Haddington Road Agreement Review of An Garda Síochána …justice.ie/en/JELR/Horgan Review (Dec...

Haddington Road Agreement Review of An Garda Síochána

Report by John Horgan

12 December 2016

12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 1

BackgroundThisReviewofAnGardaSíochánaarisesfromacommitmentinthePublicServiceStability(HaddingtonRoad)Agreement2013-2016,thathasbeencarriedovertotheLansdowneRoadAgreement,whichextendstoSeptember2018.Appendix3oftheHaddingtonRoadAgreementprovided:TobuildupontheprogressalreadymadeinthePublicServiceAgreement2010-2014,aReviewofAnGardaSíochánawillbeundertaken.Thefollowingtermsofreferencewillapply.ToreviewandmakerecommendaGonsontheusebyAnGardaSíochánaoftheresourcesavailabletoit,withtheobjecGveofachievingandmaintainingthehighestlevelsofefficiencyandeffecGvenessinitsoperaGonandadministraGon.ThereviewshallencompassallaspectsoftheoperaGonandadministraGonoftheGardaSíochánaincluding:•  thestructure,organisaGonandstaffingoftheGardaSíochána;•  thedeploymentofmembersandcivilianstafftorelevantandappropriateroles;•  theremuneraGonandcondiGonsofserviceofmembersofAnGardaSíochánaincludingan

evaluaGonofannualisedhours/shiNpayarrangements;•  theappropriatestructuresandmechanismforthefutureresoluGonofmaOersrelaGngto

pay,industrialrelaGonsandaOendantmaOers.TheReviewwasduetocommencenolaterthan1September2013andbecompletednolaterthan1June2014.Thesecommitmentswerenotmet.

HaddingtonRoadAgreementAGSReviewHorganStrand 3

TheOfficialside(DepartmentofJusTceandEquality,GardamanagementandtheDepartmentofPublicExpenditureandReform)consideredthattheGardaInspectorate,havingregardtoitsstatutoryroleundertheGardaSíochánaAct2005,wastheappropriatebodytoconducttheReview.TheGardaAssociaTons(GardaRepresentaTveAssociaTon(GRA),AssociaTonofGardaSergeantsandInspectors(AGSI),AssociaTonofGardaSuperintendentsandAssociaTonofChiefSuperintendents)tookadifferentviewbuteventuallythetermsofreferenceoftheInspectoratewerelimitedtothefirsttwoindentsi.e.•  thestructure,organisaGonandstaffingoftheGardaSíochána;•  thedeploymentofmembersandcivilianstafftorelevantandappropriateroles;Mr.RayMcGee,formerlyoftheLabourCourtwasappointedtoundertakethereviewofthelasttwoindents.However,Mr.RayMcGeeresignedinMay2016.MyunderstandngisthatthefourrepresentaTveassociaTonsjointlynominatedmeasthenewChairandthetwoDepartmentsagreedtothenominaTon.

TheInspectoratecompleteditsworkinDecember2015.Itsreport"ChangingPolicinginIreland--DeliveringaVisible,AccessibleandResponsiveService"wasbroughtbeforeCabineton8Decemberandpublishedon9December2015.Thereportmadesome80recommendaTonsinrelaTontothestructuresofAnGardaSíochána,itsdeploymentpracTces,culture,humanresourcespracTcesandfinancialmanagement.Havingregardtothefar-reachingnatureofsomeoftherecommendaTonstheMinisterputinplaceaprocesstoseektheviewsoftheGardaCommissionerandotherbodiestowhomrecommendaTonsweredirected.TheGovernmenton19July2016approvedaFiveYearReformandHigh-levelWorkforcePlanforAnGardaSíochánaaddressingtheimplementaTonoftheGardaInspectorateReportandtheProgrammeforGovernmentcommitmentsinrelaTontotheoverallGardaworkforce.TheInspectorate'sreportwasalsoforwardedtomesothatIcouldtakeitintoaccounttoanycrosscufngissues.

On6July2016,theTánaisteandMinisterforJusTceFrancesFitzgeraldTDrequestedmetocompletetheReviewofAnGardaSíochánabyreporTngonthethirdandfourthindentsinthetermsofreference.i.e.•  theremunera*onandcondi*onsofserviceofmembersofAnGardaSíochánaincludinganevalua*onofannualisedhours/shi;payarrangements;

•  theappropriatestructuresandmechanismforthefutureresolu*onofma?ersrela*ngtopay,industrialrela*onsanda?endantma?ers.

AtmyiniTalmeeTngmeeTngwithallparTesonTuesday19July2016aworkplanwasagreed:•  August,SeptemberandOctoberVisits,submissionsandiniTateresearch•  ConcluderesearchandsubmissionsbyendOctober•  DrahReportNovember•  CirculateFinalDrah28November•  FinalizeReporton5December•  Reporttobepublishedon12December2016AlltheparTesacceptedthisTmescale.IinsistedatallstagesthatIwouldproducethebestreportthatcouldbeproducedintheTmescaleagreed.AtvariousstagesduringourmeeTngsIofferedtobringforwardthedateofmyreportifthatwouldbehelpful.NoneoftheparTestookupthisoffer.Iampleasedthatwiththeco-operaTonofallparTesIhavebeenabletomeettheoriginalTmetable.IcirculatedtheFinalDrahon28Novemberandnowpublishthereportontheagreeddate,12December2016.

WorkPlanAgreed

FamiliarisaTonVisits•  OverallIhaveheld45meeTngswithvarious

parTesincludingthefamiliarisaTonmeeTngsdetailedopposite.IesTmatethatthecumulaTveTmespentinmeeTngsanddiscussionscametoover140hours.MyTmeindrahingthevariousdiscussionpapersanddrahingmyreportcametoatotalofapproximately60hours.

•  DuringAugustIvisitedlocaTonsaroundthecountrymeeTngmorethan200Gardaí,SergeantsandInspectors,SuperintendentsandChiefsoverninedaysandapproximately60hours.

•  ThesemeeTngshavebeenveryusefulandhavegivenmeagoodinsightintotheworkandworkingcondiTonsandenvironmentofthoseranks.TheajendeesfromthevariousgradesarenotproporTonaltothetotalnumbersemployedinthosegrades.HoweverIwasinterestedonlyintheweightandvalidityoftheargumentsputtomeratherthanthepreponderanceofspeakers.

Loca?on Gardai Sergeant/Inspectors Total

Dublin 13 10 23

Dundalk 13 13 26

Limerick 9 9 18

Galway 12 11 23

Cork 10 15 25

Dublin 15 14 29

TemplemoreSuperintendents 15

TemplemoreChiefSuperintendents 5

Mullingar 14 10 24

Waterford 13 4 17

Total 99 86 205

THECURRENTSTATEOFPLAY:RESOURCESANDNUMBERSATWORK

AnGardaSíochánaAnGardaSíochánaprovidestheciTzensofIrelandwithanexcellentpoliceservicebyanystandard.ThispointhasbeenmadebyvariousreportandreviewsoveritsenTrehistory.WhilerecentreportshaveidenTfiedshortcomingsinparTcularinstances,thevastmajorityofmembersoftheforcearededicatedtoprovidinganimparTalfairpoliceserviceinlinewithbestPeelianprinciples.ThemembersofAnGardaSíochánaperformadifficultandohendangerousjobthatisuniqueinIrishsocietyandallitsmembersdeservetoberewardedappropriately.

ExtractfromGardaReviewEditorialNotes,November1929

TheGardaSíochánaisapublicservice,towardstheupkeepofwhicheveryciGzen,richandpoor,contributesdirectlyorindirectly.EveryciGzenisthereforewithinhisrightsinseeingthattheserviceforwhichhepaysisproperlyrendered.ThemembersoftheForcefullyrecognizetheserights;theywelcomehonestandintelligentcriGcismandevenifnotintelligent,theytolerateit,solongasitismadeingoodfaith.

10,000

11,000

12,000

13,000

14,000

15,000

16,000

2008Q1

2008Q2

2008Q3

2008Q4

2009Q1

2009Q2

2009Q3

2009Q4

2010Q1

2010Q2

2010Q3

2010Q4

2011Q1

2011Q2

2011Q3

2011Q4

2012Q1

2012Q2

2012Q3

2012Q4

2013Q1

2013Q2

2013Q3

2013Q4

2014Q1

2014Q2

2014Q3

2014Q4

2015Q1

2015Q2

2015Q3

2015Q4

2016Q1

2016Q2

Employment(Number)

SourceCSO

CSOGardaSíochánaQ32016

•  Employment(Number) 13,000 •  AverageWeeklyEarnings(Euro) 1,251.09 =€65,235p.a.•  AverageHourlyEarnings(Euro) 29.01 •  AverageHourlyEarningsexcludingIrregularEarnings(Euro)24 •  AverageWeeklyPaidHours(Hours) 43.1 •  Averagehourlyirregularearnings(Euro) 4.03 •  Averagehourlyotherlabourcosts(Euro)2.31 •  Averagehourlytotallabourcosts(Euro) 31.32

NBDataforthelatestquarterispreliminaryandsubjecttorevision.

OverallInvestmentLevelsareIncreasingandAlmostatPeakPre-CrisisLevels

GrossExpenditureonGardaPayisIncreasingAgain,

mostlydrivenbyaDoublinginOverTmesince2014

SomeoftheseincreaseswereduetoexcepTonalfactorsandwerenotsharedequallyacrossthemembersoftheforce.

CURRENTPAY,ALLOWANCES,PENSIONSANDCOMPARISONS

Inthe2016esTmatethetotalexpenditureonAnGardaSíochánawillbe€1,554mofwhich€971.7mwillbepaycostsand€325.5mpensions.(ThisispriortoanyadjustmentthatmayarisefromtheAdHocLabourCourtRecommendaTons[LCR]CD/16/321andCD/16/322dated3November2016):AtTmeofwriTngitwasannouncedthattheLabourCourtrecommendaTonswereacceptedbytheGRAandAGSIbuttheconsequenTalimpactonSuperintendentsandChiefSuperintendentswerenotknown.TogiveacomprehensivepictureofRemuneraToninAGSitisimperaTvetoconsiderthreeelements:BasicPay;OverTmeandAllowances;andPensions.AllthreearepartoftotalcompensaTon,andmustbeconsideredtogether.Theyareexaminedinthischapter.TheincrementalpayscalesforGardaí,Sergeants,Inspectors,SuperintendentsandChiefSuperintendentsareshowninthefollowingpages.IrequestedtheDepartmentofJusTcetocalculatethePost-LCRscales,buttheydidnotdoso.IhavethereforeesTmatedthateachpointofthescalewillincreaseby€4,655.ThisIsnotaasalaryincreasebutaconsolidaTonofanincreasedrentallowance.

