Report of the Garda
Síochána Inspectorate
Review of Entry Routes
to the Garda Síochána
Advice by the Garda Síochána Inspectorate
May 2018
1
The objective of the Garda Síochána Inspectorate is:
‘To ensure that the resources available to the Garda
Síochána are used so as to achieve and maintain the
highest levels of eciency and eectiveness in its
operation and administration, as measured by reference
to the best standards of comparable police services.’
(s. 117 of the Garda Síochána Act 2005)
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Table of contents
Glossary 2
1. Introduction 3
2. Diversity 9
3. Entry at Garda Rank 17
4. Entry at Sergeant and Inspector Rank (Mid-Level Leaders) 33
5. Entry at the Senior Leadership Level 47
6. Entry at Assistant Commissioner (Executive Leaders) 57
7. Summary of Proposals 61
Appendices 66
References 73
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Glossary
AGSI Association of Garda Sergeants and Inspectors
BA Bachelor of Arts
BAME Black, Asian and Minority Ethnic
DPER Department of Public Expenditure and Reform
ECTS European Credit Transfer System
EEA European Economic Area
EU European Union
GRA Garda Representative Association
HMICFRS Her Majesty’s Inspectorate of Constabulary and Fire and Rescue Services
HR Human Resources
IPLDP Initial Police Learning and Development Programme
LGBT Lesbian, Gay, Bisexual, Transgender
NCA National Crime Agency
NPPF National Police Promotion Framework
OSPRE Objective Structured Performance Related Examination
PAS Public Appointments Service
POST Peace Ocer Standards and Training
PRSA Personal Retirement Savings Accounts
PRSB Police Registration and Services Board
PSEU Public Service Executive Union
PSNI Police Service of Northern Ireland
RCMP Royal Canadian Mounted Police
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1
Chapter 1
Introduction
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1.1 The Remit
In October 2016, the Minister for Justice
and Equality requested the Garda Síochána
Inspectorate under section 117(2) of the Garda
Síochána Act 2005 ‘to examine entry routes to An
Garda Síochána for police ocers from other police
services and the opening up of promotion opportunities
for Garda members to persons outside An Garda
Síochána’.
At present, entry to the sworn ranks of the Garda
Síochána is almost exclusively at the garda
rank as a trainee garda. The exceptions are the
arrangements whereby members of certain ranks
of the Police Service of Northern Ireland (PSNI)
can compete for posts at superintendent, chief
superintendent and assistant commissioner levels
and the open public competitions for appointment
to deputy commissioner and commissioner.
Part 1 of the terms of reference requests the
Inspectorate to examine entry routes into the
Garda Síochána for police officers from other
police services at the garda rank.
The Inspectorate was asked to examine:
Options for a fast track entry process (having
regard to the practice/experience of other
police services) including modied eligibility
requirements and a modied training
programme;
How the recruitment process might operate;
The potential benets (including
consideration of likely take-up rate) to be
gained from creating a more attractive entry
route for serving/former police ocers
from other police services versus the cost of
recruitment/training etc.; and
Any other relevant issues.
Part 2 of the terms of reference is about the
opening up of appointment opportunities at the
mid to higher ranks for persons outside the Garda
Síochána. At present, promotion opportunities to
the ranks of sergeant and inspector are closed
to persons outside the Garda Síochána. On
the other hand, the appointment competitions
to superintendent, chief superintendent and
assistant commissioner are open to equivalent
members of the PSNI.
The Inspectorate was asked to:
Assess international best practice in relation
to recruitment to the mid to higher ranks in
comparable police services;
Assess the arrangements that allow PSNI
members to participate in Garda Síochána
promotion competitions and identify factors
inuencing their limited impact to date;
Identify appropriate options for opening up
opportunities for entry to some or all of these
ranks to experienced police professionals or
other persons with the required skill set;
Consider how the recruitment processes
might operate;
Consider induction/training requirements;
and
Consider any other relevant issues.
The Inspectorate was also asked to take account
of the Garda Síochána’s dual remit as a policing
and security service and the importance of
maintaining its operational capacity.
1.2 Background to the Remit
– Changing Policing in
Ireland (2015) Report
The Minister indicated to the Inspectorate that the
background to the request was recommendation
4.8 of the Inspectorate’s report Changing Policing in
Ireland (2015) which recommended that ‘the Garda
Síochána considers establishing an entry and training
scheme for ocers from other police services, garda sta
and reserves as full-time garda members’.
To achieve this recommendation, the report said
that it would be necessary to assess the benets
of appointing Irish nationals and other European
Union (EU) Member State nationals serving in
other police services that have standards similar
to those of the Garda Síochána and to develop
a suitable, abridged training course to take into
account the skills of successful candidates.
The report also discussed the need for the Garda
Síochána to implement recruitment policies and
strategies to attract a more diverse applicant pool
in terms of ethnicity, experience, thought and
skills and to target highly skilled individuals to
work in the organisation.
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It pointed to opportunities to provide transfer
opportunities at the highest ranks of the Garda
Síochána. In most of the police services that the
Inspectorate had engaged with, it was found that
there was a much greater diversity, mix of skills
and experience in senior management teams.
This had advantages in terms of experience and
learning compared with the situation in the Garda
Síochána where all sworn members in the senior
management team had joined as trainee gardaí.
The Minister said that ‘there would be value in a
broader examination of the possibilities for opening
up entry routes to the Garda Síochána at all levels
including fast track entry for policing professionals
from other jurisdictions at the lower ranks and the
targeted intake of experienced and skilled police ocers
at the senior ranks.’
The Inspectorate has consulted with the Garda
associations and understands that the topic of
new entry routes is a sensitive one for serving
Garda Síochána members of all ranks who will be
concerned about any eect on career progression
opportunities. Engagement with the associations
will be essential in order to help create an
environment that is conducive to supporting
any new entry routes that are created following
consideration of this report. The proposals
that are outlined seek to provide the basis for a
balanced approach and, if accepted, would form
part of a holistic strategy relating to recruitment,
talent management and appointments in the
organisation. These are issues also referred to in
Changing Policing in Ireland.
1.3 Creating New Entry Routes
There are a number of arguments supporting
the creation of new entry routes into the Garda
Síochána.
Expansion of the Garda Síochána
In the summer of 2016, the Government approved
a Five Year Reform and High Level Workforce Plan
for the Garda Síochána to support implementation
of the recommendations for reform made in
Changing Policing in Ireland (2015). This plan is
based on increasing the strength of the service
from a total of 16,000 to 21,000 by 2021. This will
comprise 15,000 sworn members, 4,000 civilian
sta and 2,000 Reserve members. It is planned
that 800 gardaí will be recruited annually from
2017. The permitted number of sergeants and
inspectors will increase on a pro-rata basis over
the same period.
This expansion of the Garda Síochána will create
an opportunity to develop new approaches to
recruitment and will happen at the same time as
considerable numbers of members across all ranks
will retire. Figure 1 shows details of compulsory
retirements from the Garda Síochána in the period
up to the end of 2021.
Figure 1 - Compulsory retirements from the Garda Síochána in the period up to the end of 2021
Rank 31/12/2017 31/12/2018 31/12/2019 31/12/2020 31/12/2021
Assistant Commissioner 2 0 1 1 1
Chief Superintendent 3 4 5 4 4
Superintendent 6 14 9 16 14
Inspector 6 11 5 13 9
Sergeant 18 27 37 51 59
Garda 26 47 60 90 80
Total 61 103 117 175 167
Source: Garda Síochána, 30 April 2017
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The resulting loss of policing experience at the
various levels will pose a challenge. Workforce
planning, succession planning and talent
management will be essential to address it, as
previously recommended in Changing Policing in
Ireland (2015).
1
In this context, the Inspectorate considers that
having the capacity to recruit already trained and
experienced police ocers from other jurisdictions
at various levels could be an important contributor
to the maintenance of operational capacity and
capability. It would help to diversify and open
up the organisation and expedite cultural change
by introducing new inuences and experiences.
Shorter induction training and the resulting
ability to ll operational roles more quickly could
be a significant benefit to meeting expansion
targets. The Inspectorate includes re-entry of
suitable former gardaí in this category, enabling
the organisation to benet from additional skills
and experience which they may have acquired.
