I welcome the Minister for Defence, Deputy O'Dea, and his officials. The purpose of the meeting is to consider the motion that Dáil Éireann approve the report by the Minister for Defence pursuant to section 4 of the Defence (Amendment) Act 1993, copies of which were laid before Dáil Éireann on 11 November 2004. The select committee is required, not later than 28 June, to send a message to the Dáil in the manner prescribed in Standing Order 85. Members have been given a copy of the information notes supplied by the Department of Defence, together with the Minister's speaking note. I now invite him to make a brief presentation on the report referred to in the motion.
Section 4 of the Defence (Amendment) Act 1993: UN Missions: Motion.
In accordance with section 4 of the Defence (Amendment) Act 1993, I am glad to report to Dáil Éireann on Irish military participation in UN missions. The report for 2003 was laid before the Dáil on 11 November 2004 and the following motion has been placed on the Order Paper:
That Dáil Éireann approves the report by the Minister for Defence pursuant to section 4 of the Defence (Amendment) Act, 1993, copies of which were laid before Dáil Éireann on 11 November 2004.
In commending the motion to the select committee I will outline some of the key aspects of Ireland's involvement with the United Nations in recent years. The Defence Forces continue to make a major contribution to international peacekeeping through their participation in peace support operations. During 2003 an average of approximately 750 personnel were involved in UN or UN-mandated missions. Defence Forces personnel were deployed on 14 missions in Africa, Europe, the Middle East and Asia.
During the first six months of the year under review, 2003, our largest overseas commitment was in Eritrea with the UN Mission in Ethiopia and Eritrea, UNMEE. A contingent of the Permanent Defence Force, comprising 209 personnel, provided a guard and administration company. Twelve additional members of the Permanent Defence Force served at force headquarters in Asmara, Eritrea. The Irish contingent concluded its service with the mission in June 2003, following the completion of three rotations.
Towards the end of the year under review the Defence Forces maintained Ireland's long and historic association with the African continent when in December that year a contingent was deployed for service with the UN mission in Liberia, UNMIL. This contingent comprises a motorised infantry battalion of some 430 personnel. A small number of additional personnel have also been deployed at force headquarters and as military observers. Sadly, at the start of the Defence Forces involvement with this mission, Sergeant Derek Mooney lost his life while on duty in Liberia and one of his colleagues was injured. The Defence Forces contingent in Liberia is currently Ireland's largest overseas deployment since our contingent was withdrawn from UNIFIL in the Lebanon in 2001. Relative to our size, available resources and capabilities, both financial and military, Ireland is proportionately a very large peacekeeping contributor within the international community.
As well as the above missions, Irish personnel were also engaged in other UN missions in Cyprus, the Middle East, western Sahara, the Balkans, East Timor, the Democratic Republic of Congo and the Ivory Coast. Seven Irish personnel who had been serving with the UN Iraq-Kuwait observer mission, UNIKOM, on the Iraq-Kuwait border were repatriated to Ireland following the suspension in March 2003 of the mission prior to the outbreak of hostilities in Iraq.
As members will be aware, the nature of peacekeeping operations is changing from traditional UN-led missions to regionally-led peace operations, with the onus being placed on regional states to organise and assemble peacekeeping troops for the purpose of discharging a UN mandate. These missions represent the trend in UN peacekeeping where missions operate under the control of an established command structure or a lead nation rather than under the direct command of the United Nations. This change has implications for the manner in which operations are organised and structured, with much greater emphasis being placed on bilateral relations with established military command structures such as NATO and the European Union between participating states and troop contributing countries.
During 2003 Ireland participated in two NATO-led UN-mandated missions in the Balkans — KFOR and SFOR. Ireland currently contributes an APC mounted infantry group of some 205 personnel to KFOR, following the replacement in September 2003 of a transport company which Ireland had provided for KFOR since 1999. For the greater part of 2003 the Defence Forces continued to staff a number of posts in the SFOR headquarters in Sarajevo, following the withdrawal of the SFOR military police contingent in January 2003. In December 2004 a contingent of the Permanent Defence Force was despatched for a period of one year for service with EUFOR, the EU-Ied mission-operation in Bosnia and Herzegovina established under the authority of the United Nations as the legal successor to SFOR in Bosnia and Herzegovina. Ireland currently contributes 54 personnel to EUFOR. The deployment of Defence Forces personnel to these missions was approved by Dáil Éireann in accordance with established procedures for the deployment of armed Defence Forces personnel overseas.
