Act, 2004, the first holder of that office, Ms Paulyn Marrinan Quinn, SC, has submitted two Annual Reports (2006; 2007). The Reports are a publicly accessible record of developments in a very specific Office long sought by RACO, PDFORRA and the Military Leadership as part of the modernisation of redress and complaints procedures. OSCE/ODIHR (2008) in relation to the first ODF in Ireland states:

‘The Ombudsman investigates complaints by members and former members of the defence forces. The Ombudsman’s task is to ensure that members and former members of the permanent defence force and reserve defence force have a rigorous, independent, and fair appeal for complaints they believe have not been adequately addressed by the internal military complaints process’.

The appointment of the ODF also fulfils one of the recommendations of IMG in 2004 and is to be welcomed. The role of the Office of ODF ‘became firmly established within the culture of the Defence Forces’ in 2006 (DOD and DF. Annual Report, 2006, p.78). Given the newness of the Office it was understandable and logical that the IMG report, Response to the Challenge of a Workplace (2004) became a resource, kindly acknowledged by the Ombudsman during a meeting with the IMG. Although we have not specifically considered the Reserve Defence Force (RDF) we welcome that there is accessibility to the ODF for the RDF (and indeed for former members of the Defence Forces). The ODF’s findings highlight the extent of complaints regarding career progression within the Defence Forces (Annual Report, 2007, p.5). The input of the Ombudsman has assisted the Defence Forces in the revision of a number of HR procedures including the production of selection procedures for career courses and overseas service. The recommendations in the Ombudsman’s reports to the Minister have also informed the revision of HR procedures. The IMG recognises that selection processes for promotions and career courses as well as overseas service is neither simple, straightforward nor easy to balance within the context of fairness, efficiency and human resource management. Moreover, the IMG is aware that selection policies within the scope of representation are subject to agreement between the Department of Defence/Defence Forces and the Representative Associations. Selection for promotion has been the biggest subject

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area of complaint to the ODF. The IMG understands that a new promotion selection system for enlisted personnel is nearing agreement. Perhaps more positively, the number of cases relating to alleged bullying and harassment was small (Annual Report, 2007, p.12). The ODF had no case in 2006 and in 2007 that Office upheld no case. 7.7. Monitoring Training - Brigade/Formation Monitoring Team The GOC 2 Eastern Brigade has a three-person team that monitors, in a supportive manner, all groups in training, up to potential NCO level, in various Barracks/Institutions. Their approach is deliberately informal and seeks to standardise the approach across the Brigade and support the Instructors in their role. After eight weeks of the Recruit training period the team visits a platoon, interacts with Instructors and then independently with the Recruits. The leader of the team gives the GOC a verbal report within twenty-four hours of the visit and a written report a day later. The Training Institution Commander is also given a copy of the report. The key to the success of this process is in: - selection of suitable people for the team

- the clarity of their function being understood by themselves, the Training Institution Commander and the instructors

- their skill in pursuing a low-key approach that is seen to be supportive of the training process

- the speed with which any matter of concern gets back to the GOC for resolution

The IMG recommends, in the best interests of equivalence of standards in Recruit training across the Organisation, the establishment of a monitoring team in each Brigade/Formation. 7.8. Company Sergeants

The daily reality is that Enlisted Personnel directly interact more with the Company Sergeant (CS) than with their Unit Commander. With the general shortage of junior officers in Units, the senior Company NCO is the individual who has a key role in that he/she gives continuity and stability as well as being the role model for all NCOs in the Unit. The resulting impact of the CS can be that of a powerful motivator, encouraging a positive attitude etc. The focus group of Company Sergeants identified the importance of their role in leading and developing personnel. As role models they are promoting Defence Forces culture and practices. It is therefore important that the career role of the CS be recognised and supported. Their role, among others, is to implant Defence Forces policy on interpersonal skills, thereby providing continuity in implementing the Dignity Charter.

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It is recognised that Senior NCO Seminars are now being conducted at the Leadership Centre of Excellence in the Curragh incorporating these areas. It is important that all CSs and equivalents get an opportunity to attend these seminars on a regular basis. The IMG acknowledges the importance of the role of the CS and recommends that they be considered a priority, particularly in relation to interpersonal relationship training and leadership development. 7.9. Junior NCOs In practice, no matter how young the Junior NCO, he or she will be dealing with personnel who have just completed their initial training. On the one hand the Junior NCO will quickly learn how effective that training has been. On the other hand the Junior NCO will be developing that training through experience. Moreover, the IMG believes that an effective Junior NCO will influence positively the future career path of those that he or she leads and manages during their initial stage in the Defence Forces. The IMG recommends that the Potential NCO training syllabus should devote particular attention to developing self-awareness and skills re.: managing/mentoring effectively; understanding how attitudes are developed, the power of their own example and influence as NCOs . 7.10. Health, Safety and Welfare– structure, policy, ensuring ‘best practice’ In 2004 the Defence Forces published the Chief of Staff’s Risk Management Policy. This was followed by the introduction of a formal health and safety risk management system. Since 2006 there has been an ongoing programme of external audit of this risk management system by the State Claims Agency. Health & Safety staff, with professional qualifications, have been appointed in each Brigade, Air Corps and Naval Service. Health & Safety policies and procedures have since been updated incorporating ‘Safety, Health and Welfare at Work 2005’ legislation, the Code of Practice on Health & Safety 2005 and the European Agency Directive 83/391. The Assistant Chief of Staff is the Defence Forces Risk Manager and is chairman of the Steering Group on Risk and Health & Safety. He has responsibility for the implementation of Health & Safety at Work policies and the management of associated risks within the Defence Forces. The IMG commends the Defence Forces who successfully achieved compliance with the system standard in all areas audited in 2006 and 2007. As always, when a workplace or organisation merits praise, it is important to recognise that behind the workplace are real individual men and women at all levels who have worked hard to achieve organisational success and the IMG salutes them.