Civilianisation in the Garda Síochána
In approving the expansion of the organisation,
the Government decided on the principle of
“civilian by default”, according to which Garda
sta are to be employed in all roles that do not
expressly need sworn garda powers. Accelerating
the pace of civilianisation towards a goal of 20%
of the total strength is a key reform objective and
contributor to operational capability.
In previous reports, the Inspectorate has
emphasised the need to maximise the utilisation
of appropriately qualied Garda sta in specialist
roles that do not need sworn garda powers.
Such roles need to be properly designed. While
this review is concerned with entry routes to
sworn roles, the Inspectorate emphasises that
cultural acceptance by the Garda Síochána of the
multitude of specialist skills that civilians can
bring to modern policing and the range of tasks
that they can perform needs to be advanced as
part of the organisation’s HR strategy.
1 Recommendations 3.11 and 4.3
2 NowcalledHerMajesty’sInspectorateofConstabularyandFireandRescueServices(HMICFRS).
3 DeloitteUniversityPress(2017)DeloitteGlobalHumanCapitalTrends.Thelengthoftheaveragecareerisincreasingbuttheaverage
tenureatajobis4-5years.Creatinganenvironmentthatallowsforlearning,developmentandrotationalassignmentsand“multi-
trackedcareerpathing”willbeimportantinthefuture.
The Inspectorate believes that all posts that do not
require the use of sworn powers should be lled
by Garda sta.
Governance, Performance and Culture
Previous reports by the Inspectorate, public
scrutiny of the Garda Síochána and the associated
media reporting have highlighted significant
concerns about governance, performance and
culture in the Garda Síochána and point to an
organisation in urgent need of transformational
change. The independent Culture Audit of the
Garda Síochána, published in May 2018, is an
important step towards understanding and
changing the culture of the organisation (Garda
Síochána, 2018).
The modernisation agenda and organisational
growth provide opportunities to expand the
skills base and reshape the leadership prole of
the Garda Síochána. The creation of new entry
routes, including for police ocers from other
jurisdictions could enhance and diversify the
skills and experience prole within the Garda
Síochána in a constructive way.
The Policing Authority in its submission noted
that recruitment, along with training, external
challenge, exposure to other ideas, diversity of a
workforce and transparency are among the tools
which may be used to change and renew cultures.
In its 2016 report, Her Majesty’s Inspector of
Constabulary pointed to the correlation between
the best performing police services in England and
Wales and openness of recruitment processes.
2
Changing Employment Trends
The Inspectorate is mindful of changes in
employment trends generally in wider society.
International research suggests that nowadays
people may no longer necessarily aspire to staying
with one employer throughout their careers.
3
This
trend may present opportunities for the Garda
Síochána to attract officers from other police
services at various levels.
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1.4 Methodology
After reviewing the Minister’s request, the
Inspectorate agreed with the Department of
Justice and Equality (hereafter referred to as the
Department) that the best way forward was to
provide advice to the Minister under section 117(2)
(c) of the Garda Síochána Act 2005. This view was
taken as the request made to the Inspectorate did
not involve carrying out an inspection or review
of an existing Garda Síochána practice.
Having examined the terms of reference, the
Inspectorate informed the Department that
the consideration of entry routes to the Garda
Síochána provided an opportunity to address
the implications for policing arising from the
changing composition of society. It was agreed,
therefore, that the question of enhancing diversity
in the Garda workforce would be examined by the
Inspectorate even though this is not specically
included in the terms of reference. This topic is
examined in Chapter 2 while the need to increase
the diversity of experience at all levels of the
organisation is a theme running throughout the
report.
In undertaking its work, the Inspectorate
consulted with the Department, as well as
the Department of Public Expenditure and
Reform, the Public Appointments Service, the
Garda Síochána, the Policing Authority, staff
associations and unions. Some of those made
written submissions. The views they presented
have been taken into account and are summarised
where appropriate in the report. The Inspectorate
considers the views of stakeholders on the terms
of reference as important to the development of
options for new entry routes.
Desktop research was undertaken in regard
to police recruitment and transfer practices at
all levels internationally. This included police
services in Europe, the UK and other common
law jurisdictions, such as Canada, Australia, New
Zealand and the USA. The Inspectorate met with
the UK College of Policing and Her Majesty’s
Inspectorate of Constabulary and Fire and Rescue
Services (HMICFRS). Teleconferences were held
with Police Scotland, the PSNI and Victoria Police
(Australia). The Netherlands Police was consulted
by email. The Inspectorate is grateful to all those
who provided assistance.
1.5 Structure of the Report
Chapters 3, 4, 5 and 6 review the issues raised by
the terms of reference at the various Garda levels
– each chapter considers bands of ranks that have
largely similar functions. These are:
Garda;
Sergeant and inspector (mid-level leaders);
Superintendent and chief superintendent
(senior-level leaders); and
Assistant commissioner (executive-level
leaders).
The rationale for this breakdown is that at
each of these levels, there are different risks,
opportunities and inhibitors to opening up
appointments beyond currently serving Garda
Síochána members. In each chapter we look at
existing policy for appointment within the Garda
Síochána, compare that against international
practice, consider the views of stakeholders,
analyse the identified options and outline
proposals for further consideration.
Supplementary information regarding recruitment
and appointment practices internationally is set
out in Appendices 1, 2 and 3 and relevant pensions
information is outlined in Appendix 4.
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2
Chapter 2
Diversity
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2.1 What Does Diversity
Mean?
The concept of diversity embraces and values all
aspects of dierence. The word is often used in
the context of dierence, for example, in gender,
ethnicity and social background. This has been
the case in policing, with many international
police services being challenged to increase the
representativeness of women and members
of black, Asian and minority ethnic (BAME)
communities at all ranks.
2.2 Why is it Important?
Representativeness in police services goes to
the heart of the historic principle of policing
by consent. The public must have confidence
in the police service if their consent is to be
sustained. Creating a police service that reects
the composition of the communities it serves
and that displays cultural competence in terms
of awareness of diverse cultures is important to
maintain and enhance its legitimacy. The fostering
of a more inclusive and diverse service will bring
benets for the organisation in terms of cultural
diversity and language skills, which in turn
would yield benets for service users and victims
of crime.
The Irish Human Rights and Equality Commission
Act 2014 now sets out a positive duty on public
bodies, including the Garda Síochána, to have
regard, in the performance of their functions, to
the need to eliminate discrimination, promote
equality and protect the human rights of sta and
the persons to whom services are provided.
The Policing Authority’s submission said
that it is important that the Garda Síochána is
representative of the communities it serves, noting
that the existing “single front door” recruitment
is unlikely to provide a diverse mix of recruits
for a very long time. The Policing Authority
recommends the development of a programme
of positive action to actively encourage a more
diverse applicant pool including, for example,
more candidates from ethnic minorities, under-
represented socio-economic groups and women.
Such a programme would include targeted
marketing, visiting schools and communities and
auditing existing recruitment tools to ensure that
there are no unintended or inappropriate barriers
to entry. It could also include targeted “pre-
joining” training or education opportunities for
under-represented communities.
The Garda Representative Association (GRA) in
its submission recognised the policing and societal
benets associated with improving diversity in the
service and envisaged greater recruitment from
non-Irish nationals who have made Ireland their
home and from members of the LGBT (lesbian,
gay, bisexual and transgender) community
and traveller groups. The Association of Garda
Sergeants and Inspectors (AGSI) suggested greater
proactivity and outreach to diverse communities
to raise awareness about recruitment.
2.3 Policing and Diversity
Ireland is becoming increasingly diverse, yet its
police service does not reect this diversity. In
recent years, the percentage of female members
has grown and currently stands at 26.5% of the
total sworn strength. As part of this review, the
Garda Síochána was asked to provide information
on the level of ethnic diversity currently in the
organisation, but was unable to do so. The
Inspectorate was informed that the organisation
does not record this information, as asking such
questions may be viewed as discriminatory.
The 2016 census shows that the largest ethnic
grouping in the population was ‘White Irish’
with 3,854,226 (82.2% of usual residents) and that
835,695 persons (17.8%) indicated that they had
an ethnicity other than ‘White Irish background’.
Figure 2 provides a visual representation of
different ethnicities in the ‘usually resident’
population category on Census Night.
