The Programme for Government published in 2025 contains an ambitious range of commitments concerning the Defence sector that my Department will continue to implement over the lifetime of the Programme.
As Minister, I am deeply committed to the transformation of the Defence Forces into a modern fit for purpose organisation to defend the State and meet the challenges of today and the future. Across Europe, all countries are experiencing an increasingly contested, dynamic and volatile international security environment. There is a need for us to be seen to take our own security responsibilities seriously. We have seen significant increases in our own defence spending in the past few years in response to that, which has allowed us to procure much needed capabilities. We have set out a future pathway to continue these expenditure increases.
NDP
I recently published the NDP capital Plan for the Defence Sector. The revised NDP Capital allocation provided capital funding of €1.7 billion for the Defence Vote Group for the period 2026-2030, an increase of €600 million (55%) on the previous baseline of €1,100 million.
The revised allocations will assist ongoing efforts at modernising and upgrading Defence equipment and built infrastructure platforms and will enable targeted progression on key elements of Government commitments towards Level Of Ambition 2 (LOA 2) (Enhanced Capability) objectives, as outlined in the Commission on the Defence Forces Report.
Capital Investment in Defence primarily provides for the renewal, retention and acquisition of major defence equipment and infrastructural platforms – expenditure which enhances and supports military capabilities and therefore contributes to a more secure and resilient society. Capital investment in defence has never been more important to support national resilience and contribute to international peace and security.
Commission on Defence Forces
The Commission on the Defence Forces was established on foot of a commitment in the Programme for Government 2020, and its report was published on the 9th of February 2022. The Detailed Implementation Plan for the Report of the Commission report was published in November 2023. Much progress has been achieved since the publication of this report which includes:
- changes to the existing Naval Service allowances into one enhanced allowance.
- extension of private secondary healthcare to enlisted ranks.
- increase of the maximum retirement age for Permanent Defence Force personnel to 62 and increase in the maximum recruitment age to 39 for those roles.
- increase of the maximum recruitment age for Direct Entry Officer specialists to 50.
An updated Detailed Implementation Plan for the Report of the Commission on the Defence Forces is currently being finalised and it is my intention to publish it in early 2026.
IRG Report
Following the publication of the Report of the Independent Review Group on Dignity and Equality issues in the Defence Forces in March 2023 (the ‘IRG Report’), the Strategic Framework for the Transformation of the Defence Forces was developed with the purpose to bring together into one overarching document, from the multiplicity of plans developed, the immediate actions to be taken to support the transformation of the Defence Forces into a fit for purpose organisation to defend the State and meet the challenges of today and the future. The publication of a new Strategic Framework (2025 – 2026) is due in early 2026.
The IRG report recommended that members of the Defence Forces have ‘access to an independent, external complaints service delivered by a professional service provider for as long as it takes to put a trusted internal system in place’. A new Interim Grievance Manager Process, which launched in April 2025, provides serving members of the Defence Forces (both permanent and reserve) with an external and independent process through which complaints of an interpersonal nature such as complaints of bullying, harassment and sexual harassment and victimisation can be examined. Mr Kevin Duffy, former Chair of the Labour Court, has been appointed as the Interim Grievance Manager (IGM) of the Defence Forces. The intention is that the new IGM process will be in place for an initial 12 months’ trial period. A review of the process at that stage will inform the primary legislation required to establish a suitable complaints process for serving members of the Defence Forces on a statutory basis.
Since the establishment of the Defence Forces Tribunal of Inquiry (‘the Tribunal’) in 2024, a substantial amount of work has been undertaken in the Department of Defence and the Defence Forces to identify and locate material relevant to the work of the Tribunal. The number of records to be discovered is extensive going back 40 years. I am committed to fully assisting the Tribunal in completing this important work.