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8. Supporting the Instructor 8.1. Supporting the Instructor: Context Response to the Challenge of a Workplace (September 2004) strongly emphasised the importance of the role of the instructor. Positive change in this area was identified as a key contributor to the required change in the culture and practices of the Defence Forces. Four years later the IMG has considered and researched the functioning of the instructor role with great care, listening to members of the PDF at every level in this regard – including personnel during and after training. 8.2. Importance of the role of the Instructor Instructors (Officers and NCOs) play a very important role in every area and level of their work within the Defence Forces. However, when operating at the ab initio level (with Recruit, Apprentice, and Cadet), instructing new entrants to the Defence Forces, their role is critical. The OSCE/ODIHR Handbook (2008, p.210) states: ‘Officers and NCOs need to be trained not only in the exercise of leadership, but also in military law, human rights, and international humanitarian law. As a result of this training, officers and NCOs are expected to acquire a thorough knowledge of their duties, to develop a sense of justice, and to learn how to be a model for their subordinates’. In 2008 the IMG agrees that Instructors play a significant part in determining how effective new entrants may be throughout their careers and consequently, their level of workplace/career satisfaction. In short, the Instructor: - is a role model for young soldiers/sailors/air corps personnel - introduces new entrants to the culture of the Defence Forces - by his/her own attitude and behaviour, influences the young person’s attitude to

duty, to colleagues, to superiors, to the Organisation - has the power of influence and can therefore ensure the maintenance of a positive

culture into the future - teaches/imparts the specific skills and behaviours required, through a rigorous and

robust training as befits the nature of military life Instructors on Cadet and Potential NCO Courses are responsible for shaping those who will be the future instructors at all levels; in effect, they are ‘teaching the future teachers’. New instructors will often teach the way they themselves have been taught. That may not always be best practice today. Instructors on Cadet and Potential NCO Courses must, therefore, be models of best practice. The Cadet School is responsible for the initial formation of the future leaders of the Defence Forces, not just in the area of training but in every aspect of its operations. Its graduates will have the most profound impact on determining the culture and effectiveness of the Organisation into the future. The best Officer and NCO instructors and role models must be assigned to the Cadet School. Ensuring that this is achieved on an ongoing basis will require specific measures in selection, reward and recognition and training.

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Since 2004 considerable work has been done in relation to instructors. In 2008 the IMG met many instructors and was impressed by their quality, dedication and professionalism. They displayed stronger confidence regarding interpersonal relations and workplace challenges. There was greater clarity among instructors on the boundaries of acceptable instructor behaviour than was evident four years ago. However, these instructors have the difficult task of providing the required robust training in the context of human dignity to personnel who are new to the military training regime and culture. The instructors need a range of supports to help them to achieve this. In 2004 the IMG stated that supporting instructors in their role required a long-term commitment that would challenge the Director of Defence Forces Training and the HR Section. In 2008 it is clear that progress has been made but more needs to be done. Some of the 2004 recommendations have yet to be fully implemented; others may need to be adjusted in light of experience to date. 8.3. Specialised Instructor Course The minimum qualification recommended in 2004 for selection as an instructor (permanent and temporary) in the general training institutions was:

- NCO instructors - Potential NCO Course (all modules) - Officer and NCO instructors - Specialised Instructor Course

The Director of Training has issued a newly designed syllabus for the Specialised Instructor Course and seven courses for officers have been conducted to date. The syllabus will be accredited as part of the Defence Forces plan to link all courses within the Government’s national education framework. Specialised Instructor Courses have not yet been conducted for NCO Instructors. Discussions on the commencement of this course for NCO instructors are ongoing with PDFORRA at C&A forum. This Course has been a significant development that addresses, in particular, the unique requirements of those employed as an Instructor in the Cadet School (or NS/AC equivalents) or one of the BTCs (or NS/AC equivalents). The IMG is of the view that this Course is key specialised instructor training. It is not easy to provide enough courses (especially the Specialised Instructor Course) to cater for the backlog of existing instructors as well as the newly selected ones. Turnover of personnel, due to promotions and postings at home and overseas, exacerbates the problem. Nonetheless the IMG remains concerned that, currently, personnel may be employed as instructors in these institutions for significant periods before they complete the course. This is not acceptable. Recognising the difficulties in this area the IMG in 2008 recommends that, with effect from 1 January 2009,: - At least one Specialised Instructor Course should be conducted in each quarter of

a year (Jan-Mar, Apr-Jun, Jul-Sept, and Oct-Dec). These should be provided for in the annual Training Directive. Additional courses may be required initially to deal with the backlog

- Permanent instructors may be posted to an institution without having completed the course, but must complete the next quarterly course after the date of posting

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- Only personnel who have completed the course should be employed as temporary instructors in these institutions

- The recommendation of the IMG in 2004 regarding the ‘Instructor’ badge should be implemented.