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Figure 2 - Ethnicity of Usually Resident
Population -Census 2016
82%
10%
3%
1%
1%
White Irish
White Irish Traveller
2%
1%
Any other white background
Black or black Irish
Asian or Asian Irish
Other - including mixed
Not Stated
Source: Census data 2016
Figure 3 illustrates that there is greater ethnic
diversity in the age ranges from which members
of the Garda Síochána are recruited. In Census
2016, there were 909,980 persons in the 20 to 34
age category. Of this gure, 666,935 (73%) dened
themselves as ‘White Irish’, while 209,927 (23%)
were of other ethnic backgrounds and 33,118 (4%)
did not state their ethnicity.
Figure 3 - Ethnicity amongst 20-34 year olds in
Census 2016
73%
16%
3%
4%
1%
White Irish
White Irish Traveller
2%
1%
Any other white background
Black or black Irish
Asian or Asian Irish
Other - including mixed
Not Stated
Source: Census data 2016
The eligibility requirements to join the Garda
Síochána are outlined in Chapter 3, with one
of the main criteria being EU or European
Economic Area (EEA) nationality. It is not possible
to determine from census data exactly what
proportion of the ethnic minority population
would be eligible to apply to join the Garda
Síochána. However, sizeable proportions of all
ethnic groups are either Irish or EU citizens,
indicating that there is potential to proactively
seek to increase recruitment from these groups.
Policing such a diverse population requires an
equally diverse police service and therefore
attention needs to be focused on increasing gender
and BAME diversity in all ranks and grades. In the
Modernisation and Renewal Programme 2016–
2021, the Garda Síochána recognised that ‘a diverse
and inclusive workforce provides the potential to better
understand and serve our community’. It noted the
importance of creating a working environment
that is open, inclusive and non-discriminatory.
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It referred to the development that was underway
of:
A Diversity and Inclusion Strategy;
Diversity networks in areas such as LGBT,
gender and ethnicity to allow members
and sta with common experiences and
perspectives to share them and to provide
feedback; and
A Workplace Equality, Diversity and
Inclusion proong tool to ensure policies and
practices comply with legislation.
The commitment by the Garda Síochána in its 2018
Policing Plan to develop a positive action plan to
attract and recruit applicants from minority and
diverse groups, including reviewing barriers or
disincentives to entry, is welcome. So too is the
commitment to further develop partnerships
with minority and diverse groups to promote
engagement.
In order to facilitate analysis of trends in the levels
of diversity, the Inspectorate proposes that Garda
members and sta should be asked to provide self-
identied data on ethnic origin, having regard to
data protection requirements. This would be done
with a view to measuring trends in recruitment,
appointment and retention of members and sta
from under-represented groups. This is common
practice in other police services.
2.4 Migrant Integration
Strategy
In response to the challenge of promoting
integration, especially in the context of a rapid
change in the composition of the population, the
Government published the Migrant Integration
Strategy (Department of Justice and Equality,
2017). The strategy’s vision is that ‘migrants are
facilitated to play a full role in Irish society, that
integration is a core feature of Irish life and that Irish
society and Irish institutions work together to promote
integration’. The strategy is based on the principle
that successful integration is the responsibility of
society as a whole. It seeks to encourage action
by government, public bodies, service providers,
business, non-governmental organisations and
local communities.
The Public Service Reform Plan – Our Public
Service 2020 (Department of Public Expenditure
and Reform, 2017) – indicates that consideration
will be given as to how the public service can
support this strategy.
Action 44 of the Migrant Integration Strategy
states that ‘proactive outreach and support measures
[should] be undertaken by all public sector employers
to increase the number of persons from an immigrant
background working at all levels in the civil service
and the wider public service. There will be a
particular focus on increasing the numbers of people
from immigrant backgrounds working in front-line
services. This work will have regard to public service
employment principles of merit and transparency, and
to restrictions regarding non-EEA nationals working
in the Irish Public Service’.
The Inspectorate notes that Action 45 of the
strategy commits the Civil Service to putting
in place ‘arrangements to identify the number of
civil servants from ethnic minorities with the aim of
having 1% of the workforce from ethnic minorities’.
It commits to ‘broaden outreach in schools and ethnic
communities to raise awareness of career opportunities’
and there is an undertaking ‘to review the composition
of the applicant pool to understand where applicants
to the civil service come from and develop targeted
measures to encourage those areas of society that are
not applying’.
2.5 Promoting Diversity
In order to tackle the challenge of establishing a
more representative workforce, the Inspectorate
believes that current efforts to improve
diversity, as reected in the 2018 Policing Plan,
need to continue and increase to show that the
organisation values diversity and inclusion and
that recruits from traditionally under-represented
groups will be welcome. Eorts to engage with
ethnic minority communities to build trust and
relationships with them also need to continue,
including the promotion of the Garda Síochána
as a potential career.
Research by the College of Policing in England
indicates that the success of targeted recruitment
appears to depend on an organisation conveying
to prospective applicants from under-represented
groups that it values diversity.
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The College identified a number of activities
that may convey that diversity is valued. These
include employing a female minority recruiter,
publicising sponsorship of minority and women’s
causes, presenting inclusiveness policy statements
and creating highly diverse advertisements.
In addition to using the usual channels for
advertising positions in the Garda Síochána,
consideration should be given to utilising
a wider array of mechanisms and places,
including community centres, ethnic and
community newsletters and social media sites,
as well as through contact with associations and
organisations that serve ethnic communities.
The Garda website could publish promotional
information illustrating diversity in the
organisation. For example, the Inspectorate has
seen innovative recruitment videos developed
by other police services which seek to present
policing as a career that is attractive to people
from all communities and genders.
The Inspectorate notes the work being done by the
Garda National Diversity Bureau (formerly the
Garda Racial Intercultural and Diversity Oce),
along with outreach work being conducted in
divisions throughout the country to establish
links with new and diverse communities.
Structured community engagement by Garda
members who understand the demographics of
their areas and engage regularly with community
groups, community representatives, faith
leaders, schools and colleges, forms the basis
upon which to promote the Garda Síochána as a
viable place to work and an employer of choice.
This is particularly important as some potential
applicants may have come from countries where
there is a level of mistrust or fear of police services.
Running or attending recruitment fairs would
also create opportunities to showcase the career
opportunities available in the Garda Síochána,
with invitations being actively extended to
under-represented groups. The Inspectorate is
aware that Community Policing Units in some
divisions already do this. Taster sessions which
create opportunities to expose potential applicants
to the breadth and the realities of policing are run
by some police services.
Police Scotland informed the Inspectorate that
it has a Positive Action Recruitment Team,
which aims to increase the number of BAME
officers employed in the organisation. Using
their existing connections in the community,
they encourage members of under-represented
communities to attend a four-day Introduction
to Policing programme. The programme includes
information on tness, vetting, the application
process and a visit to the Scottish Police College.
A recent programme resulted in 45 applications to
join Police Scotland, of which 18 were successful.
They provide workshops in places of worship and
other venues in diverse communities and also
provide brieng campaigns across the country
with information about applying to join Police
Scotland.
2.6 Structured Recruitment
Strategies to Improve
Representativeness
Targeted Recruitment
In England and Wales, a national programme –
Police Now – has been established as a graduate
leadership programme with the aim of bringing
talented graduates into policing directly from
university. It is not a fast track promotion
programme. Once participants are confirmed
in rank at the two-year point, they may choose
to apply for promotion in the normal way. The
programme is more fully described in Appendix 1.
The Police Now programme has a particular focus
on developing the constable’s leadership role in
disadvantaged communities to tackle local crime
problems in partnership with communities and
other agencies. It has become a national brand
and uses proactive and targeted approaches in
universities and through social media to attract
applicants.
As a result of proactive targeting, Police Now
attracts a more diverse and representative pool
of applicants than police recruitment generally
and uses a rigorous selection process. In the 2015
pilot in the London Metropolitan Police Service,
67 recruits were successful from 1,248 applicants.
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The scheme was expanded to six other services in
2016, when there was an intake of 112 graduates
from 2,423 applicants. In 2017, the scheme was
extended to 19 participating police services with
a recruitment target of 250. Of the 2016 cohort,
54% are female and 20% are from black and ethnic
minority backgrounds. The percentage of BAME
applications increased by 34% over the rst year.
A scheme such as Police Now, using targeted
recruitment methods, has the potential to attract
high calibre and diverse candidates who might
not otherwise consider a career in policing.