Capability Development
Work by the permanent civil-military Capability Development Unit to build a 12-year Capability Development programme 2028-2040 which will identify, short, medium and longer term capability needs is well advanced. As part of an active project for the enhancement of Subsea Domain Awareness Capabilities the requirement for Towed Sonar capability was determined and a contract was awarded to Thales, France for a towed Sonar capability. This capability will be used by the Naval Service for monitoring and surveillance in the subsea domain.
The updated Defence Forces Infrastructure Development Plan (IDP), which sets out a programme of project delivery for the years 2023 to 2027 estimates infrastructure requirements to be in the region of some €370m for the coming years. The capital allocation for 2025 stands at €50m for capital investment with a further €12.5m allocation for ongoing maintenance and running costs. In order to further accelerate the development of Defence Forces infrastructure, a series of masterplans will be developed to identify immediate and long-term infrastructural requirements. The first such masterplan for the Airside in Casement Aerodrome, Baldonnel was completed in February 2025 and the masterplan process for the Naval Base, Haulbowline is near completion.
Progression of the Military Radar Programme is continuing, with the Department now commencing detailed negotiations with France on a potential agreement for the delivery of all capability requirements under the Programme
Aircraft Capabilities
• Strategic airlift capability has been prioritised as a capability for investment following Government approval of the Commission on the Defence Forces Report as part of the move to LOA 2 capability. In September 2025, a new Airbus C-295 Fixed Wing Military Transport Aircraft for the Defence Forces was delivered to the Air Corps. This aircraft provides a utility transport function.
• A new multi-purpose strategic reach aircraft, Dassault Aviation Falcon 6X, was delivered to the Air Corps earlier this week.
• The Department of Defence recently signed contracts for delivery of four new Airbus H145M helicopters. These helicopters will assist with pilot training, deployment of Special Forces, ISTAR, medical evacuation, and light attack roles, to complement the existing fleet.
Land Capabilities
• With the focus on essential force protection by armoured vehicles, a significant investment has been made in recent years in the Army’s fleet of 80 MOWAG armoured personnel carriers. A mid-life upgrade maintenance and upgrade programme for the fleet of vehicles is nearing completion at a cost of €77m plus VAT which will extend the utility of the fleet and provide greater levels of protection, mobility and firepower and which will seek to ensure viability of the fleet beyond 2030. Over ninety percent of the fleet have now been upgraded. The programme is due to complete in 2026.
• A tender competition concluded in 2023 with a contract put in place with a French company Thales for the supply of Software Defined Radio systems to the Defence Forces. The scope of the project consists of two main requirements: Personal Soldier Radios and Multi-Band Handheld, Manpack, Vehicular and Airborne radios. Delivery of equipment in accordance with this contract commenced in early 2024 and will continue over a 5-year period.
Naval Service Capabilities
A number of equipment projects were progressed for the Naval Service during 2025, including the Vessel Renewal and Replacement Programme with the ongoing replacement of the four Naval Service Reserve launches and the upgrading of secondary armament across the fleet, along with the conclusion of the Mid-Life Extension Programme for the P50 class of vessel and work on the second Inshore Patrol Vessel.
Integrated Modular Body Armour System
Investment in force protection equipment was progressed under the Department’s Equipment Development Plan. A tender competition to procure new general service body armour, known as Integrated Modular Body Armour System (IMBAS), was completed in 2025 and deliveries are expected to commence in 2026.
Joint Procurement
SAFE (Security Action for Europe)
On 27 June, the then Tánaiste and Minister for Defence Mr Simon Harris T.D. agreed that the Department should leverage a new European Union instrument, the SAFE (Security Action for Europe) Regulation, to accelerate the delivery of Ireland’s defence capability. SAFE is intended to help EU Member States jointly procure equipment and provides an efficient mechanism to acquire equipment identified as a need for the Defence Forces.
The Minister agreed that the Department should leverage the common procurement opportunities offered under the Regulation to the greatest extent.
In line with this approach, the Department of Defence opened up the contract for the supply of Integrated Modular Body Armour Systems (IMBAS) to other EU Member States under SAFE. This illustrates Ireland’s support for SAFE and visibly demonstrates how the instrument can be used to the mutual benefit of Member States who choose to use it.