Since July 2002 Ireland has supplied seven personnel to serve with the international security assistance force, ISAF, in Afghanistan. NATO assumed leadership of this force which operates under a UN mandate on 11 August 2003. In mid-2003 Ireland contributed five personnel to the first EU-Ied peace support mission outside Europe — Operation ARTEMIS in the Congo. This mission which was launched in June 2003 and concluded in September that year was deployed at the request of the United Nations.
If Ireland is to continue to provide personnel for service in the cause of international peace and security, its capacity to integrate with the command structures of other nations and regional organisations must be optimised in order that the Defence Forces can deploy at short notice to missions and immediately commence effective operations. This requires preparation, training and practice to achieve acceptable levels of interoperability with other forces across a range of skills and competencies.
In October 1998, in furtherance of Government policy on participation in overseas peacekeeping operations, Ireland signed a memorandum of understanding with the United Nations regarding the United Nations standby arrangements system, UNSAS. Under this arrangement, Ireland committed to providing 850 personnel, configured as a light infantry mounted battalion. From within our existing UNSAS commitment, Ireland has offered up to 850 members of the Defence Forces as its commitment to the EU Helsinki headline goal — EUHHG — otherwise referred to as the EU rapid reaction force, EURRF. The United Nations is increasingly looking to regional organisations such as the European Union to conduct peacekeeping operations on its behalf.
In light of Ireland's long history and commitment to United Nations operations, it is a natural progression that it should participate in the deployment of the new structures such as PfP and the EU headline goal. This will place it in the best position possible to meet its obligations to UNSAS and to the maintenance of international peace and security. Through its participation in the new structures, Ireland can make an important and positive contribution to the future development of international co-operation in the area of crisis management operations and can influence the manner in which international security and peacekeeping policy develop.
Members will be aware of the record of the Defence Forces in this regard. I should emphasise that decisions on participation on any particular mission remain a sovereign issue. Such decisions will be made on the basis of an assessment of a mission and the contribution Ireland can make to it. In addition, a mission must have a UN mandate and, in accordance with Irish law, must be approved by the Government and Dáil Éireann.
I draw the attention of the committee to the humanitarian aspects of Ireland's participation in peacekeeping missions. In the international environment, humanitarian tasks increasingly go hand in hand with military tasks in peacekeeping missions. This has been a particular facet of Ireland's participation in overseas missions over the years. In this regard, Irish troops serving overseas display not only their professional commitment in fulfilling the United Nations mandate but also their support and encouragement for local people. In Liberia, an AIDS hospice run by the Missionaries of Charity is currently being assisted on a personal voluntary basis by members of the Irish battalion. Most of this work is completed by Irish Defence Forces personnel, on a voluntary basis, in their spare time. The main source of funding towards this humanitarian work comes from funding from Development Co-operation Ireland, DCI, and through moneys raised by Irish contingents.
These types of projects are part of the manner in which Ireland continues to discharge its peacekeeping mandate, which respects and supports the dignity of the people and communities we serve. I take this opportunity to acknowledge the excellent work of the Defence Forces, which I observed when I visited the UN mission in Liberia last December and during my visit to Kosovo last month, in this regard. Their work and commitment to local communities is much admired and remarked upon by the people in the areas in which they serve.
In 2003, Ireland was entitled to reimbursement of troop costs in respect of five missions, namely, UNIFIL, UNFICYP, UNMISET, UNMEE and UNMIL. Reimbursements totalling approximately €3.96 million were paid to Ireland by the UN in 2003, leaving a total of approximately €9.22 million owed at 31 December 2003. The annual extra cost, net of reimbursements, of our commitments to the UN funded missions to which I refer in respect of 2003 was approximately €300,000. From 1 January 2004 to date, the United Nations has reimbursed approximately €13.11 million. The amount owed to Ireland as at 31 May 2005 by the United Nations in respect of contributions toward troop and other costs associated with the participation of Irish Defence Forces personnel on UN missions is approximately €9.3 million.