The methods used are innovative and the
Inspectorate suggests that consideration be given
to incorporating the targeted advertising and
branding aspects of the Police Now programme
into the Garda Síochána recruitment model with
the aim of seeking to attract a broader and more
diverse cohort of applicants to the organisation.
Targeted recruitment and other strategies to
improve representativeness will need to be
accompanied by appropriate human resources
and retention and progression policies, diversity
awareness and management training. Ongoing
evaluation of progress will be necessary.
Volunteer Scheme and Cadets Schemes for
Young People
Many police services in the UK offer young
volunteer schemes or work experience for senior
students to provide an insight into careers
in policing, including front-line and support
roles. These typically provide opportunities
for young people to join the policing family
and gain an insight into community policing.
Programmes are designed to develop key life
skills and help to prepare young people for
their future careers, whether this is within
the police service or another profession. At
the end of the programme, participants may
continue volunteering within the policing
family. Although the schemes are not a recruitment
tool, they do oer insights into policing that may
spark interest in policing as a career.
The development of volunteer initiatives such
as a cadet scheme in the Garda Síochána was
recommended in the Changing Policing in Ireland
(2015) report. Another possible approach would
be an apprenticeship which could be linked
with existing unemployment and back-to-work
schemes.
The Garda Reserve
Information provided by the Garda Síochána
shows that there is a range of dierent nationalities
represented within the Garda Reserve. In the
Inspectorate’s view, the Reserve provides
signicant opportunities for increasing diversity
in the organisation.
Firstly, the Garda Reserve provides an opportunity
for people from all backgrounds, including
minority or under-represented communities, to
become involved in policing their community
on a part-time voluntary basis. This exposure
to policing, without sacrificing employment
or education activities, enables people to
gain experience of policing and contribute to
society. Both the Garda Síochána and the wider
community benet from the skills, experiences
and cultural awareness of these members.
The Inspectorate, therefore, proposes that the
recruitment campaigns for reserves include
proactive marketing to under-represented groups.
Consideration could also be given to developing
roles for people with specialist skills to provide
niche support in areas such as cyber security. This
is an approach recently taken by the UK’s National
Crime Agency (NCA), which has created NCA
Specials who are industry professionals that assist
with serious and organised crime. Recently, a City
of London Police investigation into a £1.5Bn. fraud
was assisted by the work of a special constable
who was employed in the banking sector and who
became one of the people leading the prosecution.
The service is now actively seeking to enhance the
recruitment of specials with skills that can assist
policing.
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14 15
Secondly, there is an opportunity to develop the
Garda Reserve as a route into the regular service.
Garda data shows that 6%
4
of the Reserve are from
31 other countries. Developing this route could
contribute to increasing representativeness.
Currently Reserve members qualifying as trainee
gardaí are required to complete the full 32-week
foundation training even though they are already
trained in many areas.
The Garda College told the Inspectorate that
it would not be possible to grant a recruit from
the Reserve pathway any exemption to regular
training as reserves do a very short training
programme and perform a limited range of duties.
It is anticipated that the range of Reserve duties
will be addressed in the strategic review of the
Reserve currently underway. This could result
in reserves performing a greater range of duties.
Consideration could be given to taking their
training and experience into account in abridged
training if they are appointed to the regular
service. As part of the review, consideration could
also be given to marketing the Garda Reserve
to under-represented groups to develop it as a
pathway to policing.
2.7 Conclusion
The Inspectorate has outlined a number of
approaches that the Garda Síochána could
develop to increase diversity and to further
enhance work already underway in this regard.
Diversity brings benets for police organisations
as well as for communities and service users. It
gives access to a wider talent pool and is likely
to lead to greater cultural awareness and assist
with community engagement and community
cohesion. More generally, diverse teams are
stronger and more successful when they accept
and encourage diering perspectives.
In developing actions and processes to attract
and retain people from diverse backgrounds with
diverse skills and experiences, the Garda Síochána
needs to ask for and listen to the views of the
communities it wishes to attract into policing.
4 38outoftotalReservestrengthof603asat31October2017
The experiences of serving members, reserves and
sta from minority groups will be invaluable in
designing recruitment tactics that are successful
in attracting high quality applicants from under-
represented groups.
Recruiting a more diverse workforce is only the
rst step; having an inclusive mindset, where
dierence is valued and people feel able to express
their views and opinions, will help to ensure the
Garda Síochána not only attracts and appoints,
but also retains, a more representative workforce.
Proposal 1
That the Garda Síochána continue to
advance its development of a comprehensive
Diversity and Inclusion Strategy.
To achieve this, the Garda Síochána should
consider:
Collecting self-identied data on
the ethnic origin of its members and
sta, having regard to data protection
requirements, with a view to measuring
trends in recruitment, appointment and
retention of members and sta from
under-represented groups;
Assessing the impact of HR and related
actions already underway to develop
cultural competency in the organisation
and promote the values of diversity and
inclusion; and
Continuing to develop a working
environment that is open, inclusive and
non-discriminatory.
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16 17
Proposal 2
That recruitment approaches are developed
that will encourage applications from
minority and diverse groups.
To achieve this, the Garda Síochána should
consider:
Utilising targeted approaches to market
the Garda Síochána as a career, such
as those used in the advertising and
branding of Police Now;
Using recruitment fairs, taster sessions
and volunteer schemes to attract
applications from under-represented
groups; and
Proactively marketing the Garda Reserve
to under-represented groups to develop it
as a pathway to policing.
Proposal 3
That the Garda Síochána, as part of the review
of the Reserve, consider the development of
a strategy that would enable people with
high level skills to contribute to policing in
specialist areas such as cyber security and
the development of targeted approaches to
attract them into the Reserve.
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16 17
3
Chapter 3
Entry at
Garda Rank
REVIEW OF ENTRY ROUTES TO THE GARDA SÍOCHÁNA
18 19
3.1 Introduction
The Inspectorate has been asked to examine
options for a fast track entry process at the garda
rank for police ocers from other police services
including modied eligibility requirements and a
modied training programme.
In approaching this, the Inspectorate understands
the term “fast track entry process” to entail:
A recruitment process that is as ecient as
possible, and
A training process that has regard to previous
policing experience and is geared towards
imparting the skills and knowledge needed
so that an experienced police ocer from
another jurisdiction can operate competently
in the Garda Síochána.
Recruitment of experienced ocers from other
police services is often referred to as “lateral
entry”. In the Report of the Independent
Commission on Policing for Northern Ireland (the
Patten Commission), it was recommended that
‘lateral entry of experienced police ocers from other
police services…should be actively encouraged’. In the
USA, lateral entry generally has a specic meaning
and refers to the recruitment of police ocers (but
not ranking ocers) who are currently employed
as a police ocer in another US police service. For
the purposes of clarity and to avoid confusion,
this report uses the term “experienced police
ocer entry” instead of “lateral entry”.
3.2 Current Entry Process
– New Members
The eligibility criteria for admission as a
trainee garda are set out in the Garda Síochána
(Admissions and Appointments) Regulations
2013. In summary, these specify that an applicant:
Be aged between 18 and 35 years;
Be of good character;
Pass a physical competency test;
5 Recommendation4.7
Be a national of an EU Member State, of an
EEA State or the Swiss Confederation, or be a
refugee under the Refugee Act, 1996;
Has had a period of one year’s continuous
residence in the State at application and
during the eight years immediately preceding
that period has had a total residence in the
State amounting to four years; and
Has passed the Leaving Certicate or
equivalent and is procient in two languages,
one of which must be Irish or English.
The recruitment process is managed by the Public
Appointments Service (PAS). It consists of a series
of assessments, competitive interview, physical
and medical tests and security checks. The initial
stages of the selection process are conducted by
PAS. Candidates who qualify through this process
are sent forward to the Garda Commissioner
for consideration in regard to medical, physical
competency and security aspects. In Changing
Policing in Ireland (2015), the Inspectorate
identied a number of issues around recruitment
practices and the promotion of policing as a
career. It included a recommendation to develop
a strategic plan to ensure eective and ecient
recruitment practices to attract a diverse range of
high quality candidates.
5
Successful candidates are oered a non-salaried
training contract of 32 weeks with a training
allowance (€184 per week). This covers the rst
phase of the trainee garda/probationer training
programme (introduced in September 2014).