BasicPayScales–GardaRankYearsofService CurrentA Est.Post

LCR*1 €25,745 €30,4002 €28,302 €32,9573 €29,834 €34,4894 €32,407 €37,0625 €35,840 €40,4956 €38,110 €42,7657 €40,163 €44,8188 €42,138 €46,7939 €42,138 €46,79310 €42,138 €46,79311 €42,138 €46,79312 €42,138 €46,79313 €43,857 €48,51214 €43,857 €48,51215 €43,857 €48,51216 €43,857 €48,51217 €43,857 €48,51218 €43,857 €48,51219 €45,793 €50,448

YearsofService CurrentB Est.Post

LCR*1 €24,890 €29,5452 €27,369 €32,0243 €28,867 €33,5224 €31,365 €36,0205 €34,683 €39,3386 €36,875 €41,5307 €38,856 €43,5118 €40,767 €45,4229 €40,767 €45,42210 €40,767 €45,42211 €40,767 €45,42212 €40,767 €45,42213 €42,429 €47,08414 €42,429 €47,08415 €42,429 €47,08416 €42,429 €47,08417 €42,429 €47,08418 €42,429 €47,08419 €44,302 €48,957

YearsofService

CurrentNewRecruits*

Est.PostLCR*

1 €25,472 €30,1272 €28,302 €32,9573 €29,834 €34,4894 €32,407 €37,0625 €35,840 €40,4956 €38,110 €42,7657 €40,163 €44,8188 €42,138 €46,7939 €42,138 €46,79310 €42,138 €46,79311 €42,138 €46,79312 €42,138 €46,79313 €43,857 €48,51214 €43,857 €48,51215 €43,857 €48,51216 €43,857 €48,51217 €43,857 €48,51218 €43,857 €48,51219 €45,793 €50,448

*GardaTraineesreceiveanallowanceof€184aweekforthe32weeksleadingtoajestaTon.Onappointmenttheyarepaid€23,171foraperiodof32weeks

BasicPayScales–Sergeants&InspectorsYearsofService

CurrentInspectorRateB

Est.PostLCR*

1 € 51,660 €56,3152 € 52,532 €57,1873 € 53,974 €58,6294 € 55,606 €60,2615 € 55,606 €60,2616 € 55,606 €60,2617 € 57,243 €61,898

YearsofService

CurrentInspectorRateA

Est.PostLCR*

1 € 53,404 €58,0592 € 54,305 €58,9603 € 55,794 €60,4494 € 57,483 €62,1385 € 57,483 €62,1386 € 57,483 €62,1387 € 59,178 €63,833

YearsofService

CurrentSergeantRateB

Est.PostLCR*

1 € 44,725 €49,3802 € 45,795 €50,4503 € 46,919 €51,5744 € 48,131 €52,7865 € 48,131 €52,7866 € 48,131 €52,7867 € 49,368 €54,0238 € 49,368 €54,0239 € 49,368 €54,02310 € 49,368 €54,02311 € 49,368 €54,02312 € 49,368 €54,02313 € 51,385 €56,040

YearsofService

CurrentSergeantRateA

Est.PostLCR*

1 € 46,229 €50,8842 € 47,337 €51,9923 € 48,493 €53,1484 € 49,755 €54,4105 € 49,755 €54,4106 € 49,755 €54,4107 € 51,034 €55,6898 € 51,034 €55,6899 € 51,034 €55,68910 € 51,034 €55,68911 € 51,034 €55,68912 € 51,034 €55,68913 € 53,119 €57,774

BasicPayScales–ChiefSupt.&Supt.

YearsofService

CurrentChiefSuptRateB Est.PostLCR*

1 € 79,699 € 84,354 2 € 83,155 € 87,810 3 € 87,142 € 91,797 4 € 92,629 € 97,284 5 € 92,629 € 97,284 6 € 92,629 € 97,284 7 € 94,998 € 99,653

YearsofService

CurrentChiefSuptRateA Est.PostLCR*

1 € 82,278 € 86,933 2 € 85,853 € 90,508 3 € 89,976 € 94,631 4 € 95,653 € 100,308 5 € 95,653 € 100,308 6 € 95,653 € 100,308 7 € 98,100 € 102,755

YearsofService

Current Supt Rate B

Est. Post LCR*

1 € 66,636 € 71,291 2 € 68,951 € 73,606 3 € 70,948 € 75,603 4 € 72,942 € 77,597 5 € 74,940 € 79,595 6 € 74,940 € 79,595 7 € 74,940 € 79,595 8 € 77,608 € 82,263

YearsofService

Current Supt Rate A

Est. Post LCR*

1 € 68,835 € 73,490 2 € 71,228 € 75,883 3 € 73,291 € 77,946 4 € 75,354 € 80,009 5 € 77,377 € 82,032 6 € 77,377 € 82,032 7 € 77,377 € 82,032 8 € 80,116 € 84,771

AtTmeofwriTngnodecisionhadbeenmadeastotheconsequencesoftheADHocLabourCourtrecommendaTonforthesegrades

LabourCourtRecommendaTonInthecaseofindividualmembers,therecommendaTonfortheGRAandAGSIwillprovideextraremuneraTonofaround€4,000onaveragetoamemberoftheServiceoverthenext12monthsthrough:•  Anincreaseinthevalueoftherentallowanceby€500bringingitto€4,655perannumwith

effectfrom1January2017•  TheintegraTonoftherentallowanceinthenewamountof€4,655intosalarywith

consequenTalincreasesinunsocialhoursandoverTmepaymentsalsowitheffectfrom1January2017

•  TheintroducTonofa€15premiumpaymentperannualleavedaytocompensatefortheuncertaintyajachingtothetakingofleavebyGardaí.Thispaymentwillbeworth€510perannumtoaGardawith34daysannualleave

•  TheimplementaTonofalong-standingrecommendaTonoftheGardaInspectoratethroughtheintroducTonofpaid15-minutepre-tourbriefingortaskingsessionswitheffectfrom1January2017

•  Newrecruitswhodonotcurrentlyreceiverentallowance,willhaveitrestored,inaddiTontotheotherimprovementsjustlisted.InaddiTon,theincrementfreezeinplaceforGRAmemberssince1Julywillbelihedandanyarrearsarisingfromincrementsforegonewillbepaid

•  SourceAnswertoPQTuesday,15November2016,TánaisteandMinisterforJusTceandEquality.

PostLCRScalesRank Minimum Point Maximum Point

Garda € 30,400.00 € 50,448.00

Sergeant € 50,884.00 € 57,774.00

Inspector € 58,059.00 € 63,833.00

Superintendent TBD TBD

Chief Superintendent TBD TBD

These refer to “A” PRSI scales only

Therevisedsalaryscalesthatwillcomeintoeffecton1January2017areinpreparaTonandwerenotavailabletome.IhavehereforeesTmatedthefigureabove

PensionRelatedDeduc?on

•  Pension-RelatedDeducTon(PRD)isadeducTonfromtheremuneraTon(pay)ofpensionablepublicservants.ItisprovidedforunderthetermsoftheFinancialEmergencyMeasuresinthePublicInterest(FEMPI)Act2009,asamended.MostrecentlythatActhasbeenamendedinrespectofPRDbytheFEMPIAct2015,whichprovidesforaneasingofthePRDburdenonaffectedpublicservantsbywayofrevisedthresholdsapplyingfrom1January2016and1January2017.ThePRDformspartofawidersetoffinancialemergencymeasuresaffecTngpublicservicepayandpensionsdirectedatsecuringastabilisaToninthepublicfinances.

•  Witheffectfrom1January2016theratesofthededucTonandthebandsofremuneraTontowhichtheseratesapplyareasfollows:

•  AmountofremuneraTonupto€26,083isexemptbutanyexcessover€26,083butnotover€60,000issubjecttoadeducTonof10%andanyamountover€60,000issubjecttoarateofdeducTonof10.5percent.ToillustratethisitshouldbenotedthataGardaearning€63,000perannumisliabletoareducTonof€3,700or5.9%.ItmustbepointedoutthatwhileallpublicservantsareliableforthisdeducTonitisnotacontribuTontotheirpensionsscheme;itissimplyadeducTonfromearnings.TherateofdeducTonwillreducefrom1January2017,whenthesameGardawillsufferadeducTonof€3,440or€260lessthaninthepreviousyearassumingnochangeinearningoverthetwoyears.ThebenefitofthesereducTonsinrateswillbeconsiderablygreaterforGardaíearninglessthanaverageearnings.ItisessenTalthatPRDistakenintoaccountwhenmakingacomparisonwithearningsintheprivatesectorasthisdeducTonappliesonlytocivilandpublicservants.

Allowances•  InaddiTontobasicsalaryGardaíarepaidallowances.Therearecurrently54allowances;notall

Gardaíareeligibleforallofthemandmanyaremutuallyexclusive•  AllowancesamounttoaverysignificantproporTonofthetotalearningsofGardaí,Sergeantsand

InspectorsbutformasmallerproporTonofthepayofthehigherranks•  TheraTonalefortheseallowances,whichwerefirstintroducedintheGardaSíochánaAllowances

Order1924and1926,andthroughsubsequentnegoTaTons,reflectsinparttheuniquenatureoftheworkofAnGardaSíochána

•  BoththeConroyCommission(1970)andtheRyanCommijeeofEnquiry(1979)recognisedthisuniqueness.Ithasbeenacceptedthatthejobcannotbedoneproperlywithoutincurringtheseallowancesthatarepaidtomembersintheperformanceofduty.TheallowanceswerenegoTatedoverTmeandweredeemednecessarytotheworkofAnGardaSíochána.IndeedtheConroyCommissionrecognizedtheimportanteffecttheseallowanceshadonmoraleandmoTvaTon.Iconcurwiththeirassessmentoftheimportanceofallowances

•  IacceptthatofficialsfromtheDepartmentofJusTce&Equality,andtheDepartmentofFinance,whopresidedovertheiniTalgranTngorsubsequentincreasingoftheseallowances/expensesfortheGardaSíochánathroughtheirownspecificConciliaTonandArbitraTonScheme(referredtoinalaterchapter)duringthefourdecadesofthesenegoTaTons,weresaTsfiedthattheallowanceswereinthefirstinstancewhollynecessary,giventheuniquenatureoftheorganisaTonandtheenvironmentinwhichitoperates.

TheseallowanceswerelastexaminedbytheHousesoftheOireachtasCommijeeofPublicAccountsinitsReportonPublicSectorAllowancesdatedNovember2012Reference31/CPAS/005.IagreewiththeopinionofOireachtascommijeethat:“Theterm‘allowances’isofitselfasourceofconfusionandmasksseparateanddisTnctgroupsofcompensaTon.TheuseofsingletermtodescribecompletelydifferentpaymentsisbringingtheenTresystemintodisrepute.”ItisasourceofjusTfiableannoyancetothememberofAGSthattheyareohenridiculedbecausetheseallowancesarewidelymisunderstoodormisrepresented.ButthatitmustalsobesaidthatsomeoftheseallowancesdonotserveanyusefulpurposeandshouldbedisconTnued.ClearlythereisaneedtoreformthesystemofallowancesandtoretainonlythosethatserveausefulfuncTon.

Earnings•  AccordingtotheCentralStaTsTcsOffice(CSO)theaveragegross

payinAnGardaSíochánainQ2of2016was€68k--thatis4.7%higherthanoneyearearlier.Theaveragepayoverthefourquartersof2015was3.4%higherthanthefourquartersin2008

•  FigurederivedfromDPERandgiventomebytheCSOshow

averageannualearningsof€70.7kfor2016and€69.6kfor2015,comparedto€85.8kin2009

•  ThefiguresaretakenfromtheCSOEarnings,Hoursand

EmploymentCostsSurvey(EHECS).EHECSreplacedboththefour-yearlyLabourCostsSurveyandallotherCSOshort-termearningsinquiriesfromQ12008

•  Thefiguresarecrudeaveragesandincludeallranks

ItshouldbenotedthatthefiguresforearningsaregrossamountsbeforededucTonsforPRSI,taxandotherlevies.ThisisparTcularlyrelevanttothepublicsectorsinceMarch2009whenthepensionlevywasintroduced.TheCSOcauTonsthatchangesinthecomposiTonofemployeesinagivensectororgrouphasaneffectontheaveragelevelsofearningsandpaidhoursoverTme.Forexample,iftheproporTonofpart-Tmeemployeesincreaseswithinasectorthenitwouldbeexpectedthattheaverageweeklyearningsandpaidhourswouldfallinthatsectorevenifthehourlypayrateswereunchanged.Also,esTmatedaveragesdonotreflectdifferencesincharacterisTcsofthejobortheemployees,andsinceEHECScollectsaggregatedatafromeachenterpriseitisnotpossibletocorrectforsuchdifferencesusingEHECSdata.TheCSOalsopointsoutthatbecausemanypublicsectoremployeesarepaidonthebasisofincrementalscales,recruitment,parTcularlyatlowerlevels,tothesesectorswouldgenerallyresultinadepressiontoaverageearnings.Theabsenceofrecruitmenthastheoppositeeffect.EarningsareinclusiveofoverTmeandirregularearnings.ThevariabilityofthesecomponentscanimpactontrendsoverTme.ThereducToninemployeenumbersacrossthepublicsectorwillalsoimpactonaverageearnings.ConsideraTontothesefactorsshouldbegivenwheninterpreTngresults.