8.4. Handbook for Military Instructors Acknowledging the very important role that Instructors (Officers and NCOs) play with the Defence Forces and to improve overall training and the standardisation of instruction for all Instructors, the IMG understands that it is planned to introduce a new ‘Handbook for Military Instructors’. The purpose of this Handbook is to provide a single source that will assist in the task of making teaching in the colleges and schools of the Defence Forces more effective and efficient. The Handbook is concerned, primarily, with the practical activities of teaching and with those learning theories which are closely linked with instruction. It is proposed to include certain modules of the Handbook into current Instructor training on a number of identified courses. The introduction of the Handbook will also assist the Defence Forces in achieving quality assurance in the delivery of training and education arising from the Organisation’s commitment to seeking external accreditation within the Government framework for its courses. 8.5. Selection

8.5.1. Criteria for Selection Characteristics of openness and transparency should be evident in all competitions, including selection of instructors in the general training institutions. To facilitate this, and to assist personnel in career planning, clear criteria (both desirable and essential) for selection as an instructor should be advertised in advance. The IMG recommends that these criteria should be standardised across the Defence Forces for appointments in similar institutions (e.g. BTCs). 8.5.2. Temporary or Attached Instructors The general training institutions often need temporary or attached instructors for the initial stages of training; students are new, lack knowledge, and must be socialised into the military ethos and benefit from the higher instructor-student ratio; it also provides assurance in relation to health, safety and welfare for beginners. This initial stage in adult learning is acknowledged in the relevant literature. The learners are open to influence, and attitudes and behaviours can become set. The reality in the Defence Forces is that temporary instructors often play a role in shaping new entrants and/or potential NCOs far beyond that of their normal instructional duties. These temporary instructors are often removed from their home stations for the period of their attachment. They may have more interactions with students outside normal duty hours than permanent instructors. It is common practice for them to be available informally to students after duty hours to give advice, guidance, or assistance with areas of the course that may be difficult for individuals.

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In 2008 the IMG learned from various groups of new entrants that: - availability of temporary instructors after duty hours is appreciated very

much

- these instructors can influence the student attitudes to the Organisation and military career in a significant manner

The IMG recommends that as much attention should be paid to the selection of temporary instructors as to permanent instructors. 8.5.3. Selection of temporary or attached instructors There are often insufficient applications for what is perceived as the unattractive role of temporary or attached instructor. In 2004 the IMG recommended that a panel of suitably qualified candidates should be drawn up by the institution concerned and that a board should process selection from the panel for such posts. In 2008 the IMG appreciates that a centralised approach did not prove practical. In practice, individual units within the Formation in question are instructed to provide temporary instructor(s) and the selection is left to the Unit Commander. Pressure of commitments and limited human resources mean that this system does not guarantee the provision of properly qualified and/or suitable instructors. However, subject to the implementation of the recommendations at 8.3 above (including that only personnel who have completed the Specialised Instructor Course should be employed as temporary instructors) the IMG is satisfied that selection at unit level should continue. 8.5.4. Selection for the Cadet School In 2004 the IMG recommended that all vacancies for officer instructors in the Cadet School should be advertised throughout the Defence Forces, all qualified officers should be eligible to apply, with selection by a board convened by the Chief of Staff and including at least one officer from the Cadet School. It was also recommended that the board should select on the basis of file perusal and interview and have clear criteria for selection. In 2008 the IMG acknowledges that this recommendation has been implemented and the revised system is operating effectively. The Cadet School is the premier training institution of the Defence Forces with a unique role in the formation of the future leaders and as the ‘standard setter’ for training institutions. Consequently, the appointment of Officer Commanding the Cadet School is critical to the ongoing development in the training area of the Defence Forces. The IMG acknowledges that the Chief of Staff has statutory responsibility for the appointment of all Unit Commanders in the Defence Forces. While the IMG does not wish to diminish that responsibility it recommends, in the case of OC Cadet School, that all officers of Lt Col rank be invited to submit ‘expressions of interest’ to the Director of HRM Section when the appointment is being filled. It also recommends that the Chief of Staff should then consider the suitability of potential holders of this