The Bachelor of Arts (BA) degree in Applied
Policing is the foundation programme for garda
trainees. It has three phases. The programme runs
over 104 weeks and consists of:
Phase I – a 32-week residential training
course at the Garda College, followed by two
weeks’ leave;
Phase II – a 34-week programme in an
operational unit working alongside a tutor
garda; and
REVIEW OF ENTRY ROUTES TO THE GARDA SÍOCHÁNA
18 19
Phase III – a 36-week programme in which
the trainee garda is on independent patrol,
essentially performing regular unit duties in a
division.
Trainee gardaí are attested at the end of Phase I
training. The attested garda is placed on the Garda
pay scale and the two-year probation period starts
at that time. Any who do not reach the standard
required for progression into the next phase must
repeat all or part of the training. Trainees who
fail to meet the standard for progression, having
been afforded the opportunity to repeat once
during any of the modules/phases, are deemed
unsuitable for a career in the Garda Síochána.
Successful completion of the programme results
in the award of a BA (Level 7) in Applied
Policing, which is accredited by the University
of Limerick. In Changing Policing in Ireland
(2015), the Inspectorate recommended that the
Garda Síochána conducts a review of Phase I
training with a view to reducing the duration of
the foundation programme.
6
This would reduce
the residential portion of the training, allowing
trainees to get out on patrol sooner.
Under these arrangements, a qualified and
experienced police officer from another
jurisdiction applying to become a garda member
must apply like every other candidate and satisfy
all requirements. This includes completing the
initial 32-week residential course before being
placed on the minimum of the pay scale and then
completing the two-year probation period.
3.3 International Practice
Relating to Recruitment
The Inspectorate has examined international
practices regarding recruitment, in particular as
it relates to experienced police ocers. To best
outline the ndings, the UK experience and that
outside the UK are set out separately.
6 Recommendation4.17
UK Practice – General Recruitment
There are 43 police services in England and
Wales, each of which operates its own recruitment
procedures, subject to national standards. Recruits
are trained under the Initial Police Learning
and Development Programme (IPLDP) which
provides a standard across England and Wales,
with some variations to take account of local
police service needs.
The College of Policing, the regulatory body for
policing standards, has been working with police
services and higher education partners to develop
new entry routes into policing and some police
services will begin oering them from September
2018.This will involve phasing out the current
IPLDP over a number of years. The new routes
are:
Police Constable Degree Apprenticeship,
which is a professional degree-level
apprenticeship. This enables new recruits to
join the police service as an apprentice police
constable and earn while they learn. During
the three-year programme the apprentice will
complete a degree in professional policing
practice and will be assessed against national
assessment criteria as an integral part of their
degree apprenticeship;
Degree Holder Entry Programme, which
is aimed at degree holders in any subject
area. This will be a two-year (minimum)
practice-based programme enabling
candidates to perform the role of a police
constable. Successful completion results in
the achievement of a graduate diploma in
professional policing practice; and
A Pre-join Degree in Policing, which
involves completion of a three-year
knowledge-based degree in professional
policing prior to joining the police service.
Becoming a special constable may be
included as part of the programme.
Candidates who are subsequently recruited
will undertake practice-based training to
develop specic skills and will be assessed
against national assessment criteria in order
to demonstrate operational competence.
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20 21
The development of these entry routes is linked
with the development of the Policing Education
Qualications Framework, referred to later in this
chapter.
UK Practice – Experienced Ocer
Recruitment
While there are variations between police
services in terms of size, policing challenges
and distribution across urban and rural areas,
the common standards and legislation facilitates
mobility between police services. These are
referred to as transfers. No UK police service
operates an experienced ocer entry process for
ocers serving outside the UK.
The College of Policing and individual police
services regularly advertise details of policing
vacancies and opportunities for transferees on
their website. These include various opportunities
for police constables and detective constables,
posts in specialist roles, for example, in Child
and Adult Protection Teams, and posts up to chief
superintendent level. The College’s Leadership
Review – Recommendations for delivering
leadership at all levels (2015) also pointed to
how entry routes and talent programmes can
support the development of a critical mass in
police leadership with a diversity of backgrounds,
experience, thinking and perspectives which
together can have a major impact on positive
cultural change.
To be eligible to transfer to another England and
Wales police service as a constable, applicants
must be serving within a Home Office police
service or have so served within the last five
years and have a satisfactory record generally.
7
However, the London Metropolitan Police Service
now accepts transfer applications from ocers in
non-Home Oce services (e.g. the PSNI, Police
Scotland).
Successful applicants are given generic induction
and familiarisation training. This varies and in
the case of Lincolnshire Police, for example, lasts
seven days.
7 AHomeOfcepoliceserviceisanyoneofthe43policeservicesinEnglandandWales.
8 AsdeterminedinareviewofthepolicewebsitesofthepoliceservicesinFrance,Germany,Austria,Belgium,Netherlands,Spain,
Sweden,Norway,Denmark,andFinland.
Police Scotland recruits officers who want to
transfer to Scotland from other parts of the UK.
The process is not specically advertised and is
always open. Applicants must have ve years’
service, meet all necessary standards and pass an
interview. The application form seeks evidence of
transferrable skills. Because there are signicant
differences in laws, processes and procedures
compared with other parts of the UK, successful
applicants undertake a three-week conversion
course. The training is generic as the selection
process screens for recruits who are qualified
for appointment. No probation period applies to
such transfers. Between 30 and 40 ocers transfer
to Police Scotland each year through this route.
These include a small number of ranking ocers
(sergeant or inspector). There are two intakes per
year, in March and September. Specialist police
training recognised under national policing
qualications, such as public order and rearms
training, can be carried forward into Police
Scotland.
In Northern Ireland, transfers into the PSNI from
other UK police services have been facilitated
through a formal transferee process but there
is no recruitment at present. The last process
was in 2013 when 27 appointments were made
following 58 applications. Applications were
open to constables, detective constables, sergeants
and detective sergeants but appointment was
to the rank of constable. Candidates had to be
substantive in rank, attached to a Home Oce
police service, have a satisfactory sickness record,
pass a medical assessment, a substance misuse test
and an interview. Training, which for new recruits
is over a two-year period, was condensed to eight
weeks and there was no probationary period.
Practice in Other Jurisdictions
European police services reviewed by the
Inspectorate do not run experienced police ocer
entry programmes into their police services from
other jurisdictions.
8
All of these countries have
strict language requirements and some restrict
police posts to nationals of the particular country.
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20 21
In the USA, Canada and Australia, which have
multiple police services, a multitude of policies
apply (see Appendix 2 for full details). However,
an important theme is that intra-jurisdictional
transfers/recruitment are more frequent than
inter- jurisdictional ones. The former draw
heavily on common standards and training from
accredited services and abridged training is
common.
Accredited experience often can allow for entry
at a pay level comparable to an ocer’s previous
posting. The Inspectorate found that the USA
makes use of state approved selection and training
standards and that Australia is the best example
of inter-jurisdictional recruitment of experienced
officers with policing experience in Australia,
New Zealand or the UK recognised.
In Australia, there is no country-wide experienced
police ocer entry process and police ocers
wishing to join another police service must apply
to that police service and have prior policing
experience assessed. Victoria Police, for example,
in its Prior Policing Programme, recognises
prior policing service only in the case of those
who have served as an operational police ocer
in Australia, New Zealand or the UK. Each
application is assessed individually. Applicants
may be required to undertake a skills gap analysis
to assess how much their knowledge deviates
from current Victorian law and Victoria Police
policy and operational procedures. The skills
gap analysis takes into consideration educational
qualications, the amount and quality of policing
service and how up to date it is. The Inspectorate
was told that between 10 and 20% of applicants
are successful.
Suitable recruits undertake an individualised
abridged training programme, consisting of only
their identied mandatory training sessions and
they are then fast tracked by attending sessions
with more senior training groups. The length
of this training depends on the assessment and
performance in training but will be between
eight weeks and 24 weeks, compared with the
normal recruit training of 31 weeks. There is no
generic abridged training programme as Victoria
Police has moved away from a “one size ts all”
abridged programme to individualised training
programmes.
However, recruits undertake all foundation
training assessments, which ensures that they
leave training holding all competency expectations
of a general duties constable who has completed
the full training programme. The Inspectorate
was informed that many of these recruits achieve
acting sergeant positions relatively quickly after
recruitment.