As well as the extensive involvement of Irish military personnel in United Nations peacekeeping operations, a number of Irish officers have held the most senior and prestigious appointments with several United Nations missions since our involvement first began. I pay tribute here to the contribution made by Major General Carl Dodd during his term as Chief of Staff of UNTSO. At the request of the UN, Major Dodd's appointment was extended for a further year from 1 April 2003. Such appointments bring prestige and honour, not only to the Defence Forces but also to the country. I also pay tribute to the members of the Garda Síochána for the excellent contribution they make to the cause of international peace by their participation in overseas missions.
Participation in overseas peacekeeping missions is a key element of Ireland's foreign policy and has been an important dimension in meeting Ireland's international obligations as a member of the UN and the EU. Irish foreign policy is directed at supporting co-operative arrangements for collective security through the development of international organisations, particularly the United Nations, and supporting effective international action in areas such as disarmament, peacekeeping, development and human rights. This approach continues to define Irish priorities within the UN system and Ireland remains willing to play a full role in contributing to the security of Europe and the world.
Ireland continues to build on a long tradition of service to the founding principles of the United Nations by making practical commitments of personnel on a continuing basis. Notwithstanding the considerable undertaking which it represents both in financial and personnel terms, the Government remains committed, with due regard to the safety of our troops, to the principle of military participation in United Nations peacekeeping operations in the cause of international peace. This represents a huge contribution for a nation the size of Ireland and it has been made possible by the willingness of the Irish people, represented by successive Governments, to play their part in assisting with conflict resolution by responding generously to calls from the United Nations down the years.
I commend the individual soldiers who have served and who continue to serve on overseas missions, together with their families and loved ones. Without their loyal and continuing support, Ireland's strong tradition of service overseas, under the auspices of the United Nations, would not be possible. Their committed and dedicated service in overseas missions reflects well, not only on the Defence Forces but also on the nation, and contributes to the excellent reputation which Ireland holds among peacekeepers throughout the world.
The committee also commends all the soldiers who serve overseas and who are such great ambassadors for the people of Ireland on the fine job they do.
On the EU headline goal, there is a word that I did not come across here. I am sure the Minister knows it. I am wondering how it has not appeared.
The Chairman is referring to the "B" word.
Yes. Before the Minister answers, I call Deputy Sherlock, the Labour Party's spokesperson on defence.
This is the normal procedure to get this motion adopted. Does it involve an issue of peace enforcement rather than peacekeeping by our troops travelling abroad? Is there a change in the policy in that regard?
I thank the Minister for his report. He mentioned an outstanding sum, €9.3 million, that is due. Does that refer to moneys outstanding as at December 2003? If further moneys have been paid by the UN since then, why does that amount appear to be outstanding from the period in question? It is merely a technical query.
The Minister referred to our commitment to peacekeeping missions and stated that it is a key part of foreign policy. I ask him to expand on that and perhaps explain why Ireland appears to have a greater commitment to such missions than other countries. It seems to be held out as a major element of Ireland's foreign policy. I wonder why Ireland seems to contribute more than other countries to these missions.
What is the Minister's assessment of risk to Ireland's troops, particularly in Liberia? When they went there, the political and security situation was very unstable. What is the Minister's up to date assessment of the risks involved?
I welcome the Minister. I commend the work of our Defence Forces abroad, particularly that with the United Nations, and the fact that there are over 750 personnel on 14 different missions. It is important that we record our support and commendation for them.
Does the Minister agree that people risking their lives under the United Nations abroad buries the myth that Ireland, as a neutral country, is not playing a positive role in international peacekeeping? I am getting sick and tired of hearing members of some political parties maintaining that Ireland is sitting on the fence because it is not directly involved in NATO and that it is not making a massive contribution to international peace. Let us bury that myth.