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specific appointment in conjunction with the advice of the Deputy Chief of Staff (Support), the Assistant Chief of Staff and the Director of HRM Section. 8.6. Reward and recognition Great emphasis has been placed by the IMG on the fundamental importance of the role of instructors and the need to ensure that the most suitable personnel are attracted to these positions. This can only be achieved if the appointments are seen as attractive from personal and career perspectives. The Defence Forces demonstrates how it values the instructor role through the reward and recognition system. In 2004 the IMG included a number of recommendations, not all of which have been implemented. In 2008 the IMG learned from meetings with various groups of instructors about persistent difficulties in this area. In general, the instructors do not feel sufficiently valued by the Organisation and these appointments are not seen as career enhancing. This is a matter of concern to the IMG because of the importance of instructors. To emphasise the pressing need for more progress the recommendations that follow include those from the IMG report in 2004 that have not yet been implemented. Badges and flashes are an important part of the status and identity systems of military organisations. Personnel who have successfully completed the Specialised Instructor Course should be entitled to wear an ‘Instructor’ badge on their uniform. Instructors should have access to external training and courses that enhance their capacity to instruct in the Defence Forces. A survey of courses available in external educational institutions should be undertaken to identify what might be relevant and of benefit to instructors in the general training institutions. Within existing training policy, access to suitable accredited external courses should be made available to instructors of all ranks on an ongoing basis. This would provide a direct benefit through transfer in of knowledge as well as providing an incentive/reward for instructors. The revised Instructors’ Allowance recommended by the IMG in 2004 has been put in place for officers in consultation with RACO. Discussions on the introduction of the equivalent instructors allowance for NCO Instructors are ongoing with PDFORRA. To qualify for the allowance personnel must have completed successfully the Specialised Instructor Course and be employed as an instructor in the Cadet School (or NS/AC equivalents) or one of the BTCs (or NS/AC equivalents). While eight courses will have been conducted for officers by the end of 2008 the recommendations at para 8.3 above should address the issue of ensuring that all Instructors are trained in a more immediate timeframe. Giving certainty that selected personnel are qualified and consequently paid the Instructors Allowance is considered essential towards having a well motivated instructional staff.

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8.7. Review of Staffing In respect of the staffing of organisations of the institutions (Cadet School and BTCs, including Air Corps and Naval Service equivalents) the IMG in 2004 recommended two reviews: 1. A review of the organisation of the institutions with the aim of increasing the

number of senior NCO appointments in each – the benchmark for the number of such appointments to be that of similar institutions internationally

2. A review of their establishments (overall number of instructors) with a view to

obviating, as far as possible, the requirement to avail of the services of temporary instructors

In 2008 the IMG accepts that increasing the number of senior NCO appointments would be difficult because of the need to rotate personnel out of the institutions regularly to ensure freshness among instructors; it might, therefore, result in the blocking of senior NCO appointments in other areas. The IMG also accepts that the number of instructors required by an institution at a particular time or for a particular course is dependent on a number of variables and that this would make it extremely difficult to arrive at a single optimum establishment that would obviate the need for temporary instructors. It must be stated, however, that the current staffing organisation of these institutions means that there are difficulties in both capacity and incentive that must be addressed. Instructors often find that they are unable to secure release at the appropriate time for career courses and for service overseas, both of which are necessary for promotion. This may act as a disincentive and is contrary to the approach to career paths recommended by the IMG elsewhere in this report. The IMG in 2008 recommends an immediate review of the staffing levels of these institutions with the aim of creating sufficient capacity to facilitate the release of instructors for career courses and overseas service at stages consistent with the career profile norms for their rank and service. At the very least these instructors should expect to undergo career courses and serve overseas at the same time and with the same frequency as they would if they were serving in a line unit. 8.8. Ongoing Training for Instructors and Equivalence of Standards Details and modes of instruction will vary depending on the nature of the course and of the students. However, it is important that there is consistency in the general approach by all instructors on a particular course. Such consistency should be evident within and across training institutions. The IMG in 2008 is aware that such consistency and equivalence of standards needs planning, support and professional monitoring within the Defence Forces. In 2004 the IMG recommended that ongoing training for instructors should take the form of seminars to be conducted at two levels: - Institution level, and - Defence Forces level

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In relation to institution level it was recommended that each institution should conduct seminars for its own instructors on a bi-monthly basis to provide mutual support among instructors, to discuss issues and developments and to ensure a standardised approach within the institution. The IMG is aware that seminars at institution level as recommended in 2004 are taking place though with insufficient frequency. These seminars are very important and the IMG recommends that they be included formally in the Annual Training Directive. In relation to seminars at Defence Forces level, it was recommended that a two or three-day seminar for senior instructors from each training institution should be conducted centrally, within the Defence Forces, on an annual basis. The aim of the seminar was to update personnel on developments, review common problems and ensure a standardised approach to ‘training trainers’ across the Organisation. The DFTC, with the Cadet School in the lead, was given the task of co-ordinating and hosting the seminars for general training institutions. The DFTC has conducted a number of these seminars and the IMG understands that they will be fully formalised through the Annual Training Directive from 2009 onwards. In addition to the seminars discussed above, Instructors of Recruit, Apprentice, Cadet and Potential NCO Courses are required to undergo a five-day, ‘Pre Course Orientation and Training for Instructors’ course. This course is conducted in the relevant training institution before the commencement of each course and provides a commendable degree of consistency within and across the training institutions of the Defence Forces. In 2008 the IMG commends the training of a recruit platoon encountered in the Second Eastern Battalion (2 E Bde). The Platoon Commander developed consistency of approach by working with her team during the preparatory phase before commencement of the course. Procedures and actions were clarified, agreed and subsequently re-visited at fortnightly meetings with all of the instructors so as to review and co-ordinate action and maintain a positive focus on the development and training of the recruits. This is an excellent model, the success of which was evident in the IMG discussions with the recruits themselves. The IMG recommends that a similar approach, if not already in use, should be adopted in all cases. The IMG also recommends the establishment of formal links at instructor level between the general training institutions to enhance this development. This should include programmes of short instructor exchanges (e.g. two weeks) between the institutions.

