The Defence Forces of Saorstát Eireann were formally constituted on the 1st October, 1924. Prior to that date the abnormal circumstances of the time had necessitated the hasty collection of a large force to deal with internal disturbance. The 1st October, 1924, therefore, may be said to mark the beginning of a peace-time force, so that we have now had three years' experience of army development on normal lines. Those three years have seen a marked increase in the efficiency of the Army and a steady decrease in expenditure on the forces. The decrease in Army expenditure is clearly shown in the Appropriation Accounts published, and is reflected in the Estimates now presented to the House. The estimated expenditure for the year 1925-26 was £3,053,117. The estimated expenditure for the year 1926-27 was £2,483,785. The estimated expenditure for the year 1927-28 is £2,183,767—that is to say, that in two years a total reduction of £870,000 has been made in the estimated cost of Army expenditure. The figures for actual expenditure for the years 1925-26 and 1926-27 are less by a considerable sum than the estimated figures. I see no reason to doubt but that in the present year it will be possible also to effect a saving.
The decrease is in the main accounted for by a decrease in strength. The reduction since 1925-26 has been, approximately, 4,500. But other factors have also contributed to the decreased expenditure. Some of these factors are, the increase in administrative knowledge in the Army itself; the adoption of a system of store and supply accounting, which rigidly controls the issue of stores, provisions, etc., and an intensive development of the system of contract purchases under competitive tender.
An important feature of the recent development of the organisation of the Army has been the creation of the reserve. Provision was made for the cost of the reserve in the last financial year, but the difficulties associated with its formation were such that it is only recently that it was found possible to complete and promulgate the regulations governing it. The formation of the reserve will involve a further reduction in the effective strength of the standing Army, and when the policy in regard to its creation has fully materialised a still further decrease in normal Army expenditure will be shown.
Regarding normal Army expenditure, I might take this opportunity of explaining that, apart from that expenditure, there will, in the coming years, be expenditure which can more properly be described as capital expenditure. In fact, in the present estimates it will be found that there is some capital expenditure included in the total sum, such as field kitchens and aeroplanes under sub-head "O." In regard to war material, the Army has, up to now, been to some extent relying upon more or less out-of-date stores taken over in 1922. It is a matter of common knowledge that certain types of war material have a limited "life," and if efficiency is to be maintained replacements of such material from time to time are essential. Much of the material taken over in 1922 has now outlived its period of use, and it will therefore be necessary in the next two or three years to expend certain sums on capital outlay of this nature over and above what would be required for normal replacements.
As I have already stated, the present estimates show a decrease as compared with last year of over £300,000. On examination of the various sub-heads it will be found that there are decreases on most of the sub-heads, there being out of a total of 30 sub-heads increases on only five, these increases being to some extent casual. Thus, on marriage allowance the increase is occasioned by the new regulations which fixed a percentage of married soldiers for units. The percentage scheme involved a slight increase in the total number of men authorised to be placed on the marriage roll. The increase in the wages of civilians attached to units represents an increase in the tradesmen attached to the Engineer Corps. The small increase in general stores can be strictly described as casual. The increase under the heading of warlike stores is in the nature of capital expenditure. In sub-head Y—Office of Minister for Defence, etc.—the increase represents expenditure which was formerly shown under sub-head C.
It is, of course, right to say that these Estimates were prepared in December of last year. We are now six months away from that time. In those six months savings have taken, and are taking, place. For the information of Deputies who were not in the last Dáil, perhaps it would be no harm to point out that in a new service such as the Army, with the unusual circumstances surrounding its inception, the large number of scattered posts it was called upon to defend in the various districts of the country, and the necesary gradual reduction in the number of these posts and in the personnel, it is practically impossible to estimate down to the degree of accuracy that should be expected from a normal service. We have not yet reached absolute normality in the Army, but we are approaching that stage rapidly.
When introducing the Estimates last year the then Minister for Defence outlined the policy of the Executive Council in the matter of the Army. That policy has not changed. It is the view of the Executive Council that it is essential for the safety of the State that there should exist an organisation for its defence, capable of preventing internal disturbance or disorder, and of defending Irish territory from violation by any enemy. It will be always necessary to maintain a nucleus of sufficient strength and training to form the basis for a rapid and efficient expansion in time of need to the maximum strength of the country's man power. In peace time the average citizen is inclined to regard war as a very unlikely contingency, and is, accordingly, liable to overlook the necessity for defence preparations. Experience shows, however, that it is too late to sharpen one's sword when the drum beats to battle. Our aim is to maintain the necessary nucleus at the lowest possible cost consistent with efficiency, and for this purpose we aim at training all ranks of the standing forces in duties of a more advanced nature than those which are ordinarily assigned to each rank, so that if the necessity should, unfortunately, arise there will be available sufficient officer and non-commissioned officer material within the standing Army and in the Reserve to enable whatever additional forces may be required to be called upon to be trained and put in the field with the minimum delay.
The details of the Estimates which are before you have been exhaustively examined and analysed both in the Department of Defence, which is the Department primarily responsible, and in the Department of Finance, and every care has been exercised to ensure the utmost economy. I shall be prepared to deal with the points of detail as they arise under the various sub-heads.