As the Chairman has indicated, the following motion was placed on the Order Paper of Dáil Éireann:
That Dáil Éireann approves the participation by Ireland in a European Defence Agency Category B Project on Counter Improvised Explosive Devices Manual Neutralisation Techniques pursuant to section 2 of the Defence (Miscellaneous Provisions) Act 2009.
In commending the motion, I will briefly outline the function of the European Defence Agency and the background to the programme that Ireland wishes to participate in.
The European Defence Agency, EDA, was established by a joint action of the Council of the European Union in 2004, "to support the Member States and the Council in their effort to improve European defence capabilities in the field of crisis management and to sustain the European Security and Defence Policy as it stands now and develops in the future”. On 6 July 2004, the Government approved Ireland’s participation in the framework of the European Defence Agency on the basis of a memorandum submitted by the Minister for Defence in association with the Minister for Foreign Affairs.
The EDA is an agency of the European Union. The High Representative of the Union for Foreign Affairs and Security Policy and Vice President of the Commission, Baroness Cathy Ashton, is head of the agency. Baroness Ashton is also chairman of the EDA steering board, its decision-making body which is composed of Defence Ministers of the 27 participating member states, that is, all EU member states except Denmark, which has an opt out on defence matters under Protocol 5 to the Treaty of Amsterdam, and the European Commission.
Ireland participates in the framework of the agency and contributes €300,000 to the annual costs of running the agency, including its annual work programme. Outside of the annual general work programme, the agency also supports a range of other work programmes and projects funded on an ad hoc basis by the member states in various compositions. In some instances, all member states will participate in these projects and programmes unless they specifically decide to opt out. These are referred to as Category A projects or programmes. In other cases, a small number of member states will group together to pursue a particular initiative, referred to as a Category B project or programme.
In a climate of diminishing defence budgets, there is a need for greater efficiency and effectiveness in defence expenditure. Therefore, the European Defence Agency is focused on assisting member states in obtaining better value for existing spending levels, improving competitiveness, securing greater efficiency, particularly in the area of research, technology, manufacturing and procurement, which have been notable for fragmentation and duplication.
I now wish to reference in particular Ireland's involvement in EDA projects and programmes. Following Government and Dáil approval, as appropriate, Ireland has participated and is currently participating in the following programmes or projects. There is a Category A programme on force protection, now completed, which involved measures to protect military forces engaged in operational activities which is a key issue for the Defence Forces engaged in peace support and crisis management operations overseas. There is also an ongoing Category A programme concerning chemical, biological, radiological and nuclear protection. This is a key capability area for the Defence Forces. Participation in this programme and access to the results of the research, studies and development work packages to be undertaken by the programme will enable the Defence Forces to remain at the leading edge of capability development in this key area.
In addition there is an ongoing Category B project concerning maritime surveillance. The aim of this programme is to further develop the recognised maritime picture, RMP, exchange network technology that allows for the sharing of information among the wider EU defence community in support of the EU’s Common Security and Defence Policy. It is complementary to the EU Commission initiative to establish a common information sharing environment for the exchange of maritime data. The programme involves improving network and systems security to allow classified information to be shared in the future and also developing a user interface which will allow member states without access to their own RMP system to view data.
The proposal I am putting to the committee today is to seek approval for Ireland to participate in an EDA programme in the area of counter improvised explosives devices in manual techniques. Manual neutralisation techniques, MNT, is a method used by explosive ordnance disposal and improvised explosive device disposal operators who, on occasions, cannot use remote or semi-remote techniques to render an improvised explosive device, IED, safe.
As a result, these complex explosive devices have to be neutralised manually. For example, MNT is used where there is an immediate threat to the life of a hostage who has an IED attached to him or her. This is a four year category B project which will involve researching, developing and delivering a range of training courses and exercises to address the use of manual neutralisation techniques. The objective is to enable personnel to conduct a proper threat and risk assessment which is of substantial importance in this context; to analyse the design of complex IEDs - clearly, if one is unable to do this, one will not know the necessary steps to take in the neutralisation process; to develop and plan the needed course of action; and to render safe the explosive chain or remove the explosives from the device. The activities, courses and exercises are aimed at enhancing participating member states' national counter improvised explosive devices capabilities in support of operations and missions, both at home and abroad. There are five member states interested in participating in the project, with Austria acting as lead nation.