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9. Career Development The concept of career development planning is to enhance the Defence Forces continuing ability to attract and retain best people for military life. A well-planned and identifiable career path for all personnel aims ultimately to enable them ‘to fulfil their roles effectively and ensure fulfilment of individual training and developmental goals’ (HRM Strategic Objective 3, 2006-2010). 9.1. Performance Appraisal Reports

9.1.1. Context People need to know how they are doing in the workplace. Good performance should be recognised and poor performance addressed. A formal performance appraisal has become a usual form of evaluation and is often tied in with salary increase, a bonus, and promotion or performance development. There are two problems about appraisal: it usually takes place only once a year and often lacks the kind of specificity that would contribute to motivation.

9.1.2. PDF appraisals Performance appraisal is important in the context of promotions and performance development within the Defence Forces. The performance appraisal system currently in place involves as a minimum an annual review; it is comprehensive, well established and in line with best practice. However the infrequency of formal performance feedback was a concern among the focus groups. Personnel movements between Units, including overseas, and the work demands of the system have contributed to appraisal reports not being compiled in some cases and therefore no record being on file for promotion competitions. While recognising the difficulties involved, the IMG recommends that the agreed procedures, governing the performance appraisal system, be strictly adhered to. Evidence from the focus groups indicated that junior officers would benefit from additional training in the area of performance appraisals. At present they get very limited instruction on the conduct of appraisal interviews as part of career progression courses. The IMG recommends that this be addressed. The IMG in 2004 noted that as part of its strategic plan HRM section had planned a review of the NCO Performance Appraisal System. The IMG in 2008 recommends that this review should now take place. 9.2. Access of Enlisted Personnel to Commissioned Ranks Significant progress has been made recently in implementing schemes to provide more enlisted personnel with the opportunity of achieving commissioned rank. The following table details the numbers of enlisted personnel commissioned from the ranks since 2004:

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Type 2004 2005 2006 2007 2008 Total Cadetship 2 1 2 6 4 15 Potential Officers Course 0 0 0 0 24 24 Direct Entry 1 1 1 0 3 6 Total 3 2 3 6 31 45

The revised cadetship competition is now seen as the primary means of providing enlisted personnel with access to the commissioned ranks. The cadetship competition has been revised to increase the maximum entry age to 28 and to award bonus marks to candidates with previous experience in the Permanent Defence Force (PDF) or the Reserve Defence Force (RDF). The IMG recommends that this area should be monitored to ensure that it remains effective as the primary means of providing enlisted personnel with access to the commissioned ranks. Since 2004, 6 members of the Defence Forces were commissioned as officers from Direct Entry Competitions for appointments as Engineer Officers in the Corps of Engineers, Conductors in the Army School of Music and Aeronautical Engineers Officers in the Air Corps. An internal Commissioning from the Ranks competition was held in June 2007. This competition provided an opportunity for enlisted personnel who had passed the Cadet entry age to compete for entry on a Potential Officers Course and ultimately, a commission. As a result of the competition, a total of 24 applicants (23 males and 1 female) were selected from the ranks of Junior and Senior Non-Commissioned Officers. Following successful completion of training in the Cadet School, these enlisted personnel were commissioned on 10 June 2008. The policy on the running of similar future competitions, to provide Non-Commissioned Officers with the opportunity of obtaining commissioned rank, is being addressed. This issue is also included in the Defence Forces Modernisation Action Plan agreed under Towards 2016. 9.3. Procedures for Selection for Promotions, Courses and Overseas

9.3.1. Context A recurring theme in the Annual Reports of the ODF (2006; 2007) is that personnel in the Defence Forces present complaints and appeals mainly about non-selection for promotion or a career course or overseas service. Any employer, trade union leader, HR manager, university researcher, psychologist, career coach or counsellor, even political leader would probably not be surprised at such findings. It may even be a universal truth that the individual who applies for promotion (or access to a promotional course) may tend to wear unique ‘spectacles’. That is neither negative nor positive in itself but leaders and HR managers discount it at their peril. It is nearly impossible for adults to avoid biases in perception and attitudes. Schermerhorn (2008, p.83) points out that when faced with failure the individual may use ‘selective screening’; what triumphs is the individual’s perception of his/her experiences, qualifications, abilities, skills, and competencies; in addition the disappointed person may have a perceived right to promotion in the workplace.

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Pritchard and Ashwood (2008) state that everyone in a workplace will not agree on the fairness of a reward or promotion system. Some people will argue that performance alone should dictate the reward. Others will want factors such as the inherent need of the job, seniority, and knowledge of the job to be the criteria. Moreover, if a workforce agrees on the criteria it is probable there will not be agreement on each individual’s score. Individual perception becomes the individual’s personal truth. The best that human resource management can do is to ensure that the promotion system is as fair as possible. Management also needs to be alert to the sensitivities surrounding the fairness of a promotion system while at the same time remaining focused on organisational needs. The IMG is convinced that the issue of fairness and unfairness in relation to promotion, access to courses or to overseas service will not go away. Bearing international HR research in mind there is no perfect system that can avoid negative perceptions and experiences and promote positive acknowledgements of management in the activity of selection and promotion. There will always be the disappointed candidate. The IMG is aware that members of the PDF contact the ODF as a ‘last resort’. The IMG treats seriously the reasons for such access. In spite of admirable advancements in HRM made by the Defence Forces since 2004, it is clear that the challenge of selection for promotion, access to courses and overseas service will persist. Selection systems are rarely perfect and need to be continually assessed and developed against the most ethical standards. The IMG supports the greatest possible transparency in relation to the criteria and processes used by the PDF. Transparency promotes fairness.