EDA
Ireland sees joint procurement with other EU Member States as an effective strategy to acquire equipment, leveraging economies of scale and the knowledge and experience of many Member States.
In line with this strategy, Ireland is a participant in a number of European Defence Agency (EDA) joint procurement projects, including for various types of ammunition and Chemical Biological, Radiological and Nuclear (CBRN) protection suits. Framework contracts for ammunition and suits were placed by EDA in 2025, allowing Ireland to place orders for phased deliveries over the next six years.
People Strategy 2025-2027
The Department launched a new People Strategy 2025-2027 in June this year, reaffirming a commitment to placing our people at the forefront of the organisation. The People Strategy serves as a guiding framework, providing a roadmap to maintain organisational excellence and upholds the Department’s core values of professionalism, integrity, and public service. An Action Plan sets out the actions, timing, leads and requirements to give effect to the objectives set out in the strategy and a new Strategy Advisory Group, consisting of representatives from key stakeholder groups, was also established to assist in monitoring and guiding implementation of the strategy.
Working Time Directive
Following the removal of the exemption for Members of the Defence Forces from the Organisation of Working Time Act, 1997 (OWTA) in January of this year, the provisions in the OWTA including daily and weekly rest and maximum weekly working time over a 17-week period now apply to Defence Forces members apart from when they are engaged on exempted activities. Military Authorities have developed a composite framework document to underpin the implementation of the Directive at all levels of the Organisation. Work is progressing on the final strand in the implementation of the Working Time Directive towards the completion of a Terms and Conditions of Service contract for members of the Defence Forces.
Ward Report
Following his appointment in 2024 by the former Tánaiste and Minister of Defence, Mr. Micheál Martin, TD, Mr. Peter Ward Senior Counsel, undertook a high-level analysis of the application of military law and processes in these circumstances where personnel have been convicted or charged in the civil courts. The former Chief of Staff had also requested powers of suspension, as there is currently no such provision in the Defence Legislation. Mr. Ward's Report, which contains 35 recommendations, was submitted on 7 October 2024 and prior to the publishing of the Report in December 2024, advices were obtained from the Office of the Attorney General on the Report. The 35 recommendations in the Report have been accepted in their entirety, and it is the advice of the Office of the Attorney General that a number of the recommendations, including those relating to suspension of Defence Force members, require extensive legal underpinning. Government approval was obtained in March 2025 for the drafting of the Defence (Amendment) Bill 2025. Part 4 of this Bill will provide the legal basis for the suspension of members of the Defence Forces in certain circumstances by a ‘suspension authority’ and will also provide the appropriate vires to the Minister for Defence to make Regulations pertaining to suspensions and other matters arising from the Ward Report. An associated amendment to section 50 of the Defence Act 1954 will provide that the reasons that may give rise to the dismissal of an officer of the Defence Forces. Providing the necessary legal underpinning on these matters, is a key priority and I am pleased to note the drafting process is well underway while four of the recommendations in the Ward report are already implemented.
Pay (SCS and PIP Allowance)
On the 24th of June, the Department of Public Expenditure, Infrastructure, Public Service Reform and Digitisation recommended that the existing Air Corps Pilot Service Commitment Scheme arrangements be extended for a period of three years. The Scheme is an incentive for newly qualified pilots to remain in service after they have completed their 12-year Wings Course commitment and for recommissioned pilots who have completed their short service commission.
The Pilot Service Commitment Scheme (SCS) has been extended to include members of the Air Corps engaged in the provision of Air Traffic Control services. This development will assist with retention of key personnel and stabilisation of the Air Traffic Service provided at Casement Aerodrome which requires a broad range of specialised personnel. The Air Traffic Service SCS operates in the same way as the Pilot SCS and is a high value incentivising initiative for these specialised staff to remain in service.