1,000.00

1,050.00

1,100.00

1,150.00

1,200.00

1,250.00

1,300.00

1,350.00

1,400.002008Q1

2008Q2

2008Q3

2008Q4

2009Q1

2009Q2

2009Q3

2009Q4

2010Q1

2010Q2

2010Q3

2010Q4

2011Q1

2011Q2

2011Q3

2011Q4

2012Q1

2012Q2

2012Q3

2012Q4

2013Q1

2013Q2

2013Q3

2013Q4

2014Q1

2014Q2

2014Q3

2014Q4

2015Q1

2015Q2

2015Q3

2015Q4

2016Q1

2016Q2

AverageWeeklyEarningsAGS(Euro)

AverageWeeklyEarnings(Euro)

SourceCSO

2008Q1

2008Q2

2008Q3

2008Q4

2009Q1

2009Q2

2009Q3

2009Q4

2010Q1

2010Q2

2010Q3

2010Q4

2011Q1

2011Q2

2011Q3

2011Q4

2012Q1

2012Q2

2012Q3

2012Q4

2013Q1

2013Q2

2013Q3

2013Q4

2014Q1

2014Q2

2014Q3

2014Q4

2015Q1

2015Q2

2015Q3

2015Q4

2016Q1

2016Q2

AverageHourlyEarnings(Euro)

SourceCSO

2008Q1

2008Q2

2008Q3

2008Q4

2009Q1

2009Q2

2009Q3

2009Q4

2010Q1

2010Q2

2010Q3

2010Q4

2011Q1

2011Q2

2011Q3

2011Q4

2012Q1

2012Q2

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2014Q1

2014Q2

2014Q3

2014Q4

2015Q1

2015Q2

2015Q3

2015Q4

2016Q1

2016Q2

AverageWeeklyPaidHours(Hours)

SourceCSO

PayrolldataforGardaPayIhaveanalyzedthepayrolldatafor2015,asthisgivesthemostreliablesourceofearningfor2015.ButevenheresomecaveatsmustbemadeininterpreTngthedata.InparTcularitmustbenotedthatforpayrollpurposes2015wasa53-weekyearandthisincreasesthefigurebyabout2%.However,frompayrolldatawecannowseeamoredetailedandaccuratepictureoftheearningsforalltheranksofAnGardaSíochánathanisavailablefromothersources.

AllRanksAveragePayforallmemberswas

€63,450in2015

*Ifnewrecruitsandthosewhowerepaidarrearsin2015areincludedtheaverageforGardaíis€62,911andifallthosewhoearnedlessthat€40k(thesemostlikelydidnotworkafullyear,forsomereason)arealsoincludedtheaverageis€60,278(1)Thesefigureswillincreasebyabout€4,000in2017asaaresultoftheacceptanceofLabourCourtRecommendaion

GardaRankOnlyDistribu?onofEarningsofGardaí2015

(excludingnewrecruits)

•  TenpercentofGardaíearnedmorethan€74,000•  OnequarterofGardaíearnedmorethan€66,300•  HalfofGardaíearnedmorethan€62,350•  OnequarterofGardaíearnedlessthan€59,300•  TenpercentofGardaíearnedlessthan€54,000butsomeoftheseappearnottohavebeenpaidforafullyear

SergeantsOnlyDistribu?onofEarningsofSergeants

•  TenpercentofSergeantsearnedmorethan€84,700•  OnequarterofSergeantsearnedmorethan€77,000•  HalfofallSergeantsearnedmorethan€71,000•  OnequarterofallSergeantsearnedlessthan€67,300•  Tenpercentofsergeantsearnedlessthan€63,000butsomeoftheseappearnottohavebeenpaidforafullyear

GardaRank:SalaryandAllowancesAnalysis(2015Oujurn)

ExpenditureCategory GardaRankSalaries €443,907,441UnsocialAllowance €97,400,560FixedAllowance €56,060,362ExpenseAllowance €7,030,745GardaOverTme €40,491,214PRSI €52,609,191

Salaries

UnsocialAllowance

FixedAllowance

ExpenseAllowance

GardaOverTme

SergeantRank:SalaryandAllowancesAnalysis(2015Oujurn)

ExpenditureCategory SergeantRankSalaries €94,660,987.00UnsocialAllowance €19,848,265.00FixedAllowance €11,161,408.00ExpenseAllowance €1,340,175.00GardaOverTme €12,108,528.00PRSI €6,842,655.00

Salaries

UnsocialAllowance

FixedAllowance

ExpenseAllowance

GardaOverTme

InspectorRank:SalaryandAllowancesAnalysis(2015Outturn)

ExpenditureCategory InspectorRank

Salaries €14,769,361UnsocialAllowance €2,776,087FixedAllowance €1,717,844ExpenseAllowance €316,621GardaOverTme €4,006,857PRSI €625,333

Salaries

UnsocialAllowance

FixedAllowance

ExpenseAllowance

GardaOverTme

Sample Garda Earnings Garda“A”:HighOverTmeEarnerRecruited1998withtotalearningsof€75,085.58BASIC SALARY €44,545.97 OVERTIME X 1.5 €9,486.40 SUNDAY ALLOWANCE €5,043.00 RENT €4,220.39 NIGHT DUTY ROSTERED €3,438.90 NON-PUBLIC DUTY X 2 €2,337.00 PUBLIC HOLIDAY ALLOWANCE €1,680.96 NON-PUBLIC DUTY X 1.5 €1,145.45 NIGHT DUTY 6-8 ROSTERED €823.08 ANNUAL PREMIUM PAYMENT €820.39 NIGHT DUTY NON-ROSTERED €353.62 SATURDAY ROSTERED €264.18 OVERTIME X 2 €246.00 UNIFORM ALLOWANCE G/S (N/T) €139.39 BOOT ALLOWANCE (N/T) €93.28 UNIFORM ALLOWANCE G/S (T) €88.51 NON PUBLIC DUTY NIGHT DUTY 8-8 €87.13 NIGHT DUTY 6-8 NON-ROST. €64.89 SATURDAY NON-ROSTERED €62.16 BOOT ALLOWANCE (T) €58.83 NON PUBLIC DUTY SATURDAY ALL €45.06 NON-PUBLIC DUTY 6-8 €40.99 TOTALGROSSPAY €75,085.58

BASICSALARY

OVERTIMEX1.5

SUNDAYALLOWANCE

NIGHTDUTYROSTERED

NON-PUBLICDUTYX2

PUBLICHOLIDAYALLOWANCE

Sample Garda Earnings Garda“B”:Workinginacountryarearecruitedin2009withtotalearningsof€56,697.48

BASIC SALARY €39,304.80 RENT €4,220.39 NIGHT DUTY ROSTERED €4,065.12 SUNDAY ALLOWANCE €3,239.40 OVERTIME X 1.5 €1,828.10 PUBLIC HOLIDAY ALLOWANCE €1,460.72 ANNUAL PREMIUM PAYMENT €786.14 SATURDAY ROSTERED €388.50 OVERTIME X 2 €356.27 NIGHT DUTY 6-8 ROSTERED €322.12 NIGHT DUTY NON-ROSTERED €175.89 NON-PUBLIC DUTY X 2 €142.51 UNIFORM ALLOWANCE G/S (N/T) €139.39 BOOT ALLOWANCE (N/T) €93.28 UNIFORM ALLOWANCE G/S (T) €88.51 BOOT ALLOWANCE (T) €58.83 NIGHT DUTY 6-8 NON-ROST. €27.51 Total €56,697.48

BASICSALARY

NIGHTDUTYROSTERED

SUNDAYALLOWANCE

OVERTIMEX1.5

PUBLICHOLIDAYALLOWANCEANNUALPREMIUMPAYMENTSATURDAYROSTERED

OVERTIMEX2

NIGHTDUTY6-8ROSTEREDNIGHTDUTYNON-ROSTERED

Sample Garda Earnings Garda“C”:Averageearnerinatownrecruitedin1999withtotalearningsof€63,029.74

BASIC SALARY €42,800.15 SUNDAY ALLOWANCE €4,522.28 RENT €4,220.39 NIGHT DUTY ROSTERED €4,111.64 OVERTIME X 1.5 €2,319.28 PUBLIC HOLIDAY ALLOWANCE €1,413.23 ANNUAL PREMIUM PAYMENT €758.88 PREM PAYMENTS - INJURY ON DUTY €645.62 NIGHT DUTY 6-8 ROSTERED €465.98 ILLNESS/OIB PRSI/USC PAY €407.30 NON-PUBLIC DUTY X 1.5 €354.54 SATURDAY ROSTERED €264.18 UNIFORM ALLOWANCE G/S (N/T) €139.39 OVERTIME X 2 €118.18 NIGHT DUTY NON-ROSTERED €98.48 BOOT ALLOWANCE (N/T) €93.28 UNIFORM ALLOWANCE G/S (T) €88.51 NON-PUBLIC DUTY X 2 €78.79 BOOT ALLOWANCE (T) €58.83 NON PUBLIC DUTY NIGHT DUTY 8-8 €29.54 NIGHT DUTY 6-8 NON-ROST. €19.69 NON PUBLIC DUTY SATURDAY ALL €15.02 NON-PUBLIC DUTY 6-8 €6.56

TOTAL €63,029.74

BASICSALARY

SUNDAYALLOWANCE

NIGHTDUTYROSTERED

OVERTIMEX1.5

PUBLICHOLIDAYALLOWANCE

ThereisnoobviousevidencethatAGSearningshavefallenoutoflinesignificantlyWithotherpublicsectoremployees.

GardaPensions

•  InaddiTontoannualremuneraTon,membersofAnGardaSíochánaaccrue

pensionrightseachyear.Whileitisdifficulttoplaceaprecisevalueonthesebenefits,anyreviewofremuneraTonmustincludeconsideraTonofthemastheyareahighlyvaluedcomponentoftotalremuneraTonandformaverysignificantproporTonoftotalpayrollcost.

•  TherearecurrentlythreeschemesinoperaTon.Thefirsttwoareoperatedunder

theTheGardaSíochánaSuperannuaTonSchemeandapplytoallmemberswhowereajestedbefore1January2013.ThestatutorytermsandcondiTonsoftheschemesaresetoutintheGardaSíochánaPensionsOrders,1925to1981,andagreementsundertheGardaSíochánaConciliaTonandArbitraTonScheme.

•  Therearenotrustees.Thereisnofund.•  Expenditureundertheschemesismetfromcurrentrevenueandisauditedbythe

ComptrollerandAuditorGeneral.

UpunTl2008,pensionswereincreasedinlinewithpayincreasesandfromthesameeffecTvedateasthatapplyingtoservingmembersoftheGardaSíochána.Since1January2011pensionsmaybesubjecttothePublicServicePensionReducTon(PSPR).ThePublicServicePensionReducTon(PSPR)wasintroducedon1January2011undertheFinancialEmergencyMeasuresinthePublicInterestAct2010(“FEMPI2010”).Inallcases,thePSPRhasbeenlimitedtoensurethattherateofpensiondoesnotfallbelow€32,500perannum.ThetermsandcondiTonsofPSPRhavebeenrevisedperiodically,mostrecentlyunderthechangestothePublicServicePensionReducTon(PSPR)whichhavebeenlegislatedaspartoftheFinancialEmergencyMeasuresinthePublicInterestAct2015(“FEMPI2015”).MostnoTceableisthe“graceperiod”forpensionawards,whichhasbeenextendedto1April2019.DuringthegraceperiodnewreTrementpensionsareawardedbyreferencetohighersalariesthanthereTreesactuallyearned(beingthesalariespaidjustbeforethepublicservicepaycutsofJanuary2010).