9.3.2. Selection for Promotion It is a fact that equality implementation was a hugely challenging issue for the IMG and its Equality Steering Group in 2004. At that stage, equality issues focused particularly on selection, the interview process, redress and protection. In 2008 in relation to interview boards the IMG acknowledges that the Defence Forces is in line with best practice in terms of composition and task. In 2008 the focus groups revealed ongoing discontent about selection and interviews for enlisted personnel in particular. Moreover, the IMG is conscious that the ODF, in her Annual Reports (2006; 2007), has recorded concerns around selection for promotion and courses. The IMG understands that a new promotion selection system for enlisted personnel is nearing agreement. It will be a welcome development. The new arrangements will incorporate most of the recommendations of the 2004 Report and introduces a fundamentally changed system that will contribute to the changing culture in the Defence Forces. The IMG recommends that, as soon as this new agreement is in place, an awareness campaign of briefings should be undertaken by HRM Section so as to ensure that all

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enlisted personnel are familiar with the details of the agreement. They should also be displayed on the Intranet. 9.3.3. Selection for Overseas Service and Career Courses All persons who have enlisted or have been appointed as Officers in the PDF on or after 1 July 1993 are subject to mandatory selection for all overseas peace support missions. Clearly, selection for overseas is an issue for personnel as Ireland continues to fulfil its commitments to the UN, Partnership for Peace (PfP) and the EU.

Part of HRM Strategic Objective 4, 2006-2010 is the continual updating of the policy on overseas selection in order to:

♦ meet the needs of the Defence Forces

♦ meet the career aspirations of individuals

♦ address work-life balance matters

An updated written policy on overseas service for the Army, the Air Corps and the Naval Service was issued in 2008 and is available on the Intranet. HRM Section issued interim procedures for selection of enlisted personnel for career courses and overseas service in 2006. These are under discussion with PDFORRA at Conciliation & Arbitration Forum and the IMG understands that a conclusion is near. The IMG recommends that, as soon as these agreed procedures are in place, an awareness campaign of briefings should be undertaken by HRM Section so as to ensure that all enlisted personnel are familiar with the details of the documents. They should also be displayed on the Intranet. In relation to the selection of officers for overseas service, there is a long-standing agreement governing their voluntary selection. An agreement was reached in 2008 governing the mandatory selection of officers for overseas service.

9.3.4. Appeals procedure for Overseas Service and Career Courses In 2004 the importance of an appeals procedure for career courses and overseas service was highlighted in the context of workplace morale (Response to the Challenge of a Workplace, p.37). This procedure has now been fully incorporated into the interim selection procedures for enlisted personnel for career courses and overseas service and the IMG understands that this will also be incorporated into the finalised procedures.

As things stand, a person can submit a redress of wrongs application while this appeals procedure is underway. The IMG recommends that the appeals procedure should be exhausted before a Redress of Wrongs application is investigated. This may require a change to regulations and/or administrative instructions.

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9.4. Feedback from Selection Boards

No matter what the sophistication of a selection process, its purpose is to select for appointment the best person for a particular job. Selection is, therefore, partly based on a belief that human beings can predict future behaviour and performance. At best, that might be described as an uncertainty. Nevertheless, considerably progress has been made in the last decade generally in selection and recruitment.

Officer Promotion Boards provide written feedback to candidates under the headings ‘strengths identified’ and ‘areas for development’. Scored marks are also notified under various selection criteria. The IMG understands that a new promotion selection system for enlisted personnel, which has yet to be concluded, is likely to provide similar feedback. The IMG recognises that a lengthy process of selection for officer promotions takes place each autumn and that up to 200 promotion boards for enlisted personnel are also conducted annually. Feedback to enlisted personnel on the selection process for career courses is in accordance with agreed procedures and is provided by way of a written Assessment Report which outlines details of the selection criteria, marks awarded and the place in the order of merit. A copy of the Assessment Report is forwarded to each candidate personally. Individuals who volunteer for overseas service and are not recommended and/or selected are required to be informed of: their non-recommendation and/or non-selection; the reason for same and are given, where possible, a projection of the likely timeframe and mission for which they can again volunteer. An applicant who is not recommended or selected may appeal in accordance with a designated procedure that is timebound. Mandatory selection also has a similar appeals procedure.

The IMG welcomes ongoing developments in these areas.

9.5. Mid-Career Survey A mid-career survey for all ranks was recommended by the IMG in 2004. For various reasons this has not taken place. As stated in section 5.6.2, the IMG recommends that priority be given to the exploration of mid-career issues in the context of career development and retention of personnel. 9.6. Career Development and Planning Career development and planning is ultimately the responsibility of the individual. However, the individual requires some support and assistance from the Organisation to do this.