Western Australia Police has run international
recruitment campaigns for “transitional police
ocers”, the most recent in 2012. It is the only
policing service in Australia to explicitly recognise
policing experience from Ireland as “compatible”.
Successful applicants were nominated by Western
Australia Police for a permanent residency visa.
This is no longer done but applicants from the UK
and Ireland can still apply at any time if they are
Australian or New Zealand citizens or permanent
residents of Australia. Previous policing service
was recognised for pay purposes. A tax oset was
available for relocation expenses
Applicants to Western Australia Police must have
three years “compatible policing experience” and
have nished probation. Previous service must
have occurred within the previous 18 months for it
to be recognised. The three-year minimum service
requirement was a condition of the agreement
with the immigration authorities, but in practice,
the police service sought officers with more
experience who would be ready for operational
roles. Applicants for transitional police ocer
are tested over a ve- day period. If their prior
learning and experience is considered appropriate,
shortened training of 13 weeks, compared with
the normal 28 weeks, is offered. This covers
police systems, policies and equipment and
familiarisation with legislation.
The Inspectorate is aware that a significant
number of former gardaí joined Western Australia
Police in the last decade, along with colleagues
from the PSNI and other UK police services, and
some have achieved promotion. One such ocer
told the Inspectorate that in recognising the skill
sets of officers from all UK services, Ireland,
New Zealand and South Africa, this service has
become more diverse and this has been key to its
modernisation in an environment where fresh
ideas on policing are openly encouraged.
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New Zealand Police last recruited from abroad in
2008. It provided an eight-week course instead of
the usual 16 weeks. Under its current recruitment
processes, overseas police ocers must be New
Zealand or Australian citizens or hold New
Zealand residency. They must pass the normal
recruiting process and undergo full training.
3.4 Stakeholder Engagement
Views of the Policing Authority
In its submission to the Inspectorate, the Policing
Authority said that the current arrangements for
recruitment of gardaí are inappropriate for the
needs of the modern Garda Síochána organisation
and are not suitable for attracting the widest
possible range of experience and talent. It noted
that, in common with other policing services, the
traditional entry route at trainee garda level and
the traditional internal career path will continue
to be appropriate for a large proportion of sworn
members. However, for a number of reasons
including culture change, openness to a broad
range of skills and experience, diversity and
agility, the Policing Authority was of the view
that there is signicant merit in broadening the
range of entry routes to the garda ranks. In this
regard, the Policing Authority emphasised that
reform of entry routes to the garda ranks was not
an end in itself. It recommended that a number
of dierent options be examined, implemented
and evaluated, emphasising that this should
complement the Government policy of “civilian
by default” referred to earlier.
Views of Garda Associations
The GRA indicated that it saw some merit in
providing a condensed training course for entry
to garda rank. It pointed to those who have served
in police services that fully subscribe to “Peelian
Principles”
9
of policing and Commissioner
Michael Staines’ declaration that ‘the Garda
Síochána will succeed not by force of arms or numbers,
but on their moral authority as servants of the
people’. It also emphasised that there could be no
automatic right to “leapfrog” other candidates.
9 PeelianprinciplessummarisetheideasthatSirRobertPeeldevelopedaroundethicalpolicingandpolicingbyconsentofthepeople.
The AGSI indicated that there is a high interest
in taking up garda trainee positions from across
all social, geographic and demographic groups.
Additionally, AGSI does not see a skills decit in
the front-line operational units or in specialist or
investigation units/sections. It therefore does not
believe that the Garda Síochána needs to seek to
recruit experienced police ocers from abroad.
If it becomes policy to recruit in this manner,
AGSI said that recruits with previous policing
experience should complete the normal recruit
training and probationary periods and should
not be considered for specialist duties for which
they may be qualified until completing three
years of regular policing duties. Additionally,
it emphasised that, if ocers from abroad who
have specialist skills are assigned, there must
be a process for skills transfer to existing Garda
Síochána personnel.
Both the GRA and AGSI expressed concerns
about the impact of alternative entry routes on
their membership, in particular opportunities for
development or specialist posts. They suggested
reciprocal arrangements with any other service
from which the Garda Síochána would draw
applicants and this was also referred to by the
Association of Garda Superintendents in their
submission.
3.5 Case for Experienced
Police Ocers
The Inspectorate has found limited but germane
examples internationally of the recruitment
of experienced police officers from other
jurisdictions.
As discussed earlier, police services in Australia
recruit officers with prior policing experience
from other Australian States and New Zealand
and give abridged training. They also generally
recognise policing experience from the UK,
subject to citizenship and residency conditions.
Shortened courses have also been provided by
Police Scotland and the PSNI to officers from
other UK police services.
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22 23
This demonstrates that the generic skills of police
ocers can be transferable, subject to supports
in respect of knowledge, policies and practices.
In this context, many common law jurisdictions
have broadly similar standards in many policing
functions.
The potential benets of opening up recruitment
to garda rank to experienced ocers are:
They would come from a diversity of police
backgrounds which would introduce fresh
thinking, perspectives, ideas, policing
knowledge and approaches into the
organisation. This would assist the opening
up of the organisation’s culture;
They would not need to undertake the full
garda training programme. This would speed
up the intake of new members and reduce
training time, thereby improving agility of
recruitment and assisting the Garda Síochána
to meet the recruitment targets set by
Government in the period to 2021;
They may have specialist policing skills
which are increasingly in demand in a
modern police service (e.g. public order,
rearms, drugs investigation, child
protection, cyber crime); and
It is inecient that applicants to the Garda
Síochána who are already qualied and
experienced police ocers, with track records
and skills that would be of benet to the
organisation, are required to complete the full
training programme on the same basis as a
recruit with no prior experience.
There are many Irish nationals serving in other
police services who emigrated in the last ten
years or so. Enabling them to be eligible to
join the Garda Síochána with modified entry
arrangements and a shorter, tailored training
programme would be of benet, not just to the
Garda Síochána organisation and policing, but
also to the community in general. For example,
the Inspectorate met an ocer working in another
police service with family ties in the jurisdiction
who has transferrable skills that would be in
demand in the Garda Síochána.
As he is over the age limit for traditional entry, he
cannot apply in the normal way and, even then, it
makes no sense that he should have to undertake
the 32-week residential training, the full 72- week
on-the-job training and the probationary period.
3.6 Eligibility Issues
Relating to Recruitment
of Experienced Ocers
from Other Jurisdictions
For an experienced ocer recruitment scheme
to be eective, ecient and viable, a number of
issues relating to eligibility need to be considered
to maximise the potential of the scheme to
attract high quality candidates, and ensure those
selected enhance Garda Síochána capability upon
appointment. These are:
Nationality and Residence
To attract as diverse a pool of candidates
as possible, the Inspectorate considers that
experienced police officers, irrespective of
nationality, who meet Garda standards, should
be eligible to apply to the Garda Síochána.
Such individuals should be viewed as skilled
professionals who can add to the capability and
capacity of Irish policing.
At present, applicants for admission as a trainee
garda must be nationals of an EU Member
State, an EEA Member State, Switzerland or
alternatively be legally resident in the State for
a specied period. The Inspectorate considers
that experienced officers working in policing
organisations outside of the EEA, in, for example,
the USA, Canada, Australia and New Zealand
could be suitable applicants.
For the Garda Síochána to get the most benet
from this kind of recruitment, it would be
important that as few limitations as possible are
placed on nationality and residence so that all
such potential candidates who could contribute
relevant experience would have access. Rather
than nationality, the key issue should be the quality
of the candidates’ policing knowledge, experience
and skills as assessed against Garda requirements.
How the application and recruitment process
could be designed is discussed below.
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24 25
In proposing recruitment of experienced police
ocers from other jurisdictions including from
outside the EEA, the Inspectorate understands that
this would require amendment of the statutory
work permit scheme, which currently only allows
for a permit to be granted if the applicant can
provide a service or skill not available in the State.
The Inspectorate considers that this is justied on
the grounds of the experience prole required.
Age and Experience
The Inspectorate considers that officers of the
calibre and experience that the Garda Síochána
would be seeking to attract are likely to be close
to or exceed the age of 35 years which is the
current maximum age for recruitment at garda
rank. However, in order to attract experienced
candidates, the upper age limit of 35 years would
need to be modied to take account of the number
of years of conrmed service in another policing
organisation. It is suggested that such ocers
should be required to pass a fitness test. This
approach would be essential to enhance take-up
rate of a scheme.