Mainprovisions•  MembershipofthemainpensionschemeiscompulsoryforallmembersajestedtotheForcebefore1January2013andmembershipcommencesfromdateof

ajestaTon.•  Theschemeisacontributoryone.PeriodicdeducTonsaremadefrompensionableremuneraTonduringpensionableservicewiththeforceunTlthedateof

discharge.AdeducTonof1.75%ofbasicpay,rentallowanceandpensionableUnsocialHoursAllowancesismadefromtheweeklysalaryofservingmembers.ContribuTonArrangementsformembersrecruitedaher5April,1995RevisedcontribuToncondiTonsapplytomemberswhowererecruitedaher5April,1995andwhopayClassA(P.R.S.I.)contribuTonsandareinreceiptofahigherrateofpay.ThecontribuTonfrompayisattherateof1.5%oftherelevantpayplus3.5%oftherelevantpay(reducedbytwicetherateofSocialWelfareOldAgePension).SuperannuaTonbenefits-whenco-ordinatedwithSocialWelfareenTtlements-ofthesemembersarecomparabletoexisTngmembers.ContribuTonstotheSchemeareapprovedbytheRevenueCommissionersforthepurposesofTaxRelief

•  ThemainbenefitspayableundertheschemearepensionandreTrement/deathgratuity.PensionandReTrementgratuitypaymentsaredeterminedby:

•  totalreckonableservice(maximum=40years)and•  .pensionableremuneraTononlastdayofreckonableservice

Pensionandgratuityarepayableforeachyear(andporTonofayear)ofreckonableserviceatthefollowingrates:Pension:1/80thofreckonableremuneraTon,Gratuity:3/80thsofreckonableremuneraTon.

•  Thepensionpayable(otherthanaSpecialPension)is40/80ths(0.5)ofpensionableremuneraTonandgratuityis120/80ths(1.5)TmespensionableremuneraTon.ApprovedserviceaherthetwenTethyearofserviceisdoubledforpensionpurposes.Accordingly,amemberwith30yearsapprovedservicehasfulfilledtheservicerequirementtobeawardedmaximumsuperannuaTonbenefits:-30yearsactualservice=20+20(10yearsdoubled)==>40yearsreckonableserviceDeathGratuity(payableonlywheredeathoccurspriortoreTrement),themember'slegalpersonalrepresentaTvereceivesaminimumof1year'spensionableremuneraTonoruptoamaximumof1.5years'pensionableremuneraTon.InordertobeeligibleforsuperannuaTonbenefits(otherthanDeathGratuity)themembermusthaveatleast2yearsapprovedservice.ReTrementonpensionrequiresthatthememberajaintheageof50yearsandhaveatleast30yearsapprovedservice.NewentrantsappointedtoAnGardaSíochánaaher1April,2004cannotreTreonpensionunTlajaining55yearsofage.

•  ThePublicServiceSuperannuaTon(MiscellaneousProvisions)Act,2004providedthatnewentrantsappointedtoAnGardaSíochánaaher1April,2004cannotreTreonpensionunTlajaining55yearsofageandmayreTreatalaterdateupto60yearsofagesubjecttotheGardaCommissionerbeingsaTsfiedastohealthandcapabilityrequirements.

•  ThereTrementageformembersofAnGardaSíochánawasextendedfromage57toage60witheffectfrom22December,2006.

TheGardaSíochánaSpouses'&Children'sContributoryPensionScheme

•  TheGardaSíochánaSpouses'&Children'sContributoryPensionSchemecameintoforceinrespectofmembersreTringfrom23July,1968.Thisschemeprovidesapensionforthespouseand/ordependentchildrenofamemberwhodiesinserviceorhavingqualifiedforapensionorpreservedpension.

•  TheSchemeisgivenstatutoryeffectbyvirtueoftheGardaSíochánaPensionsOrder,1981andmembershipoftheSchemeiscompulsoryformalemembersappointedonoraher1January,1972andforallmembersappointedfrom1July,1984.

•  TheSchemeisacontributoryone.

•  AdeducTonof1.5%ofbasicpay,rentallowanceandpensionableUnsocialHoursAllowancesismadefromthesalaryofservingmembers.Normally,theschemerequirescontribuTonsinrespectof40years.ContribuTonsoutstandingatreTrement/deatharedeductedfromgratuiTesattherateof1%ofbasicpayinrespectofeachoutstandingyearandpartthereof.OutstandingcontribuTonsarealsodeductedfromgratuiTesinrespectofpensionableallowancesattherateof1%inrespectofservicepriorto1March,1985(1/1/94inthecaseofUnsocialHoursAllowances).InthecaseofallowanceswherenoperiodicdeducTonsweremade,deducTonshavetobemadefromgratuiTesforservicesince1March1985also,attherateof1.50%.

•  ThecosttotheExchequeroftheSuperannuaTonbenefitsforsurvivingdependentsofformermembersoftheGardaSíochánaismeteachyearoutofcurrentrevenue.ContribuTonstotheSchemeareapprovedbytheRevenueCommissionersforthepurposesofTaxRelief.

•  TheschemeisadefinedbenefitschemeforthepurposesofthePensionsAct,1990.

•  Aspouse'scontributorypensionisnormallyhalfthelatemember'spensionenTtlement.

SinglePublicServicePensionScheme

•  ThethirdschemeappliestoallmembersoAnGardaSíochánarecruitedaher1January2013whomustbecomeamemberoftheSinglePublicServicePensionScheme.

•  TheSchemeprovidesapensionandreTrementlumpsumbasedoncareeraveragepensionableremuneraTon.ThereisafacilityforearlyreTrementfromage55onacostneutral(actuariallyreduced)basis.ThereisalsoafacilityforearlyreTrementonmedicalgrounds,subjecttocertaincondiTons.AdeathinservicebenefitoftwiceannualpensionableremuneraTonisalsoprovided.ThepensionisindexaTonlinkedtoCPIincreases.

•  AccrualandPaymentofbenefits•  Membersaccrue(i.e.buildupoverTme)referableamounts(i.e.moneyamounts)forpensionandlumpsumforeachyearofworkorpartthereof

basedonpensionableremuneraTonatthatTme.•  Pension:Accrualrateof0.58%ofpensionableremuneraTonuptoaceilingof3.74XStatePensionContributory(SPC)(currently€45,000)PLUS

(whereapplicable)1.25%ofpensionableremuneraTonabovethatlevel.•  Lumpsum:Accrualrateof3.75%ofpensionableremuneraTon.•  ReferableamountsareadjustedannuallybyreferencetoincreasesinCPIandaggregatedreferableamountsconTnuetobeup-ratedunTl

reTrement.•  Accruedandup-ratedreferableamountsoveracompletecareerareaddedtogethertoproducethepensionandlumpsumvaluesonreTrement.•  Membersreceiveanannualbenefitstatementshowingpension/lumpsumamountsaccruedtodate.oFollowingreTrement,pensionisincreasedin

linewith•  risesinCPI;ifCPIfalls,thepensionisnotreduced.

Member’slegalpersonalrepresentaTvewillreceiveacapitalsum(equaltotwiceannualpensionable•  remuneraTon)shouldthememberdieinservice.

Pensionsarepayabletoaspouseorcivilpartnerandtoeligiblechildren,asdefinedintheScheme,ina•  caseofdeath(beforeoraherreTrement).

SchememembersordinarilypayfullsocialinsurancecontribuTonsandareeligibletoreceiveaStatePensionContributory(SPC)(subjecttopayingsufficientPRSIcontribuTonsandothercriteriathatmayapplyfromTmetoTme),inaddiTontooccupaTonalpension.Consequently,theSPCistakenintoaccountwhencalculaTngpensionsunder

•  theScheme.ThisisknownasintegraTon.

TheValueofGardaPensionsaspartofTotalRemuneraTon

NeithertheDepartmentsofJusTceandEqualitynorDPERwereabletoprovidemewithesTmatesofthevalueoftheSuperannuaTonSchemestomembersofAGS.•  Itisdifficulttoplaceavalueonthesebenefits.Ihave,however,madesomeesTmatesof

theirvaluebasedonthecostofthosepaymentsin2015•  In2015thecostoftheSuperannuaTonschemewas€311m,ofwhich€36mwascontributed

bythe12,800acTvemembersofthescheme.Thisrepresentslessthan12%ofthecost.IfallmembershadtopaythefullcosttheywouldhavehadtocontributeanaddiTonal€275mor€21.5keach.Tofundthisinaher-taxincometheywouldhavetohavebeenpaidanaddiTonal€40kapproximately.ThisisequivalenttoanaddiTonal80%ofpayapproximately.ThiswouldbringtotalremuneraTonoftheaverageGardatotheequivalentofinexcessof€100kbeforetax

•  Ontheotherhand,anotherwayofesTmaTngthevalueistoaskwhatcontribuTonwouldberequiredofapersonaged20whowishestofundapensionof€25kpayableatage50.AccordingtothePensionsAuthorityCalculatorthatpersonwouldberequiredtopayintheorderof€30kperannum,or50%ofearningseachyear,toachievethatgoal.ThevalueofthesuperannuaTonschemeisthereforeverysubstanTal,andisunderstandablyimportanttothosewhobenefitfromit

•  IrealisethattheseesTmatesareroughandready,andamoreaccuratevaluaTonshouldbeconductedonthevalueofthesebenefits.IamconfidentthatthePSPCwilldosuchanexercise.

THEHISTORYANDFUTUREREQUIREMENTSOFPAYDETERMINATIONINAGS12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 49

FrommyfamiliarisaTonmeeTngswithGardaí,SergeantsandInspectors,andSuperintendentsandChiefSuperintendents,itwouldappearthattheydonotbelievethatthefullextentoftheirduTesandresponsibiliTesistakenintoaccountindeterminingtheirpay.TheyfeelthatbecauseofmanynewfactorsandincreasingworkloadtheirbasicpayscaleisnotreflecTveoftherealjobtheyperform.SergeantsaddiTonallyfeelthattheextrarecentstatutoryresponsibiliTesarenotrecognisedintheirremuneraTon.ThesefeelingandbeliefswerereinforcedbythewrijenandoralsubmissionsoftherepresentaTvesofallfourAssociaTons.ThereislijleconfidenceamongstmembersofAGSthatImetinthewayinwhichtheirpayisdetermined,butneitheristheremuchknowledgeabouthowitisdetermined.ThisisunderstandableasupunTlnowthereisnoobviousevidencethatanyorallofthefactorsthatshouldbetakenintoaccountareinfacttakenintoaccountorgivendueweightinsefngtheirbasicpayscales.ItisunnecessaryformetoretellthestoryofpaydeterminaToninitsearlyhistory;itiswellrecountedintheworksIhavereferencedinAppendix3.HoweverIdowishtopointoutwhatIconsidertobeunsaTfacoryaspectsofthetwomoreimportantrecentexercises,theConroyandRyanreports.

ConroyReport

•  TheConroyreporthavinglookedatotherformulaoptedforthe“rateforthejob”:

•  288.IthasalsobeensubmiOedtousthatastheduGesandcondiGonsofserviceofaGardaarenotcomparablewiththoseofanyothergrouporoccupaGon,theproperprincipletobeappliedisthe"rateforthejob".

•  289.The"rateforthejob"involves(a)theconsideraGonoftheworkcontentofthejob;(b)theconsideraGonofthecondiGonsunderwhichtheworkiscarriedout;and(c)theconsideraGonofthepayscalesinotheremployments.ItalsoinvolvestheassessmentinmoneyofthevalueofthejobofaGardabearinginmindallthecondiGonsofemployment.