The Defence Forces have identified a capability gap in the area of manual neutralisation techniques, specifically in relation to bomb disposal operations. The Defence Forces ordnance school which has responsibility for training bomb disposal personnel strongly supports Ireland’s involvement in the project. The courses and exercises over four years will allow for the upskilling of explosive ordnance disposal and improvised explosive device disposal operators on a consistent basis and their skills to be tested in an international environment.
Manual neutralisation techniques are required where there is an immediate danger to life as a result of an IED being placed in such a location that evacuation will take too long or is just not possible - in this case, the IED would present a direct threat to human life, critical military or civilian infrastructure or location; IEDs contain dangerous payloads - if the IED contains a payload that may cause enormous damage or casualties such as a chemical, biological, radiological or nuclear threat, it may be necessary to ensure the device does not function; there are sensitive explosives when disruption would cause them to initiate – if very sensitive home-made explosives have been used, it may be inappropriate to use conventional remote techniques. In the event that one of the situations outlined occurs, having operators trained in the use of manual neutralisation techniques is crucial. Safety and preservation of life and property are enhanced when the operators possess advanced manual render safe procedure skills. That is what the course is designed to ensure.
The benefit to Ireland of participation in the programme is that it will address all future Defence Forces manual neutralisation techniques, MNT, training requirements. The training of manual neutralisers is very costly and it would be difficult to justify separate national training programmes. To date, the Defence Forces have not participated in any MNT training abroad as the costs associated with it are extremely high - approximately €28,000 per student for the initial training course. Explosive ordnance disposal and improvised explosive device disposal operators are also required to undertake refresher courses on a continuous basis. To this end, participation in the project will provide seven weeks of training each year for four years, that is, a two week refresher course, including the full exercising of operators in various manual neutralisation techniques scenarios, and a five week comprehensive course.
Currently, there are no MNT instructors or assessors trained within Ireland. To continue to enhance and operate this essential capability, outside instructors and assessors would need to be approved at a substantial cost to the State. However, if Ireland participates in the project, the Defence Forces will be in a position to train its own personnel and offer courses to foreign students who could be charged a course fee. This four year project will allow up to six Defence Forces personnel to refresh their skills and qualify to the required level of MNT per year. Defence Forces participation in this category B project will greatly enhance their capability and increase EOD-IEDD operators’ skills and address safety issues in a cost effective manner. It will also improve Defence Forces interoperability and operational effectiveness across EU and UN-mandated missions. Under the programme, the cost per student for initial training will be approximately €10,000. The total cost of the programme, including refresher courses, will be in the region of €230,000 over the four years. I am satisfied that the cost of participating in the programme will deliver value for money and can be met from within the proposed financial allocations for the Department of Defence.
I reiterate the benefits of our participation in the programme. The Defence Forces have extensive expertise in countering IEDs and identified manual neutralisation techniques as an important area to reduce the effects of IEDs on operations. To date, the Defence Forces have contributed to and benefited from the work of the European Defence Agency. As preservation of life is the primary concern in bomb disposal, it is important that the Defence Forces continue to develop their capability in this key area. The role of manual neutralisers is life saving and a priority for participating member states. However, as I have stated, the training of manual neutralisers at a national level would be highly cost-intensive owing to the equipment and specialist advisory role required. Should the Defence Forces participate in this category B project all future manual neutralisation techniques training will be addressed internally. I hope members will give their support to what is proposed. To put it in very straightforward terms, it is in the interests of enhancing the skills set of members of the Defence Forces and ensuring they have the maximum knowledge in dealing with this very difficult area. It is in the public interest should we have difficulties in dealing with improvised explosive devices. It is in the interests of the safety of members of the Defence Forces in the context of the difficulties that arise when they are engaged in UN-mandated missions in conflict zones across the world. I hope members will be supportive of the proposal.