The Inspectorate considers that experienced
ocers should have a minimum of three years’
conrmed service following training in order for
the Garda Síochána to realise sucient benet in
terms of knowledge and experience transfer.
While the general question of age limits is outside
the terms of reference, it is considered that there
may be merit in reviewing the current maximum
age limit of 35 years for normal entry into the
Garda Síochána in order to maximise recruitment
opportunities and diversity. A revision of the age
limit could also encourage people with a variety
of backgrounds and managerial and leadership
experience to consider a career change to policing.
The Requirement to Study Irish and
Language Requirements Generally
The Garda College pointed out that Irish is taught
as part of the foundation training course to enable
gardaí to conduct business in Irish and that this
might present a practical challenge for transfer
entry.
10 AnGardaSíochánaOfcialLanguagesAct2003LanguageScheme2016–2019
While it is a constitutional right for citizens to
conduct their business in Irish, the Garda Síochána
Irish language scheme
10
makes provision for the
manner in which this service is to be delivered.
In particular, it is to be provided through ‘a panel
of procient speakers in each Garda Division’. The
Garda Síochána Act 2005 (section 33(2)) also
provides that the Garda Commissioner shall ‘to the
extent practicable, ensure that members of the Garda
Síochána in a district that includes a Gaeltacht area are
suciently competent in the Irish language to enable
them to use it with facility in carrying out their duties’.
The Inspectorate considers that an experienced
officer entry scheme from other jurisdictions
would not compromise the operation of these
panels as the numbers of gardaí involved are
small compared to the overall member cohort.
Experienced ocers who are recruited should be
exempted from the requirement to learn Irish to
lessen recruitment barriers. It is understood that
such a waiver is already in place for members
who join from the PSNI under the promotion
arrangements referred to later. Sections 9 and 10
of the Garda Síochána Act 2005, which set out
the parameters for appointment of the Garda
Commissioner and Deputy Commissioner, also
make no reference to a requirement in relation to
the Irish language.
In order to attract the most diverse pool of
candidates, the Inspectorate considers that the
language requirement for experienced police
officers from other police services should be
modied to require prociency in English only.
Knowledge of other languages would, of course,
be an advantage.
Assessing Knowledge/Understanding of
Current Irish Policing-Related Law and
Practice
The Inspectorate considers that the single biggest
practical challenge in devising an entry scheme
for experienced police officers will be around
the dierences in law, policies and practices as
they relate to policing in dierent jurisdictions.
However, while Irish law and procedures are
dierent to those in neighbouring jurisdictions
REVIEW OF ENTRY ROUTES TO THE GARDA SÍOCHÁNA
24 25
and other common law countries, police ocers
who have worked in both the Garda Síochána and
other common law police services have conrmed
the Inspectorate’s view that there is a lot of
commonality. The vital learning for new recruits
will be to understand the key dierences and
to know how and when to apply the provisions
that exist in Irish law. They will also, of course,
have to gain an understanding of life in Ireland,
in general.
The Inspectorate considers that the material on
law, policies and practices in relation to the Garda
Síochána, which is currently delivered to recruits
in the College, could be developed, quickly and
at little cost, into a “pre-read” which could be
made available to experienced ocers applying
for entry. A broadly similar approach is taken by
Police Now, the graduate entry programme in
England and Wales (referred to in Chapter 2 and
Appendix 1), which tests recruits on the pre-read
material on the rst day of training. The PSNI also
gave transferees pre-read material to study before
attending its transferee training programme.
The Inspectorate proposes that a test – which
could be called the Experienced Police Ocers
Knowledge Test – could be developed. A Qualied
Lawyers Transfer Test is administered by the Law
Society and is a conversion test that assesses the
tness of lawyers who are qualied overseas to
practise as solicitors in this jurisdiction. The Law
Society website provides direction to required
knowledge, showing past exams and gives a
reading list.
Through a police knowledge test, a police ocer
from another jurisdiction would be assessed on
their knowledge of Irish policing law, practice
and application at the end of training and before
appointment is confirmed. Information and
references could be posted on the Garda Síochána
website as a guide to interested applicants.
3.7 The Recruitment Process
The Inspectorate envisages a recruitment process
led by the PAS in active partnership with the
Garda Síochána. Overall, it would need to be as
attractive and as easy to navigate as possible to
encourage people to consider it.
Proactive recruitment strategies and human
resource information and support would need
to be put in place to encourage applications from
experienced ocers in other jurisdictions and
assist them in the joining and induction process,
if appointed.
The Inspectorate considers that a special stream
for experienced police ocers recruitment could
be created as part of the general Garda Síochána
recruitment process.
A relatively speedy process to validate prior
experience and to carry out an initial evaluation
of skills and competencies would be key to the
success of attracting experienced police ocers
from abroad. Candidates should be required
to set out details and evidence of performance
in another police service, evidence of police
training and conrmation that they are clear of
any disciplinary issues that may impact on their
appointment. A process could broadly consist of:
A competency-based application form
enabling candidates to outline details of
their experience and skills, with examples
of where they have demonstrated policing
competencies as well as evidence of
experience, training and discipline record;
Shortlisting of candidates, evaluation of
competencies and values;
An interview (video-conference could
be utilised) and any related assessments
necessary; and
Vetting, medical examination and tness test.
3.8 Creating Abridged Training
The University of Limerick accredits the recruit
foundation course as a BA in Applied Policing
at Level 7 on the National Qualications system.
The Inspectorate discussed separately with
representatives of the University and the Garda
College whether there were approaches which
could be developed to recognise the relevant
prior learning and experience held by already
qualied police ocers in other jurisdictions and
thus shorten the initial training requirement.
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26 27
The University and Garda College representatives
explained that the Level 7 programme is based
on problem-based learning, whereby students
are presented with policing scenarios which
they have to negotiate using the knowledge
and learning obtained on the various modules.
It is qualitatively dierent from other criminal
justice or law programmes as it deals with the
practical dimensions of a scenario and not just the
academic, legal and theoretical aspects.
The Garda College representative said that the
degree is the professional standard for entry to
the organisation. While they had no diculty in
principle with qualied ocers joining from other
jurisdictions, it was their view that new recruits
should complete the full degree and training
programme because of the dierences in policing,
legal practice and constitutional law between
Ireland and other countries. The Inspectorate was
told that the teaching is not “siloed” into separate
subject areas and is based on applying a decision-
making model. The residential aspect is seen as
an essential part of the training and giving credit
for prior academic learning or policing experience
would segregate the learning.
There were also reservations as to whether ocers
with police experience could be exempted from
the on-the-job phases of the training. It was said
that this is integral to the foundation programme
and, if exempted, experienced officer recruits
would not be completing the BA.
The Inspectorate notes that many universities
have a policy on prior learning which takes
account of both academic and experiential
learning and the Inspectorate considers that the
Garda College should adopt a similar approach.
The approach taken in Victoria, Australia is a good
model. This is outlined in Appendix 2. There, the
basic abridged training covers all the competency
expectations of a general duties constable who
has completed the full training programme with
individual training requirements assessed in the
light of experience, qualications, a skills gap
analysis and performance in training.
A system to recognise prior learning is being
developed in England and Wales by the College
of Policing as part of the Policing Education
Qualifications Framework, which has been
developed as a standardised national framework
that sets minimum education qualification
levels by level of policing practice or rank. This
will enable police ocers and sta to achieve
recognition for their experience and prior
learning and secure education qualifications
which acknowledge the skills and professionalism
required to do their job (College of Policing,
undated).
In the Netherlands, the police qualifications
structure is integrated with the National
Qualifications Framework and allows for
recognition of prior learning and exemptions from
courses as appropriate (Ministry of the Interior
and Kingdom Relations, 2009).
University of Limerick representatives pointed
out to the Inspectorate that the BA in Applied
Policing is part of the European Credit Transfer
and Accumulation System (ECTS). The ECTS
recognises academic qualifications from other
countries and is designed to be flexible. This
would enable relevant prior skills, experience
and learning to be assessed and, if of appropriate
standard, to be taken into account in determining
requirements for the degree. It should, therefore,
be possible to develop a structured process for
the granting of exemptions from foundation
training modules on an individual basis while
still enabling new gardaí to qualify for the BA in
Applied Policing.