•  290.Weareofopinionthatthebestprimaryprincipletoadoptisthe"rateforthejob".•  291.AmongthefactorswhichwehaveconsideredinapplyingthisprinciplearetheeducaGonalrequirementsatentry,

training,perquisites,reGrementandsuperannuaGonrights,theinconveniencesanddisabiliGesaOachedtothejob(suchasinabilitytotakeupspareGmeemployment),long,irregularanduncertainhoursofwork,week-endandbankholidaywork,liabilitytotransferandstrictdisciplinaryregulaGons,producGvity,thespecialposiGonofaGarda,andthefactthathisworkis"suigeneris".

•  319.OurrecommendaGonsarebasedonalltherelevantfactorsmakinguptheworkcontentofthejobofaGardaandonhisvaluetothecommunity.

•  320.InmakinganassessmentofwhatshouldbethebasicpayofaGardawealsoboreinmindthatacompellingcasehasbeenmadethattheduGesandcondiGonsofserviceofapolicemanareunique,andhavebeenrecognisedasbeingsoinallothermajorinvesGgaGonsofpoliceworkandpay.

•  322.Weaccepttheargumentthatpoliceworkhasbecomemoreonerous,complexanddemandinganddemandsahighereducaGonalstandard.ThesefactorsshouldberecognisedbyappropriatepayandbyimprovementsincondiGonsofservice.

•  Conroyrejectedtheuseofthe“WillinkFormula”because•  284.NomathemaGcalorlogicalbasishasbeengivenforthedeterminaGonofthepercentageincreasesof45%and25%.In

theabsenceofanysaGsfactoryreasonforfixingthesepercentageincreases,wedonotaccepttheWillinkFormulaasasuitableformulaforapplicaGoninIrishcondiGons.

•  ButthenConroyrecommendsratesofpaywithoutanyobjecTveanalyTcal,mathemaTcalorlogicalassessmentofthefactorsthatshouldbetakenintoaccount.

TheRyanReport•  TheRyanreportadoptedthesameapproach:•  3.95HavingweighedalltheseconsideraGons,andcarefully

assessedalltheargumentsputforwardinthewriOensubmissionsandattheoralhearings,werecommendthatthebasicpayforthoseranksoftheGardaSíochánacomingwithinourtermsofreferenceshouldbeassetout'inTable3.3below.

•  BothoftheseapproachesrelysolelyonthepersonalviewsoftheauthorsofthereportandgivenoguidanceastotherelaTveimportancetheyplacedonthevariousfactorsthattheytookintoaccount.Thishasthedangerofbeingarbitraryandopaque.Whileinthepastemployeesmayhavebeenpreparedtoaccepttheopinionofjudgesorotherrespectedmembersoftribunalsasfair,thisisnolongerthecaseandwhatisneedednowisanopenandtransparentsysteminwhichtherepresentaTvesofemployeesarefullyinvolved.

BasicprinciplesthatshouldapplytothesystemofpaydeterminaTonforAGS

NBTheseelevenprincipleswerecirculatedasaworkingdocumenttoallparGcipantsduringthecourseofourmeeGngsanddiscussedinsomedetailastheyapplytothePSPC.

1.   ItshouldbeopenandtransparentTheproceedingsanddocumentsshouldbeopentotheparTcipantsandthepublic

2.   ItshouldbebasedonfactualevidenceWhereevidenceuseditshouldbeverifiableandverified

3.   Itshouldbesystema?cThereshouldbeanagreedsystemofevaluaTng/assessingtheworkofmembersoftheforce.Thisreviewshouldagreetheframeworkandmethodologytobeused.

4.   Itshouldbeasobjec?veaspossibleThedegreeofjudgment/discreTonshouldbenarrowed.Itshouldnotbereliantonthegoodwillorprejudiceofthepersonmakingthedecision.TheChairshouldbeindependentandacceptabletoallsides.

5.   Itshouldbeequallybindingornotbindingonbothsides.Iftheoutcomeoftheprocessistobebindingononesideitshouldbebindingontheother.

6.   ItshouldbefairandseentobefairtomembersofAnGardaSíochánaandtothepublic..Abalanceshouldbestruckbetweentherequirementtoremuneratethemembersoftheforceandthetaxpayers’abilityordesiretofundsame.

7.   Itshouldbesubjecttofixedperiodicopera?onandreviewThereviewofremuneraTonshouldbeconducted,say,everyfiveyearsandareviewoftheoperaTonofthesystemevery20years,i.e.aherfourcycles.

8.   Ifnecessary,itshouldbestatutorilybased.Forexample,thesystemmayprovidethatiftheofficialsidedoesnotimplementabindingdecision,thenaresoluTonoftheOireachtasmayberequired.

9.   ItshouldaffordtheGardaRepresenta?veAssocia?onsandtheofficialsidemaximumpossibleinvolvementinthedesignandimplementa?onoftheprocess.ThiswillbeachievedthroughworkingthroughthisReview

10.   ItshouldbeacceptabletoandexplicitlyacceptedbytheGardaAssocia?onsandtheOfficialside.OncethisReviewiscompletedtheMinisterforJusTceandMinisterforPublicExpenditureshouldindicatetheiracceptanceoftheseprinciplesandtheAssociaTonsshouldballottheirmembersontheproposals.OnlyifallparTesunambiguouslyacceptthenewsystemshoulditbeimplemented.

11.   ItshouldbespecificallydesignedforAnGardaSíochánaanddealexclusivelywithGardapay.

ConciliaTonandArbitraTon•  GardaíhavehadamechanismfornegoTaTngandimprovingtheirpayand

condiTonsofemploymentsimilartocivilservants,namelyaConciliaTonandArbitraTonschemethatisstatutorilybasedandwhichwasrevisedbyagreementinMarch2004andbroughtintolinewithsimilarschemesinotherpartsofthepublicservice.

•  ThatConciliaTonandArbitraTonschemewasthenegoTaTngmechanismestablishedforthepurposeofenablingtheMinisterforJusTce&Equality,theMinisterforPublicExpenditureandReform,andtheCommissionerofAnGardaSíochánaontheonehand,andtheRepresentaTveAssociaTonsontheotherhand,toprovidemeansacceptabletotheGovernmentandtheseGardaRepresentaTveAssociaTonsforthedeterminaTonofclaims,includingpayandallowancesandproposalsrelaTngtocondiTonsofServiceofmembersoftherankstheyrepresent.ThisschemehaditsshortcomingsanditsperceivedindependencewasquesToned.However,itshouldbepointedoutthatmostofitsdecisionswerebyagreementandbothsideswereeffecTvelyboundbythesedecisionsandthatitbroughtmanybenefitsandimprovementsinallowancesformemberoftheforce.

AfurtherpurposeoftheC&Aschemewastosecureco-operaTonbetweentheState,asemployer,andthemembers,asemployees,forthebejerdischargeofthefuncTonsofAnGardaSíochána.Intheviewofmanagement,thishastheaddedeffectofpreservingindustrialharmony,maintainingconfidenceintheGardaindustrialrelaTonsmachineryandensuringthatanyvariaToninthetermsoftheseagreementsrequiredthattheybere-negoTatedwiththerepresentaTveassociaTon,inlinewithbestpracTce.ItisonlyfairtopointouthoweverthatinrecentyearstherepresentaTveassociaTonshavelostconfidenceinthisprocessandithasbecomeredundantandirrelevant.ThereareofcourseotherchannelsofcommunicaTonbetweenGardamanagementandmemberandtheseareinprocessofbeingdevelopedunderthecurrentHRplan.

AssessmentofCurrentArrangements

•  Inthesensethatthereisany‘system’ofindustrialrelaTonsitcanbedescribedasanarchical,inthatitisdisorderedandiswithoutdefinedrulesofengagement.ItisnotworkingandbothsidesaredissaTsfiedwithit.NeitherisitmeeTngthepublic’sneedforadependablenaTonalpoliceandsecurityservice.Furthermore,itdoesnotmeettherequirementsofthe“Eurocop”decision.EuropeanConfederaTonofPolice(EuroCOP)–v-IrelandComplaintNo.83/2012

•  Iamthereforerecommendinganewsystemthataddressesallthe

shortcomingsinthepresentsystemandwhich,inmyview,representsfairbalanceoftherightsandobligaTonsofalltheinterestedparTes

RECOMMENDATIONSONNEGOTIATIONSTRUCTURES

AFundamentalConfusion•  Inmyview,thesourceofmanyofthedifficulTesthathave

arisenintheindustrialrelaTonsinAGSderivefromalackofclaritybetweenthreedifferentprocesses:–  Informing–  ConsulTng–  NegoTaTng

•  ThisconfusionisnotuniquetoAGSandinmyexperienceiscommoninmanytradiTonalunionisedemploymentsinIreland.ItleadstoamismatchinexpectaTons,forexamplewhenonepartytoadiscussionunderstandsthatthemajerisforconsultaTononlyandtheotherbelievesittobeamajerfornegoTaTonandagreement

ClarificaTonofProcesses•  ItisoftheutmostimportancethattheAssociaTonsandAGSmanagementclarifythat:

•  InformaTonexchangeisnotconsultaTonornegoTaTon

•  ConsultaTonisaprocessinwhichmanagementinformsemployeesofimpendingchangesandseeksemployees’views,butmanagementthendecidesthemajer

•  NegoTaTonoccurswhenonesideproposesachangeandbothsidesthroughdiscussionreachagreement

SeparateChannels

•  ItwillbeimportantforthefuturethatbothAGSmanagementandtheAssociaTonsareclearastowhichprocessestheyareengaginginatanyoneTme.Forexample,itshouldbeclearthatmanagementpoliciessuchastheCommissioners’recent“ModernisaTonandRenewalProgramme2016-2021”shouldbeamajerforconsultaTonnotnegoTaTon

•  ThatisnottosaythattheremaybemajersarisingfromitthatrequirenegoTaTon,butthosenegoTaTonswouldneedtobeinaseparateforumandclearlydelineatedinadvance

TheIndustrialRelaTonsSysteminIreland•  HistoricallyinIrelandoursystemofindustrialrelaTonsisbasedonanapproach

thatisdesignedtoencouragecollecTvebargainingasthebestwayofsefngpayandcondiTonsofemployment.ItisalsobasedontheassumpTonthatfreeandindependenttradeunionsfundedbytheirmembershipshould,inreturnforminimumstandardsofgovernance,haveimmunityfromlegalresponsibilityforthefinancialdamagetheycausetotheiremployerintheconductofstrikesinpursuanceofimprovementsinpayandcondiTonsofemployment.

•  ThismodelwasdesignedprincipallyfortheprivatesectorandallowscapitalandlabourtoengageinacTviTesthatdamagetheeconomicinterestsoftheotherinthehopeofgainingalonger-termadvantage.Inotherwords,workersarefreetopeacefullywithdrawtheirlabourthroughconcertedacTonandforegotheiropportunitytoworkandearnwagesintheexpectaTonthattheiremployerwillsejlethedisputeratherincurthelossofproducTonandprofitthatastrikenecessarilyinvolves.

•  Workersaccepthoweverthatitisnotintheirinteresttoinflictsomuchdamageastoputtheiremployeroutofbusinesspermanently.Neitherthetradeunionoritsmemberscanbeheldlegallyliableforthedamagecausedtotheemployer’sbusinessbutneitheristheemployerliablefortheincomelostbytheemployeewhileonstrike.ThisisthebalancethatisacceptedasfairinmostdemocraTcsocieTesanditisenshrinedingoodlabourstandardsworldwide.