The IMG understands that a structure for advice within Units has been in place for some time. A Military Career Planning Office was established within HRM Section in 2005. Progression on an updated system of career advice has been slow to date. Utilising experience gained, the IMG recommends that the Defence Forces should progress this issue.

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10. Continual review of Progress This is the second report of the IMG. The IMG recommends that a further review of progress should take place before the end of 2013 and that the following should form the IMG: External Expert Representative of Defence Forces Representative of RACO Representative of PDFORRA Representative of Department of Defence The IMG recommends that the next review should focus, appropriately, on how the Reserve Defence Force will have developed.

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Appendices

APPENDIX A - Membership of the IMG The IMG in 2004 was representative of the General Staff of the Defence Forces, the Department of Defence (DOD), the Representative Associations of officers and enlisted personnel (RACO and PDFORRA), with an independent, civilian cathaoirleach. In line with the recommendations of that group in 2004, the decision of the Minister for Defence in 2008 was to re-establish the IMG in order to ascertain as efficiently as possible what progress had been made in the intervening four years. As a result the IMG was re-constituted and comprised of the following: Dr. Eileen Doyle, Cathaoirleach Mr. Maurice Quinn, Assistant Secretary, Department of Defence Maj Gen David Ashe, Deputy Chief of Staff (Support) Col Brian O’Keeffe, General Secretary, RACO Mr. Gerry Rooney, General Secretary, PDFORRA Ms. Aileen Nolan, Principal Officer, DF Personnel Policy Branch, Department of Defence [Secretary to the Group]

Three of the six IMG members had served on the first IMG: the two General Secretaries (RACO and PDFORRA) and the external Cathaoirleach.

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APPENDIX B - Recommendations from 2004 The following is an extract of the recommendations of the IMG contained in the Executive Summary, Response to the Challenge of a Workplace (September 2004)

A number of recommendations relevant to the various sectional headings are to be found throughout this report – all of them important and relevant to an organisation that is seeking to embrace cultural change in a very challenging environment. In that context the IMG has identified nine key recommendations as follow: 1. Acceptance and Ownership of the Problem When addressing issues of interpersonal behaviour, solutions are not always found by devising and implementing specific remedial measures. An honest acknowledgement that there is a problem often contributes a major part of the solution. At present, there is an acknowledgement within the organisation of the need to address unacceptable behaviour within the Defence Forces and a wide range of practical and useful measures are being implemented. However, the debate among military personnel that followed the publication of The Challenge of a Workplace (2002) has probably made a more important contribution to positive change than any of the formal measures that have been introduced. The danger that military training may drift into the realm of unacceptable behaviour – either through accident or otherwise – is constant. Therefore it must be accepted that there will never be an end to the task of shaping and policing behaviour and that this role is an integral part of command. The duty of vigilance must be explicitly assigned at a senior level in the organisation and constantly re-emphasised to those in positions of authority. Each GOC and FOCNS has a particular responsibility in this regard. DCOS (Support) as the driver of HR reform in the Defence Forces has a leading role in ensuring that the momentum behind this process is maintained. It is the view of the IMG that it is incumbent on the GOCs to ensure that the function of HR is a key concept at every level. However, nobody in authority can disown his or her role and responsibility in modelling, leading, challenging, monitoring and where necessary, challenging workplace behaviours. 2. Equality Matters The IMG recommends that the HR Section of the Defence Forces should put an awareness process in train by November 2004. The IMG recognises that equality legislation continues to develop in Ireland as part of the EU and there is a need for all workplaces to strive to keep up to date in this regard. The IMG recommends that a programme of regulation revision along the lines recommended by the Equality Steering Group be now set in train. Progress should be evaluated as part of the review process recommended at paragraph 9 below. 3. Provide Training for the Trainers and professionalise the Instructor Role Different individuals have different aptitudes. An excellent or even the best practitioner of a skill may not be an ideal teacher, although this is often assumed mistakenly in many walks of life. Those who train military personnel must be selected on the basis of personal suitability for instruction. Once selected, they must then be provided with training and mentoring on a structured basis. Otherwise they may have little option but to rely on their own experience and simply imitate the

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training methods in use on them during their own time as a trainee – for better or for worse. Thus, the wide variation in training standards and practices may be sustained indefinitely. The practice of regular meetings between instructors in all training centres should be encouraged and facilitated. This will ensure that best practice in training, motivating and role modelling is discussed, highlighted and valued. This issue is explored further in Section 4 of this report. 4. Assessment Criteria should be Explicit Decisions that influence an individual’s career progress – for example in marking examinations, assessments or promotion competitions – must be taken on the basis of explicit criteria. Where possible, there should be a structured marking system. Bad practice can flourish in a vacuum where both decision-maker and subject may have widely differing expectations of how a system should operate. Where too much is left to the unguided discretion of an individual, then consistency will be lost and decisions are vulnerable to perceptions of bias and favouritism. In cases where there are regulations, these may be excessively complex or outmoded, or alternatively, personnel may not always be familiar with them. 5. Punishment and Training need to be Completely Separated Supposed ‘punishments’ should not be imposed for the purpose of toughening up an individual or group. If it is desired to toughen trainees – and this is a perfectly legitimate and necessary objective in a military organisation – then, appropriately tough and demanding training should be organised. However, the positive purpose of such training should be clear to both trainer and trainee. In this context, it must be accepted that military training may be harsh, even severe, in order to prepare soldiers for the hazards they may face on operational service. For example, in the course of a properly supervised and regulated training environment, military personnel might have to go without food or sleep. They might have to endure extremes of physical and mental fatigue. However, to impose such burdens for the purpose of punishment is simply unethical. And this highlights an important paradox: there are practices that are quite legitimate as training but which are offensive and completely unacceptable if imposed as punishments. 6. Constant Communication In response to The Challenge of a Workplace, there has been a major communications programme, linked to a variety of training initiatives. However, as personnel are rotated frequently through different appointments, certain key messages may become diluted or even lost fairly quickly. The very significant effort that has been put into implementing that report will have a very limited shelf life unless it is continuously renewed. Both military management and the representative Associations have a shared responsibility to maintain the momentum created in the past two years. 7. The Power of Example Real change is led by practical example; it cannot be imposed through seminars and paperwork. There is universal acceptance at an abstract level of the principles underpinning the Dignity Charter, DFR A7 etc. It is possible that an individual in a position of authority may espouse sincerely the principle of dignity in the workplace while remaining blind to shortcomings or inappropriate behaviour within their area of