The Minister stated that seven Irish personnel who were serving with the United Nations on the Iraq-Kuwait border were repatriated in March 2003. Was that because the war commenced?
In July 2002 Ireland deployed seven personnel to serve with the international security assistance force in Afghanistan. There is a reference to "the NATO-assumed leadership of this force". While I have no problem with Irish forces serving under a UN mandate, I am concerned about them serving under the leadership of NATO. Does this signal a change in direction?
There are 850 Irish soldiers involved in the EU rapid reaction force. I hope there is no change in policy that such involvement requires a UN mandate as well as approval by the Government and the Dáil, that is, the triple lock mechanism.
During his visit to Liberia, did the Minister see any evidence that the situation on the ground had improved in the past 12 months? Concerns were expressed that, apart from the ongoing political conflict, there was a problem with dysfunctional and drug-addicted teenagers carrying arms. Has the position improved radically in the past year?
I welcome the Minister and his officials.
Does the triple lock mechanism come into force when we are sending troops to serve on missions overseas? In other words, is approval required from the United Nations, the Government and the Dáil and must all three actors be in agreement before troops can be sent abroad? What level of interest is there among the Defence Forces in service overseas? Is it difficult to get soldiers to opt to go abroad, given the major sacrifices required of their families when they are absent for long periods, or is there a queue of soldiers waiting to go?
The Chairman asked a question about battle groups. I answered questions on the issue in the Dáil recently, as Deputies McGrath and Sherlock are aware, and the situation has not changed since. When one is talking about the EU Helsinki headline goal, one is referring to the ability to respond rapidly. One element is deployment of what are known as force packages or battle groups. This is an element of the rapid reaction force programme about which the Government has not yet made a decision in terms of how it will contribute. A decision has not been made because the Government remains committed to the principle of the triple lock mechanism whereby participation by Irish troops in peacekeeping operations overseas requires a decision by the Government, a Dáil resolution and a UN mandate.
There are a number of issues related to this aspect of the rapid reaction force programme that may conflict with that commitment. We are trying to find a way to participate while maintaining the triple lock mechanism. However, it has priority and if we cannot participate within its terms, we will not do so. The study group is engaged in the process of determining if there is a way to participate while abiding by the terms of the triple lock mechanism. I met it recently and have requested an early response on the matter. On receipt of that response, the Government will make a final decision.
Deputy Sherlock asked a question about peacekeeping and peace enforcement. The Petersberg tasks determine the duties to be performed by troops sent abroad. The definition of such tasks has been expanded. They can now range from humanitarian missions to peace enforcement. When the United Nations is mandating a particular operation, the terms of the mandate will vary according to whether it is a peacekeeping or peace enforcement mission. There will either be a Chapter 6 mandate which governs peacekeeping or a Chapter 7 mandate which governs peace enforcement.
Deputy Power asked whether any portion of the €9.3 million outstanding from last year had been paid? Since January 2004 the United Nations has reimbursed approximately €13.11 million which includes the sum of €9.22 million to which the Deputy referred. As of 31 May 2005, the amount outstanding for other activities engaged in throughout the region was €9.3 million.
Deputy Power also asked why we appeared to be making a greater commitment than other countries. If one compares the size of our population, Army and GNP with those of other countries, we are certainly among the best in the world in terms of our commitment to UN peacekeeping missions. The reason for this is that successive Governments, regardless of their composition, have taken the view over the past 50 years that Ireland should play its part. The belief has been we should play a decisive role and respond generously whenever the United Nations requests our help. Our disproportionately high level of commitment stems from the desire of the people for us to participate and is reflected by the generosity of successive Governments which have taken the view that this is what the people want. They have been correct in that our troops have performed magnificently and are hugely respected all over the world, not only for their professionalism in military matters of peacekeeping but also for their voluntary engagement in humanitarian tasks.