NormalisingIndustrialRelaTons•  Myapproachinthisreportistobringthestructuresand

mechanismsinAGSintolinewithmodernnormsandbestpracTceinsofarastheyareappropriate,butnofurther

•  InparTcular,ImustrecognisethattheuniquenatureofpoliceworkrequiresspecialfeaturesthatmustbeaccommodatedintheAGSindustrialrelaTonssystem

•  IdonotbelievethethecriminallawhasaroletoplayinindustrialrelaTonsotherthaninthepreservaTonofpublicorder

•  TheuseofthedisciplinarycodeissimilarlyinappropriateinAGSindustrialrelaTonsissuesaspeerpressuremayexposeindividualmembersofAGStoimpossiblepressuretoparTcipateinformsofindustrialacTonsorstrikesinwhichtheymightotherwisenotwishtoengage

NormalizingTradeUnionStatus•  IrecommendthatmembersofAGSshouldhavetherighttojoinindependent

tradeunionsandthatthoseunionsshouldhavetherighttobargaincollecTvelywiththeiremployer

•  ThecurrentGardaRepresentaTveAssociaTonandtheAssociaTonofGarda

SergeantsandInspectorsare,inmyview,notproperlyconsTtutedorgoverned,astheiracTonsoverrecentmonthshaveclearlydemonstrated.PartofthereasonforthisisthattheyarenottradeunionsunderIrishlawandarenotthereforeboundbyanyoftheminimalgovernancemeasuresrequiredoftradeunionsthatoperateinIreland

•  Forexample,theirballoTngpracTcesandproceduresforcallingstrikesare

unclear,andappearchaoTctooutsideobservers.IrecommendthereforethattheGRAandAGSIshouldimmediatelyplantobecomeregisteredtradeunions,withconsTtuTonsandrulebooksbasedonbestpracTceinIrishtradeunionism.IrecommendthattheyseektheadviceofICTUinachievingthisend

NormalizingTradeUnionStatus(2)•  ThesenewunionsshouldbefundedenTrelyfrommembers’

subscripTonsonly,andallsubsidiesfrompublicfundsincashorinkindshouldceaseimmediatelyotherthanthenormalestablishedpracTceforreasonableTmeoffforunionduTesasapplythroughoutthecivilandpublicservice

•  TheLabourAffairsDivisionoftheDepartmentofJobs,Enterprise

andInnovaTonprovidedmeon2December2016withadocumentthatusefullyoutlinedthepracTcallegislaTveconsideraTonstoallowaccesstotheWRCandLabourCourtandfortheGRAandAGSItobecometradeunions.IunderstandthattheGovernmenthasgivenacommitmentthatthesechangeswillbeputinplacebyend2017

NormalizingManagementRepresentaToninNegoTaTon

•  IalsoconsideritunsaTsfactorythatindirectnegoTaTons,themanagementofAGSseemtotakeabackseatwhiletheDepartmentofJusTcemakestherunning.TheGardaCommissioneristheAccounTngOfficeranditwouldthereforebemoreappropriatethatthenegoTaTonofpayandcondiTonsofemploymentshouldbeentrustedtothemanagementofAGSacTng,ofcourse,withtheapprovaloftheDepartmentsofJusTceandPublicExpenditure--asappliestomanyotherareasofthepublicservice.

NormalizingIndustrialRelaTonsinAGS

•  IhaveconsideredcarefullyhowmuchofthenormalmodelofindusrialrelaTonscouldorshouldapplytoournaTonalpoliceserviceandmyrecommendaTonsarebasedontheconclusionthatmemberofAGSshouldenjoy,asfarasisappropriate,thesamerightsasallotherworkers.

•  TheLabourAffairsDivisionoftheDepartmentofJobs,EnterpriseandInnovaTonhaspreparedthelistofemploymentrightslegislaTonthatisincludedatAppendix2.IrecommendthatmembersofAGSshouldhaveaccesstothisprotecTvelegislaTonincludingtheUnfairDismissalsAct1977,andtheOrganisaTonofWorkingTimeAct1997.

ChecksandBalances•  Howeveritmustberecognisedthatthechecksand

balancesthatapplyinaprivatesectoremploymentdonotapplyinthesamewayinthepoliceforce.WhenandifmembersofAGSwithdrawtheirlabour,theyforegopayfortheduraTonofthatwithdrawalbuttheemployerdoesnotlosethe‘output’;itisthemembersofthepublicwhosuffertheloss.Indeedtheemployersavesthewagesthatwouldotherwisebepaid.InthecaseofamonopolynaTonalpoliceforcethereisnoquesTonoftheemployergoingoutofbusinessbecauseofthedamagecausedbyastrike.Thenormalchecksandbalancedonotpertain.SomeaccommodaTonofthesefactorsmustthereforebebuiltintothesystemtomakeitappropriateforournaTonalpoliceforce.

StrikesandIndustrialAcTon•  Strikesshouldnothappeninthepoliceforce,especiallyasthisisa

monopolyserviceandthenaTonalsecurityserviceispartofthepoliceservice

•  ThecurrentindustrialrelaTonssystemisclearlynotachievingthe

objecTveofavoidingstrikesinthepoliceservice.ItwasunTlrecentlyunderstoodorassumedthatas‘adisciplinedforce’themembersofAGScouldnotlegallygoonstrikeandwouldobeythelawinthatregard

•  Recenteventshaveproventhiswrong.Forexample,aballotofmembers

oftheGRAindicatedthat95.3%ofitsmembersexpressedawillingnesstotakepartinindusrialacTon.ItisclearthatthevastmajorityofmembersofAGSisindeedpreparedtotakeindustrialacToninpursuitofimprovedtermsandcondiTonsofemployment.ThemembersofAGSIinfactengagedinindustrialacTonontwoFridaysinrecentweeks.InmyjudgmentthisisanunsaTsfactorystateofaffairsintheconductofindustrialrelaToninAGSandmustnotbeallowedtoconTnue

ANewNegoTaTonProcessandAgreement

•  IamthereforerecommendingthatinfuturepayandcondiTonsofemploymentshouldbedeterminedthroughcollecTvebargainingbetweenindependenttradeunionsrepresenTngtheinterestsofmembersofAGSontheonehandandthemanagementofAGSontheother.InAppendix1IhavesetoutaprocedureagreementthatincludesaccesstotheWorkplaceRelaTonsCommissionandtheLabourCourtwhendirectnegoTaTonsarenotsuccessful.ThatprocedureprovidesthatalldisputescanberesolvedinafairmannerwithoutrecoursetoindustrialacTonofanykindbyeitherside.IrecommendthatthisagreementberegisteredwiththeLabourCourtandthatallparTesagreetobeboundbyitsprovisions

•  IfallparTesadheretothisagreementtherewillbenostrikesor“withdrawaloflabour”

AlternaTveSancTons•  However,havingregardtothecultureofAGS,andgiventherecentacTonsof

twooftherepresentaTvebodiesandthepossibilitythatindividualor‘unofficial’groupsmighttakemajerintotheirownhands,itismyconsideredviewthattheMinisterresponsibleforAGSonbehalfofallciTzensmustputinplaceanaddiTonalmeasuretoensureasfarapossiblethatstrikesdonottakeplace.WeknowfromhistorythatjailingtradeunionofficialsorleadersofanykindisnotpoliTcallyacceptabletothemajorityofciTzensandpoliTciansandthatsancTonswillsimplynotbeappliedifthereisanydiscreTonintheapplicaTonofthosesancTonstomembersofAGS.This,Isuggest,isapoliTcalrealityandtopretendotherwiseisnaïveandfoolish.

•  IamthereforesuggesTngthatanautomaTcsancTonshouldbeappliedtoanymemberofAGSwhoengagesinindustrialacTon.Thiswouldofcourseinclude‘blueflu’andanyothermeasuredesignedtoputpressureonmanagementofAGSortheGovernment.ThequesTonastotheappropriatesancTonisadifficultone.ItisunlikelymembersofAGSwouldenforceanydiscreTonarypenalTesagainsttheirowncolleagues,anditwouldbefollytoenactoramendyetanotherlawthatwillnotbeimplemented.

LossofPensionAccrual•  Oneoftheuniquefeaturesofthe‘contract’underwhichGardaíare

employedisaveryvaluablepensionscheme;itisevenmorefavourablethantheCivilService.Itrecognisesthespecialanduniquenatureofpoliceworkanditis,inmyview,thereforeappropriatethatanymemberofAGSwhoengagesinindustrialacTonshouldsufferanautomaTcreducToninhis/herpensionenTtlement.

•  IrecommendthereforethatthetermsofthestatutorySuperannuaTonScheme(s)beamendedtoprovidethatamemberwhoengagesinindustrialacTonshouldbeineligibletoaccruepensionrightsforaperiodoffiveyearsfromthedateonwhichthememberengagesinthatacTon.Astheprovisionsoftheschemearebasedonastatutoryinstrument,IdonotbelievethiswouldrequireprimarylegislaTon.

•  IrecommendthattheMinisterforJus?ceandEqualitymakethisamendmentimmediately.

•  DepartmentofJusGceandEqualityraisedlegalconcernsaboutthisproposal,butdidnotaccedetomyrequesttoverifythatthisamendmentcanbemadethroughsecondarylegislaGon.TheDepartmentalsoraisedthequesGonofproporGonality,butofferednoalternaGve.

AlternaTves•  IrecognisethatthepotenTallossofpensionaccrualisanunprecedentedmeasure

andthatIexpectitwillberesistedbythemembersofAGS•  HoweverIconsiderthatitisareasonablemeasureinthecontextthatGardaíwill

havefullnegoTaTngrightsandaccesstotheLabourCourttoresolveanydifferencestheyhavewiththeiremployer

•  DuringthecourseofmyreviewIaskedallparTcipantstosuggestanyalternaTveeffecTvemeansofensuringthatstrikesorotherformsofindustrialacTonwouldnottakeplace.ImadeitclearthatIwoulddropthisproposalifanyeffecTvealternaTvewasputonthetablebutnosuggesTonsthatIconsideredeffecTvewereputforward

•  IconsideredaproposalmadeonbehalfoftheCommissionerthatthe“ambiguityshouldbeaddressedthroughlegislaTvechangetocopperfastentheprohibiTonontakingindustrialacTonbyGardaMembers”.Inmyviewtheproblemisnotambiguitybut,asrecenteventshaveclearlyshown,thereisadisinclinaTontoimplementthelaw

•  TheunusualmeasurethatIamproposingshould,inmyview,bepartandparceloftheuniquenessofAGSonly,andneednotapplytoanyotheremployment

SuperintendentsandChiefSuperintendents

•  TheroleofSuperintendentsandChiefSuperintendentsisofcriTcalimportancetothemanagementofthepoliceservice.TheirremuneraTonhasbeenreducedinlinewithallothersofsimilarlevel.ItisessenTalthatitberestoredonanequitablebasis.IhaveshowninthetablespreviouslywhatIesTmatetheirsalarieswouldbefollowingtheapplicaTonoftheLabourCourtrecommendaTonamountstothosesalaries.IunderstandthatnodecisionhasbeenmadeonthisyetbutIrecommendthattherepresentaTveassociaTonbeinvitedimmediatelytonegoTatetheconsequenTalincreasesduetothemarisingfromtheincreasestotheotherranks

•  TheserankshavetheirownrepresentaTveassociaTons,theyaresmallinmembershipandIdonotseeanyneedforthemtochangetheirstatustothatoftradeunions.HoweverIdorecommendthattheyincludeintheirrulesandconsTtuTonaprovisionthattheycannotengageinindustrialacTonorstrikes.TheseassociaTonsshouldalsomirrorthedisputeresoluTonmechanismagreementthatwillbeavailabletotheotherranksandofcoursehaveaccesstotheWRCandlabourCourtfortheresoluTonoftheirdisputes.

•  TheirfutureremuneraTonshouldbesubjecttoreviewbythePSPC

PAYANDALLOWANCEDETERMINATIONINTHEFUTURE12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 74

WorkEvaluaTon•  ItshouldbeagreedthatthedeterminaTonofthebasicpayandmaincondiTonsof

employmentwouldbereferredatregularintervalsintoaspecialexpertevaluaTonsystemthatwouldtakeaccountoftheuniqueandspecialnatureofpolicework.Thiswouldsit,sayeverythreeorfiveyears,anddoarootandbranchevaluaToninanopenandtransparentway.