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responsibility. For these reasons, whenever lapses are brought to attention, they must be dealt with in a way that strongly reinforces the organisation’s unambiguous disapproval. In a hierarchical organisation, staff may pay more attention to implicit messages such as the example set by superiors than to the explicit messages set out in formal written instructions. 8. Staffing the new HR Section To ensure its success, it is important that officers of talent will be motivated to serve in the HR Section. A certain level of staff rotation is desirable to ensure the professional development of officers. In the course of its work, the IMG was presented with the view that officers need to serve in the full variety of roles at each rank in order to achieve promotion to the next level. The IMG is pleased to note that management thinking has evolved considerably over recent years. The General Staff are now actively promoting the view that experience is judged over an individual’s career as a whole. Within any given rank, all appointments are regarded as providing equivalent opportunities for personal and professional development. For example, service in an area such as HR will provide the same potential for career development as command of a unit or sub-unit. 9. Continual Review of Progress The IMG is of the view that in 2007 a professional review of progress within the Defence Forces should take place and that this should be published. A group representative of the following should conduct such a review: • Military Management • RACO • PDFORRA • Department of Defence • External Expertise

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APPENDIX C - Focus Groups & Meetings

Focus Groups

The following table is a record of the Focus Groups:

Focus Group Date Location Potential Officers Course 21/4/08 Cadet School, Curragh Cadets 21/4/08 Cadet School, Curragh Cadet School Instructors 21/4/08 Cadet School, Curragh Recruits 15/5/08 Cathal Brugha Bks Recruit Platoon Instructors 15/5/08 Cathal Brugha Bks Brigade Monitoring Group 28/5/08 Cathal Brugha Bks Members of Guard Platoon KFOR 28/5/08 Kosovo Logs Company personnel KFOR 29/5/08 Kosovo DCPs (Overseas) KFOR 29/5/08 Kosovo Naval Service 6/6/08 On board LE Eithne Air Corps Cadets and Apprentices 12/6/08 Baldonnel Air Corps Instructors 12/6/08 Baldonnel Mid Career Personnel (PDFORRA Reps) 12/6/08 Baldonnel Mid Career Personnel (RACO Reps) 12/6/08 Baldonnel USAC Officers 4/7/08 Curragh Coy Sgts and Equivalents 4/7/08 Curragh

Meetings

The IMG met with the following:

Chief of Staff

Defence Forces Steering Group

Ombudsman for the Defence Forces

Ship’s Captain of the Naval Service Offshore Patrol Vessel – LE Eithne

Officer-in-Charge Personnel Support Service

Head Chaplain Defence Forces

External consultant to the DCP Consultative Committee

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APPENDIX D - DCP Confidentiality Service Charter All information disclosed to a Designated Person (DCP) by a colleague who approaches and engages with a DCP will be held in strictest confidence.

A DCP will acknowledge positively any approach by a colleague and will treat that person with respect and dignity.

A DCP will not prejudge the person or the situation but will be in a position to support, enable and inform the colleague as to how best to manage the situation.

A DCP will engage in his/her role in a responsible manner and in accordance with the Guidelines for DCP as outlined in Annex D.

A colleague who approaches a DCP for support, engages in this process on the full understanding that he/she also has a responsibility in relation to upholding the integrity of the process and for maintaining confidentiality.

A DCP will offer confidentiality within the limitations set out hereunder. Reference will be made to paras 146 and 155 of Admin. Instruction A7.

Where a DCP has indications:

• that there is a potential danger or threat to one person seeking support, or to any other person, such as assault or threat of suicide for example or,

• that a serious criminal offence may have been committed, or

• that a matter constitutes a breach of security

the DCP will report the matter to the Commanding Officer or the person/s concerned. In any such case the DCP will also advise the person concerned that the matter is

being reported directly to their Commanding Officer. In a crisis situation of potential danger, such as assault or suicide for example, as well as the Commanding Officer being contacted, it may also be appropriate, depending on the situation, for any of the following to be contacted: a PSS, Chaplain or Medical Officer.

The DCP Confidentiality Service Charter will be subject to ongoing review.

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