The Professional Instructors Payment (PIP) has been introduced to recognise the unique and critical role of instructors in delivering consistent, effective training. The Defence Forces relies heavily on the expertise and experience of instructors to deliver high-quality training programmes to new recruits. These programmes act as a key driver to transform culture and modernise the Defence Forces to ensure that the state has a professional Defence Forces capable of undertaking roles assigned by Government. This new payment reflects the enhanced professional level of officer instructor training now being undertaken.
Legislation
The General Scheme of the Defence (Amendment) Bill 2025 was approved by Government in March of this year. The purpose of this Bill is to:
- revise and consolidate the current legislation, including the provisions concerning the operation of the so-called 'Triple Lock' mechanism, relating to the despatch of members of the Defence Forces for service outside the State; and,
- give effect to recommendations pertaining to suspension and associated provisions contained within the report prepared by Mr Peter Ward, Senior Counsel, concerning the management of members of the Defence Forces charged, with or convicted of, serious criminal offences.
The pre-legislative scrutiny (PLS) of the Bill was completed at the end of July with the publication of the Joint Oireachtas Committee's Report. The drafting of the Bill is continuing in conjunction with the Office of Parliamentary Counsel.
Civil Defence
As part of the Department’s review of activities under the “Towards 2030” policy document for Civil Defence, the policy and standard operating guidelines for Boat Operations, Welfare (including Catering and Rest Centres) and Pump operations (Flood response) have been updated this year. The Department is also progressing a review of training delivery and the volunteer recruitment and retention strategy.
International
With regard to international initiatives, my Department’s focus in 2025 has been on Ireland’s engagement with the EU’s White Paper for European Defence - Readiness 2030 which was published on the 19th of March 2025 and on the Preserving Peace – Defence Readiness Roadmap 2030, published on the 16th October 2025, which sets out objectives and milestones to achieve defence readiness by 2030, as outlined in the White Paper. The White Paper seeks to mitigate some of the threats and challenges Europe collectively faces, by focusing on projects to achieve enhanced surveillance and situational awareness. The White Paper was accompanied by the Re-ARM plan, a series of financial measures aimed at boosting defence finance including the SAFE instrument (Security and Action for Europe), and a Communication on accommodating increased defence expenditure within the Stability and Growth Pact.
Since the publication, my Department is engaged on analysing the various proposals in respect of strengthening the European defence industrial base and reducing dependencies outside of the Union, on capability development – to procure together more regularly and to procure from the European defence industry and to encourage greater cooperation between the EU and Ukraine defence industries to allow Ukraine to participate in joint procurement and support Ukrainian defence industry in its industrial ramp-up.
Through the EU Military Assistance Mission in support of Ukraine (EUMAM Ukraine) to date, the Defence Forces have delivered training modules in tactical combat casualty care/combat lifesaver, demining/mine clearance, drill instruction training, basic training, and junior leadership training to over 1000 Ukrainian personnel across separate modules. Since its launch in 2022, EUMAM Ukraine has trained almost 85,000 Ukrainian soldiers and conducts training only on EU soil.
Ireland participates with a contingent of the Permanent Defence Force in the 2025 German-led EU Battlegroup (EUBG), the two year commitment ends on 31 December 2025. In early 2025, the EU conducted a Military Live Exercise in Hungary in which the Defence Forces participated as part of the German-led EU Battlegroup. This was the third EU military live exercise, following on from previous exercises in Spain and Germany and the second in support of preparations for EUBG 25.
Government Task Force on Emergency Planning
As Minister for Defence, I also chair the Government Task Force (GTF) on Emergency Planning supported by the Office of Emergency Planning (OEP) in my Department. Particular policy achievements in this area include:
• Five meetings of the Government Task Force on Emergency Planning took place in 2025.
• The Government Task Force subgroups on Risk, Resilience, Emergency Communications, International Engagement, and Public Information Campaigns met throughout 2025.
• The National Emergency Coordination Centre remained available for service throughout 2025 with no interruption.
• Established a Government Task Force on Emergency Planning Subgroup to develop stage II of the National Flood Forecasting and Warning Service (NFFWS).