•  IhadhopedthattheframeworkforsuchevaluaTonwouldbeagreedaspartofmyreview,thatis,thecriteriaandfactorsthatshouldbetakenintoaccountwouldbespelledoutasclearlyascanbeagreedinthecurrentreview.Forexample,thedangerthatmembersfacemustbeacknowledgedindeterminingpayandwewouldsetouttheparametersthatshouldbeexplicitlyreferencedinconsideringthisfactori.e.numberandseverityofinjuriessufferedbymembersinthecourseofduty.Wewouldmakesimilarpointersfortheotherfactorsthatwefeeloughttobetakenintoaccount.ThatframeworkwouldthenformthebasisfortheregularanalyTcalreviewofpolicepaytobeundertakenbythepaydeterminingbody.

•  However,ithasnotbeenpossibletoachievethatgoal.

ASugges?onforaWayForward

TheworkofmembersofAnGardaSíochánaisuniqueandthereisnosinglecomparablejob.

ThisReviewhasajemptedtosetoutexplicitlyallthefactorsthatshouldbetakenintoconsideraTonindeterminingGardapayandtoagreeontheweightthatshouldbeajachedtothosefactors.Ithasnotbeenpossibletoachievethisgoal,norintheevolvingcircumstancesisitnecessary.TheGRAhasreferredmetoitsrecentsubmissiontothead-hochearingoftheLabourCourtinwhichitsetoutroleajributesthatareindicaTveofthefactorstheunderlietheuniquenessofGardaduTesandresonsibiliTes.IhaveexaminedthoseindetailandIenTrelyendorsethem.ItisalsomyopinionthatthePSPCshouldhavenodifficultyingivinganundertakingtototheAsssociaTonsthatallthosefactorswillbegivendueweightinmakinganyrecommnedaionontheremuneraTonofAGS.IthereforerecommendthattheAssocia?onsjoinwithallotherpublicsectorrepresenta?vebodiesinreferringtheircasefor‘restora?on’andsubsequentevalua?ontothePSPC.

StructuresandMechanismsforResolvingDisputes

•  ThereisaneedforaninternalmechanismthroughwhichindividualmembersorgroupscanraiseissuesofconcernandhavethemdealtwithexpediTouslyandfairly.Thiswillrequirestructuresandresourcestobeestablished.Forexample,localrepresentaTvesandHR/Localmanagementshouldbeappointeedtodealwiththeissuesraised.

•  Thereshouldbeastagedprocedureforhandlinggrievances.•  ThereshouldbeaninternalsystemforindependentlyadjudicaTngonissuesthat

cannotberesolvedlocally.Thismustbechairedbyanagreedindependentpersonwhowillgivedecisions/recommendaTons/judgmentsinashortspaceofTme,saywithinoneweekofhearingthecase.

•  AtthenextlevelthereshouldbeaccesstotheWorkplaceRelaTonsCommission.ItisenvisagedthatonlyasmallproporTonofcaseswouldreachthisstage.TheoutcomesfromtheWRCwouldgenerallynotbebindingandanyunresolvedissueswouldbereferredtotheLabourCourtforafullhearing.TheparTesattheLabourCourtandWRCwouldbeAnGardaSíochánaandtherelevantAssociaTon(s).12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 77

StructuresandMechanisms(contd.)•  Itisrecognisedthatgiventhenatureofpoliceserviceitisnotappropriatethatthe

AssociaTonsshouldhavethesamefacilitytostrikeasordinaryworkersinnon-essenTalservices.Itissuggestedthatinthelightofthesenewprocedures,theAssociaTonsagreetovoluntarilyundertakethroughacollecTveagreementnottoengageinanyformofindustrialacTonorstrike.ThiswillbegovernedbyanagreementregisteredintheLabourCourt.

•  Thisproposalalsoassumesthattherewillbeanunderstandingthatthe‘statusquopost’willapplytochange.Thismeansthatwherethereisachangeprocesssuchas‘ModernisaTon’thenfollowinganappropriateperiodofconsultaTonthechangeswillbeimplemented,andworkedcooperaTvely,whileanydisputeisprocessedthroughthesystem.ThiswillrequireasignificantchangeinbehavioronbothmanagementandAssociaTonsandofcourseonthepartofmembersofAGS.

•  AsaminimumanyagreementwouldhavetoencompasstheprinciplessetoutintheCodeofPrac?ceonDisputeProcedures(includinginEssen?alServices)S.I.No.1of1992

DisputeResoluTonAgreementInAppendixOneIhavedrahedaDisputeResoluTonAgreementthathasthefollowingfeatures:•  IthasstagesandTmelinesthroughwhichdisputescanbeescalated•  Itprovidesthatmostdisputeswillberesolvedinternally•  ItprovidesforaccesstotheWorkplaceRelaTonsCommissionand

theLabourCourt•  Itprovidesthatalldisputesareresolvedwithoutrecoursetoany

formofindustrialacTonorstrikeinlinewiththe1992CodeofpracTceondisputesinessenTalservices

IamrecommendingthatwiththeassistanceoftheAdvisoryServiceoftheWRCtheparTesshouldfinaliseandsignthisagreementwithanyagreedamendmentsbyendofFebruary2017.

RECOMMENDATIONSONPAYANDALLOWANCES

Allowances•  IunderstandthattheLabourCourthasrecommendedthat

certainoutstandingmajersinrelaTonstoallowancesshouldbereferredbacktoitoverthecomingmonths.

•  TheDepartmentofJusTceandEqualityhadaskedmetorecommendcertainchangesinallowancesaspartofthisreview.IsawmeritintheirsuggesTonsandIwaspreparedtomakesomerecommendaTons.HoweverIthinkitisimportantthatforthesakeofconsistency,thetaskofreformingallowancesshouldnowbelehtotheLabourCourtandIthereforerecommendthattheparTesprocessalloutstandingissuesofallowancesthrougheitherthead-hocprovisionsorthroughthenewDisputeResoluTonAgreementthatIamrecommending.

RemuneraTon•  Mytermsofreferencerequiremetoreview“theremuneraTonand

condiTonsofservice”ofAGS.•  IntheearlymonthsofthisreviewIwasworkingtowardsmaking

somesubstanTverecommendaTons.TheofficialsideinsistedthroughoutthatthetermsofreferenceprecludedmefrommakinganyrecommendaTonoutsidetheresourcescurrentlyavailabletoAGS.Thisambiguityorfudgeinthetermsofreference,asoriginallydrahedaspartofHaddingtonRoadagreementterms,mademytaskunnecessarilydifficult.

•  Intheevent,theNovemberhearingandsubsequentrecommendaTonsfromtheLabourCourthaverenderedthisaspectofmyreportredundant,andIamnotthereforemakinganyfurtherrecommendaTonforimprovementsinremuneraTonorcondiTonsofemploymentinthisreport.

PublicSectorPayCommission•  SubsequenttomyappointmenttheGovernment,on19July2016,

approvedtheestablishmentofaPublicSectorPayCommission.•  ThePublicServicePayCommissionwillbeadvisoryinnatureand

willprovideaniniTalreportinthesecondquarterof2017.TheMinisterstressedthattheGovernmentwillretaintheabilitytonegoTatedirectlywithitsemployeesinrespectofpay.TheCommissionwillnotduplicatetheworkoftheState’sexisTngindustrialrelaTonsbodies:theWorkplaceRelaTonsCommissionandtheLabourCourt.Itsrolewillbetoprovideevidence-basedobjecTveanalysisonpaymajerstoassistDepartmentofPublicExpenditureandReformofficialsindischargingtheirnegoTaTonfuncTononbehalfofGovernment.

•  TheCommissionhasnowbeenestablishedandhasbegunitswork.

TheWorkofthePSPC•  ThePublicServicePayCommissionisexpectedtodeliveritsiniTalreport

inQ22017.ThisreportwillprovideinputsonhowtheunwindingofFEMPIlegislaToncanbebestmanagedinthecontextofthenaTonalfinances.ItwillalsohaveregardtoanyparTcularlabour-marketchallengestheCommissionidenTfiesandtoothercondiTonsofserviceofpublicservantsincludingtenureandpension.ItisimportantthatthefourGardaRepresentaTveAssociaTonsareaccommodatedonanequalbasiswithallotherpublicsectorunionsandassociaTonsandIrecommendthattheyparTcipatefullyinhisprocess.

•  TheMinisterhasstatedthatthatoncethisreportisavailable,theGovernmentintendstoiniTatenegoTaTonsonasuccessorCollecTveAgreementaheadofBudget2018consideraTons.ThesenegoTaTonswilldealwiththefullrangeofissuesincludingproducTvity,reformandtheissueofaffordableincreasesinpay.SimilarlyIrecommendthefourGardaAssociaTonsshouldbeaccommodatedonanequalbasiswithallothertradeunionsandrepresentaTveAssociaTons.

IsthePSPCtherightbodytoadviseonGardaRemuneraTon?

•  IhavediscussedthisquesTonwithalltheparTcipantsatlengthduringthecourseofmyreview.

•  IhavecomparedthetermsofreferenceandmethodologyofthePSPCagainsttheprinciplessetoutearlierinthisreportandinourdiscussions.

•  AnalternaTvewouldbetoestablishaseparateandspecialbodytodeterminepayinAGSashasrecentlybeenestablishedfortheUKPoliceforce.ThiswassoughtbyTheGRAandiniTallyIsawmeritinthisproposal.

•  HoweverasIhaveconcludedthatthePSPCsubstanTallymeetstherequirementsforaproperobjecTveandanalyTcalassessmentoftheremuneraTonofAGS(assetoutearlierinthisreport)Ihavechangedmyviewforthereasonsoutlinedbelow.

TheReasonswhyPSPCistherightbodytoadviseonGardaRemuneraTon

ThePSPCwillprovideanobjecTveanalysisontheappropriatepaylevelsforofficeholders’payandpensions.HavingregardtoitstermsofreferenceIassumethatwhenreachingitsfindingsonremuneraToninAGStheCommissionwillhaveregard,amongstotherfactors,to:(a)TheuniquenatureoftheworkofAGS(b)ThesuperannuaTonandotherbenefitsandsecurityoftenure,whereitappliestoAGS(c)PaycomparisonstakingaccountofallrelevantcharacterisTcsincludingtheuniqueaspectsofpolicework(e)EvidenceonrecruitmentandretenTonwithinAGS(f)AnyotherrelevantmajersincludingimpactonnaTonalcompeTTvenessandsustainablenaTonalfinancesandequityconsideraTonsInprogressingitswork,thePSPCwilluTliseandanalyseexisTngdatasetsandreports,aspreparedandpublishedbyexisTngstateandotheragenciesasappropriate.ThePSPCmayalsoundertakeorcommissionaddiTonalresearchordatagatheringwherefurtherinformaTonisrequiredtocomprehensivelyprogressitstermsofreference.Itmayalsoemploysectoralexperts,includingexpertsonpolicework.ThePSPCwillinviterelevantstakeholderstomakesubmissionstotheCommissiontofurtherassistitsconsideraTonsandthiswillincluderepresentaTvesofGardaí,Sergeants,Inspectors,SuperintendentsandChiefSuperintendents.•  ThePSPCmustpublishitsfindingsandtheevidenceonwhichthesearebased•  ThePSPCwillnottaketheplaceofdirectnegoTaTonsbetweenGovernmentandemployee

representaTves•  InmyviewthishasthepotenTaltoavoidtheshortcomingsofpreviousflawed‘benchmarking’reports

RecommendaTononPSPC•  MyrecommendaTonthereforeisthatthefourAssociaTons

shouldcooperatewiththePSPCinanevaluaTonofremuneraToninAGSassoonasthePSPCcanreasonablyaccommodatesuchaninvesTgaTonandthattheoutcomeofthatreportshouldinformsubsequentnegoTaTonsbetweenthemanagementofAGSandtheAssociaTonsifnecessarythroughthedisputeresoluTonmechanismsthatIamrecommendingelsewhereinthisreport.