Deputies Power and McGrath asked about the assessment of risk in Liberia. It is true that when the mission was first deployed, the level of risk was high but the situation has stabilised considerably since. I was in the country recently — I hope to return later in the year — and an interim government had been put in place. Elections are due to be held in October. The desire for democracy is developing and a considerable number have ambitions to become President. The elections will be very competitive and nothing will happen prior to them. We hope they will be conducted peacefully. When they are over, the situation may be that some Liberians will be unhappy with the results. Therefore, we will have to be on the alert because some may not react positively to the outcome. In the West we are used to people accepting the results of elections and, if they lose, consigning the fight to another day. Unfortunately, that may not happen in Liberia. We are conscious of the fact, therefore, that there might be an escalation of violence in October, depending on the reaction to the election results.
Several Deputies mentioned the issue of child soldiers who have presented a potent threat in Liberia. Since the diminution of military hostilities they have presented a threat because of drug abuse and because they are being used by those involved in organised crime. Reports indicate widespread drug and alcohol abuse among their ranks. Ultimately, when the elections take place and an acceptable government is put in place, they will have to be reintegrated into normal society. The international community is committed to helping in this effort by leaving in place the UN mission for as long as is necessary.
Deputy McGrath has indicated that some of the missions in which Irish troops are involved are NATO-led. There has been a change in UN peacekeeping operations. Traditionally, the United Nations contacted various countries and provided leadership. Each country decided to contribute X number of troops, military hardware, etc. and the entire operation was placed under the direct command of the United Nations. These were known as blue hat missions. While the position has not changed, matters are done in a different way. For example, the United Nations will inform the European Union that it is mandating a mission in a certain country and that the Union should organise it. The Organisation of African States can be used as a local body in this way and is currently organising a peacekeeping mission.
Some operations are NATO-led but it is important that bodies work under the aegis and mandate of the United Nations. From the point of view of rapid deployment, it can be convenient to have others undertake these activities. An organisation such as NATO has the necessary expertise in terms of transport facilities and logistics to organise an operation very quickly. Technically, there is nothing sinister or new about missions being under NATO's command and they would not occur if they were not mandated by the United Nations.
Deputy Hoctor asked about the triple lock mechanism. The Government has no intention of changing any aspect of the policy. Participation by Irish soldiers abroad will involve a decision by the Government, a resolution of Dáil Éireann and a United Nations mandate. If a contingent of 12 troops or less is sent abroad, Dáil approval is not required under the Defence Forces (Temporary Provisions) Act 1951. Section 2(2) of the Defence (Amendment) (No. 2) Act 1960 provides that a contingent of the Defence Forces can serve overseas in the absence of a Dáil resolution where the force is unarmed, consists of no more than 12 members of the Permanent Defence Force or is intended to replace, in whole or in part, or reinforce an existing contingent. This may indicate that any number can be dispatched on a humanitarian mission, for example, without the consent of the Dáil if they are unarmed but in practice we always seek the Dáil's consent. I see no reason to change this tradition.
What about my final question?
I apologise. My information is that virtually all of the troops are volunteers. The Deputy asked whether there was a queue, it depends on the destination. If I was a member of the Defence Forces and there was an upcoming mission to Kosovo or Bosnia, I would be in the queue but if the mission was to Liberia, I might hesitate.
The Minister would still be there.
At the back of the queue perhaps. I am told that of the 1,413 personnel deployed to Liberia, only 15 were not volunteers. Most of the 15 are specialists with expertise such as cooks, drivers or engineers.
Is there a special allowance given to troops who travel to Liberia, for example?
They receive the overseas service allowance. The force is rotated every six months, in the middle of which period troops are entitled to travel home for three weeks.
Does this include the cost of a flight home?
It is generously subsidised.
Can one obtain air travel points?
Do many women within the force opt to serve abroad?
The overall number of women in the force is quite low. We have not noticed a difference between the genders in their eagerness to serve abroad.
Perhaps we should give the Minister time to answer the question.
Women comprise approximately 4% of the Defence Forces and there is no evidence to suggest they are less willing to serve abroad than their male counterparts.
That concludes our discussion. Is it agreed there should be no further debate on the matter in Dáil Éireann? Agreed. Is the draft report, subject to insertion of the Minister's speaking notes and details regarding attendance and contributors to the discussion, agreed? Agreed. I thank the Minister and his officials for attending. We look forward to meeting them again.