• Provided crisis media training for senior officials of the Government Task Force on Emergency Planning.
• Working with the European Centre of Excellence for Countering Hybrid Threats (Hybrid CoE) delivered a cross-government seminar on the laws of sea, protection of undersea infrastructure and hybrid threats.
• Supported the Department of Housing, Local Government and Heritage in coordinating the national response to Storm Éowyn.
• Conducted Ireland’s first ever national-level Hybrid threats exercise.
• Implemented a new national-alerting platform for convening the National Emergency Coordination Group.
Strategic Emergency Management (SEM): National Structures and Framework
• On 2 June 2025, the World Bank formally commenced the DG-ECHO funded project to review and strengthen the national strategic emergency management policy framework for emergency management in Ireland.
NATO ITPP Resilience Goal
• In March, the Office of Emergency presented Ireland’s approach on civil-preparedness arrangements to the NATO Resilience Committee, as part of the Individually Tailored Partnership Programme.
NATO EADRCC (Euro-Atlantic Disaster Response Coordination Centre)
• The Office of Emergency Planning participated in the Distinguished Visitors Programme at the 20th NATO Emergency Management Exercise BULGARIA 2025.
• This complex exercise focused on enhancing resilience, improving disaster preparedness, and fostering civil-military cooperation in emergency response.
Ireland and UK MoU
• A memorandum of understanding (MoU) was signed by senior officials in the Department of Defence and the UK Cabinet Office Briefing Rooms Directorate to take effect on 6 November 2025.
• The MoU establishes bilateral cooperation between Ireland and the UK in respect of risk management and emergency preparedness.
All-Island Disaster Risk Reduction Conference
• Funding has been secured and preparations begun for the 4th All-Island Disaster Risk Reduction Conference due to take place in Q2 2026.
Critical Entities Resilience
• The Office of Emergency Planning has delivered the final draft of the National Strategy on the Resilience of Critical Entities. The strategy is expected to be published on time in January 2026.
• The Office of Emergency Planning has delivered the final draft of the National Risk Assessment Addendum.
• The Office of Emergency Planning established the Energy Sector Working Group in May 2025. The Group has met 4 times in 2025.
• The Office of Emergency Planning has developed a training programme on Critical Entities Resilience for stakeholders to be delivered across 2026.
Ireland and Ukraine MoU
• The Department of Defence/Office of Emergency Planning commenced dialogue with counterparts in The Administration of the State Service of Special Communications and Information Protection of Ukraine to establish and define areas of cooperation between the two countries in the field of critical infrastructure protection.
Maritime Security
My Department is working to deliver Ireland’s first-ever National Maritime Security Strategy, which will aim, amongst other things, to enhance our maritime domain awareness and to protect our critical maritime infrastructure, in particular our critical undersea infrastructure. In June, a Public Consultation was launched to gather views on this work and to build consensus on the diverse threats, risks, challenges and opportunities being faced by the country. Another initiative taken to support this focus on maritime security is the approval for the Defence Forces to participate in the EU’s Common Information Sharing Environment (CISE). This EU initiative enables structured and secure information-sharing among EU maritime authorities, both civil and military, allowing for more effective operations at sea amid new and evolving maritime threats.
Office of Veterans Affairs
The Office of Veterans Affairs was formally established on the 10th of November 2025. The Office, which was a recommendation of the Commission on the Defence Forces and a commitment in the current Programme for Government, will play a key role in coordinating matters relating to Defence Forces’ veterans.
Strategy Statement 2025 – 2028
In September, the Department of Defence and Defence Forces Strategy Statement 2025 – 2028 was published. It sets out the strategic direction and high level work programme of the Department of Defence and the Defence Forces, to be delivered over the next three years. It outlines our Vision and Mission and is supported by a set of strategic goals and actions designed to deliver on our responsibilities.
I am satisfied that significant progress is being made in implementing the Government’s ambitious programme for Defence and I look forward to the ongoing delivery of key commitments.