•  However,itisonlyfairtosaythatifthePSPCdoesnotcarryoutitsexaminaTonoftheremuneraTonintheopenandtransparentwaythatisenvisagedforitthenthefourAssociaTonsshouldreviewtheircommitmenttoconTnuingtocooperateinitsdeliberaTons.

SUMMARY&CONCLUSIONS

RecommendaTonsnotInterdependent

IammakinganumberofrecommendaTonbasedonmyanalysisandreview.TheyarenotallinterdependentandtheirimplementaTonshouldnotbedelayedsimplybecauseallorsomearenotagreedbyall.ForexampletheGRAandAGSIneedtodecideindependentlyiftheywillbecomeTradeUnions,buttheiraccesstotheWRCandLabourCourtshouldnotbecondiTonalonthatdecision.ThisisimportantasotherwiseIfearthatrefusalordelayinanyonerecommendaTonmaydelaytheimplementaTonofothers.

KeyFindings•  RemuneraTonofAGSiscomposedofthreeelements:

–  BasicPay,whichpost-LRCrecentrecommendaTonwillrangefrom€30k-50katGardarank

–  Allowances&OverTmewhichwilladdafurther30percent–  PensionenTtlement--asubstanTalandsignificantbenefit

•  ThustotalcompensaTonofaverageAGSmemberisineffectinregionof€100k

•  IRsystemiseffecTvelybroken:GRA/AGSInotappropriatelyconsTtutedorgoverned

•  AGSmanagementnotsufficientlyengagedinIR

InSummary...KEYRECOMMENDATIONS

•  IndustrialrelaTonsshouldbe‘normalised’•  GRA&AGSIshouldbecometradeunions•  ManagementofAGSshouldbegivenresponsibilityforIR•  AGSandrepresentaTveassociaTonsshouldconcludedisputeresoluTon

agreement•  AllshouldhaveaccesstoprotecTveemploymentlaw,includingtherightto

availoftheprocessesofWRCandLabourCourt•  AllparTesshouldagree:nostrikesorotherindustrialacTon•  AnymemberofAGSwhoengagesinstrikes/industrialacTonshouldbe

ineligibleforpensionaccrualforfiveyears•  AllparTesshouldengagewithPSPCinallitsrelevantwork,including

‘restoraTon’andotherevaluaTons•  RecentLabourCourtrecommendaTonshavepre-emptedanysubstanTve

findingsonpayorallowances

APPENDIX1:DRAFTDISPUTERESOLUTIONAGREEMENTANDACCESSTOWRC&LABOURCOURT

DranAgreementforDisputeResolu?onandAccesstoWRCandLabourCourt

ThisagreementisbetweenAnGardaSíochána(AGS)ontheonehandandtheGardaRepresentaTveAssociaTonand/orTheAssociaTonofGardaSergeantsandInspectorsand/orTheSuperintendentsAssocaionand/orTheChiefSuperintendentsAssociaTonontheotherhand.ThepurposeofthisagreementistoprovidefortheAssociaTonsandtheirmembertoresolvegrievancesrelatedtotheiremploymentinAGSandtohaveaccesstotheWorkplaceRelaTonsCommissionandtheLabourCourtfortheresoluTonofgrievancesItisagreedthattheallgrievancesrelaTngtoremuneraTonandmaincondiTonsofemploymentmaybeprocessedthroughthisagreementandtotheWRCandLabourCourtGrievanceProcessItisrecognizedthatitisgoodpracTcethatallgrievancesshouldberesolvedattheearliestpossiblestageofthisprocedureandthatonlyunresolvedissuesshouldbeescalatedthroughitsvariousstages.StageOneThemember(s)shouldraisethegrievancewithhis/herimmediatesupervisore.g.SergeantorInspectorandshouldspecificallyreferencethisprocedurewhendoingso.Ifthemajerisnotresolvedwithinsevendays(orlongerbyagreement)thenthemajershouldbeescalatedtoStageTwo.StageTwoThemembershouldcontacttheaccreditedrepresentaTveofhis/herAssociaTonwhoshouldimmediatelyraisethemajerinwriTngwiththeaccreditedlocalHRrepresentaTvedesignatedtodealwithgrievances.AmeeTngshouldbeheldwithsevendaysofreceiptofthewrijennoTficaTonwithaviewtoresolvingthemajer.Ifthemajerremainsunresolved14daysahertheiniTalmeeTngthen(unlessitisspecificallyotherwiseagreedinwriTng)themajershouldbereferredtoStageThree.StageThreeThemajershallbeheardbytheCentralGrievanceCouncilestablishedtohearallcasesunresolvedatStageTwo.TheCouncilshallconsistofasingleChairpersonagreedbytheAGSandtheAssociaTons.TheCouncilwillhearthecasewithintwoweeksofthecasehavingbeenreferredtoitandshallissueanonbindingrecommendaTononthemajerwithinthreeworkingdaysofthehearing.WheretheparTesagreeinadvancetobeboundbythedecisionoftheCouncilthenthedecisionoftheCouncilwillbebindingonthepartyorparTesthathaveagreedtobeboundbythedecision.Inthecaseofanon-bindingdecisionoradecisionthatisnotbindingononeofheparTesthenthemajermaybereferredtotheWorkplaceRelaTonsCommissionunderanyoftheprovisionsoftheWRCasmaybeagreedandappropriate.ThisstageshallbeStageFour

DrahAgreement(ConTnued)StageFourTheprovisionsandtheWRCshallapplytotheprocessingofclaimsattheWRC.ThedocumentaTonandprocessingoftheclaimattheinternalstagesshallbemadeknowntotheWRC,includinganyrecommendaTonoftheCentralGrievanceCouncil.IfthemajerisunresolvedattheWRCinmaybereferredtotheLabourcourtinaccordancewiththenormalprovisionsforreferralofcasestotheCourt.ThisshallbeStageFive.StageFiveAfullhearingoftheLabourCourtwilltakeplaceinaccordancewiththenormalprocedureoftheCourt.AllparTeswillco-operatefullyinensuringthatthecaseisheardattheearliestdateofferedbytheLabourCourt.WherebothparTesagreeinadvancetoaccepttheRecommendaTonoftheLabourCourtthentheCourtwillbeaskedtomakeabindingrecommendaTon.BothparTesrecognizethattheLabourCourtisaCourtof“LastResort”andthereforeathisstageeveryeffortwillbemadebybothparTestoensurethattheissueisresolvedonthetermsrecommendedbytheLabourCourt.WhereoneoftheparTescannotaccepttheRecommendaTonoftheLabourCourtthenthefollowingprovisions(adaptedformtheCodeofPracTceonEssenTalServices)willapply.TheLabourCourtrecommendaTonshallbeimplementedonthebasisthatanindependentreviewwouldtakeplaceatfive-yearlyintervalstoexaminewhetherthememberscoveredbytherecommendaTonhavebeenplacedatanydisadvantageasaresultoftheimplementaTonoftherecommendaTonandifsotoadvise,havingregardtoallaspectsofthesituaTon,includingeconomicandfinancialconsideraTons,onthechangesnecessarytoredresstheposiTon.AppointmentofAssocia?onandHRRepresenta?vesForthepurposeofensuringexpediTousimplementaTonofthisagreementtheAssociaTonsandAGSwillappointasufficientnumber[tobeagreed]ofaccreditedrepresentaTvesatlocallevelsothatgrievancesmayberesolvedattheearliestpossiblestages.TheseposiTonswillnotbefullTmebutmemberswillbereleasedfromotherduTestoprocessallgrievancesintheTmelimitssetoutabove.AllaccreditedrepresentaTvewillbegivenappropriatetraininginthehandlingofgrievances,suchtrainingwillincludesomejointtraining.

APPENDIX2:EMPLOYMENTRIGHTSLEGISLATION

Name of Act Excluded or IncludedMinimum Notice and Terms of Employment Act 1973

Section 3(1)(e) EXCLUDES members of the Garda Síochána

Protection of Employment Act 1977 Section 7(2)(b) EXCLUDES a person employed by or under the State

Unfair Dismissals Act 1977 (as amended) A member of the Garda Síochána is EXCLUDED from the protection of the Act under section 2(1)(e)

Payment of Wages Act 1991 Definition of "employee" INCLUDES a member of the Garda

Síochána or the Defence Forces;

Terms of Employment (Information) Act 1994 Definition of "employee" INCLUDES a member of the Garda

Síochána or the Defence Forces)

Protection of Young Persons (Employment) Act 1996 Definition of “employee” INCLUDES a member of the Garda

Síochána or the Defence Forces

Organisation of Working Time Act 1997 Garda Síochána EXCLUDED under section 3(1) of the Act

CoverageofGardaSíochánainEmploymentRightslegisla?on(1)

Protection of Employees (Part-Time Work) Act 2001 Garda Síochána not specifically referred to in definition of “employee” but definition covers ‘‘…a person holding office under, or in the service of, the State (including a civil servant within the meaning of the Civil Service Regulation Act, 1956) shall be deemed to be an employee employed by the State or Government, as the case may be...”

Protection of Employees (Fixed-Term Work) Act 2003 Garda Síochána not specifically referred to in definition of “employee” but definition covers ‘‘……a person holding office under, or in the service of, the State (including a civil servant within the meaning of the Civil Service Regulation Act, 1956) shall be deemed to be an employee employed by the State or Government, as the case may be….” Section 17 (b) of the Fixed-Term Act specifically excludes trainee members of the Garda Síochána – which would appear to imply that members of the Garda Síochána who have completed their training are INCLUDED. (However, section 17 (a) of the Fixed-Term Act EXCLUDES the Defence Forces).

Protection of Employees (Temporary Agency Work) Act 2012 Garda Síochána not specifically referred to in definition of “employee” but definition covers “ a person holding office under, or in the service of, the State (including a civil servant within the meaning of the Civil Service Regulation Act 1956) shall be deemed to be an employee employed under a contract of employment by the State or Government, as the case may be, and….”

APPENDIX3SELECTEDREFERENCES

SelectedReferences

SeamusBreathnach TheIrishPoliceFromEarliestTimestothePresentDayAnvilBooks1974LiamMcNiffeAHistoryoftheGardaSíochánaWol�oundPress1997ConorBrady GuardiansofthePeaceGillandMacmillan1974CaptainDenisJ.O’KellyM.A.,P.C.SalutetotheGardai1922-1958TheParksidePress1958?GeraldW.Reynolds&AnthonyJudgeTheNightthePoliceWentonStrikeWeidenfeldandNicolson1968VickyConway,PolicingTwenGethCenturyIreland:AHistoryofAnGardaSíochána.RoutledgeW.J.L.Ryanetal.ReportofGardaSíochánaCommiOeeofInquiryStaToneryOfficeDublinPrl8016April1979JudgeJohnC.Conroyetal.CommissionontheGardaSíochánaReportonRemuneraGonandCondiGonsofServiceTheStaToneryofficeDublinPrl.No.933January1970WalshGardaTrainingCommiOeeReportonProbaGonerTraining.TheStaToneryOfficeDublinPl.4740December1985GardaSMIImplementaTonSteeringGroupFinalReportTheStaToneryOfficeDublinPrn.3883February,2004RobertK.OlsonGardaInspectorateReportChangingPolicinginIrelandNovember2015SirPatrickSheehyReportofInquiryintoPoliceResponsibiliGes&RewardsHMSOLondonJune1993HousesoftheOireachtasCommijeeofPublicAccountsinitsReportonPublicSectorAllowancesdatedNovember2012Reference31/CPAS/005

Haddington Road Agreement Review of An Garda Síochána …justice.ie/en/JELR/Horgan Review (Dec...

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