In the Inspectorate’s view, the abridged training
required by an experienced officer should be
determined by a training needs assessment
according to the principle “does the member
actually require this?”. Passing the Experienced
Police Ocers Knowledge Test, referred to earlier,
and any other required assessments would be
necessary to graduate from training and be
appointed.
Recognition of practical policing experience under
such a system would benet serving gardaí who
joined prior to the BA in Applied Policing being
awarded as it would create a system to recognise
their practical experience.
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26 27
It could also introduce the potential to develop
pre-join courses in conjunction with educational
establishments as a further means of diversifying
recruitment and to develop training on a modular
basis. In this regard, the English Policing
Education Qualications Framework model could
be a guide.
3.9 Probation and
Appointment
The normal probation period for a recruit garda
is two years. In the normal course, a probation
period is important to allow for evaluation of a
new recruit’s suitability for a position. However,
in the case of officers whose prior policing
experience has been validated, it is considered that
a probation period could be a potential deterrent
to such applicants. Accordingly, the Inspectorate
considers that experienced police ocers should
not be required to serve a probationary period
and should be enrolled as a member from day
one. Appointment would be confirmed on
satisfactory completion of the abridged training
and the Experienced Police Ocers Knowledge
Test which should be done as soon as practicable.
This would enhance the attractiveness of the oer
to candidates.
Accredited police service experience should be
reected in entry onto an appropriate point of the
Garda Síochána pay scale and take account of the
number of years’ conrmed satisfactory policing
service. This would apply from enrolment.
3.10 Costs of Recruitment/
Training
The cost of recruiting serving or former ocers
from abroad is likely to be higher than recruiting
locally. The main cost will be in relation to
marketing and advertising abroad. Video
conferencing could be used in the interview
process. Pay costs will be higher as it is proposed
that these recruits would go on to a higher point
of the pay scale, given their experience. However,
this must be oset against the benet of employing
already trained ocers, which is more ecient
than training new recruits.
The Garda College informed the Inspectorate that
the approximate cost of Phase 1 of the foundation
training course for trainee gardaí for 2018 (based
on a projected recruitment of 800 trainees) is
€24,223 per garda trainee. This includes College
salaries and tuition costs as well as the cost of
garda training allowances. When the latter are
excluded, the actual cost of training a recruit in
Phase 1 is €17,047. It is clear that much shorter,
abridged training would result in significant
savings in training costs (but it is recognised
that the payment of a salary to the experienced
ocer instead of a training allowance would be an
additional cost). The potential for shorter training
is illustrated by the three weeks’ training given by
Police Scotland to transferees.
There would be some start-up costs in devising
an abridged programme. It is not possible for
the Inspectorate to estimate the cost. However,
the material is already available for the existing
foundation programme so the cost is anticipated
to be marginal.
The Inspectorate considers that the costs of
participating in the selection process should be
borne by the individual. However, to assist the
transition to living and working in Ireland, the
Inspectorate considers that an allowance for
experienced ocers recruited from abroad could
be paid for a limited period along the lines of the
lodging allowance payable to garda members
transferring to other posts. Such assistance
would be important in order to optimise take-up
of the scheme. As indicated in Appendix 2, such
incentives were provided by Western Australia
Police in its international recruitment campaign.
3.11 Take-up of Experienced
Ocer Recruitment
Scheme
It is very dicult to assess the likely take-up of
a scheme with any real accuracy. Targeted and
professional marketing of the scheme through
police journals, as well as social media channels,
would be essential.
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28 29
The take-up rate will be inuenced by the levels of
support provided to individuals in the recruitment
process and the ready provision of information on
taxation, pensions, public services etc., as well as
assistance with relocation.
Victoria Police informed the Inspectorate that
an average of about 100 applicants from other
Australian States, the UK and New Zealand
apply for its Prior Policing Programme per year.
The attrition rate is fairly constant with between
10 and 20% being inducted. Contributory factors
to the attrition rate are inability or failure to
complete assessments, failure to meet eligibility
or other requirements and withdrawal due to
change of circumstances or personal reasons.
This experience indicates the challenges involved
in designing, developing and operating an entry
route for experienced police ocers from abroad.
3.12 Potential Impediments
Pension Issues
Pensions are a complex subject and it is beyond
the scope of this review to assess the extent to
which pension rights, already accrued by a police
ocer in a dierent jurisdiction, may aect the
attractiveness of a position in the Garda Síochána.
The Inspectorate recognises that a decision to
consider relocating will vary from individual to
individual depending on personal circumstances,
length of service and age and that people would
make such choices based on a number of personal
and professional factors which may involve
“trade os”. It also recognises that pension rights
accumulated in another jurisdiction may leave
a potential candidate feeling “locked into” their
pension scheme and unwilling to move. The
jurisdictions where experienced police officer
recruitment takes place or has taken place did
not make any provision regarding portability of
pension rights.
Information on Garda pension arrangements is set
out in Appendix 4. The scheme in operation for
new members recruited since 2013 is the Single
Public Service Scheme, which calculates pension
11 The1987schemewasbasedon30years’serviceandthe2006schemeon35years’service.Thelatest2015schemeisacareer
averagescheme.Subjecttoretirementatage60,thereisnolimittopensionableserviceandmemberscancontinuetobuildtheir
pensionuptoretirementage.
based on career average earnings rather than on
nal salary as was the case in previous schemes.
There is no maximum length of service for benet
accrual purposes within this scheme and every
year worked counts for pension. The Inspectorate
considers that this factor may be advantageous in
terms of seeking to attract experienced ocers,
as is the fact that in the UK, police pensions have
broadly moved in a similar direction as in Ireland
away from nal salary schemes.
11
It is understood
that UK-based ocers on the current scheme are
less likely to see themselves as locked into their
pension scheme, compared with ocers on a nal
salary scheme.
The Inspectorate envisages two broad categories
of individuals who may be interested in a position
in the Garda Síochána. These are:
1. Ocers with up to ten years’ experience who
may be interested in relocating or coming to
Ireland for personal reasons; and
2. Experienced ocers nearing the end of their
service, or who have retired, and who are
interested in a new challenge – possibly
combined with personal reasons for wanting
to come to Ireland.
In order to enhance the attractiveness of a
programme of experienced officer entry, the
Inspectorate considers that options around
optimising pensionable possibilities, including
PRSA Superannuation, could be explored.
DPER has indicated that this is not necessarily
straightforward and would need to be assessed.
In the marketing of a scheme, it will be important
to provide clear information on Garda pensions
to candidates.
Access to Promotion
It is anticipated that some potential candidates
for this programme may hold a supervisory rank,
similar to sergeant, in another police service.
While options around entry routes at mid-
level are outlined in Chapter 4, the Inspectorate
considers that entry at the garda level by an
experienced police ocer should not take into
account previous rank.
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28 29
However, in order to enhance the attractiveness
of the position, an experienced ocer could be
deemed to be eligible to compete for promotion
after 12 months’ satisfactory service in the Garda
Síochána.
3.13 Re-employment of
Former Garda Members
Current Situation
The 2013 Admissions and Appointments
Regulations provide limited exceptions to the
normal admissions process, which mean that
there is a precedent for alternative entry routes
to policing in Ireland. Re-entry allows ocers to
leave the Garda Síochána to gain new skills and
experience and then to rejoin at the same rank and
to utilise those skills. The career break scheme is
one means to facilitate this, but it is understood
that career breaks have been refused by the Garda
Síochána in cases where it was the applicant’s
intention to join another police service.
Regulation 9 provides for appointment on the
authority of the Government in the public interest
while Regulation 11 (formerly Regulation 14 of
the 1988 Appointment Regulations) allows the
commissioner, with the consent of the Minister, to
appoint and enrol a person with special aptitudes,
knowledge, skills or technical qualifications.
This regulation has recently been used to hold a
competition for appointment of three armourers
and has been used to recruit members for the
Garda Band.
Regulation 10 allows the commissioner, with the
consent of the Minister, to appoint and enrol a
former member. The Inspectorate understands
that 27 former members sought enrolment under
this Regulation between 2013 and 2017. Six were
successful (one of whom subsequently withdrew),
one application is ongoing and 20 were refused.
All successful applicants were enrolled in their
former rank. This includes a sergeant and an
inspector.
The Department informed the Inspectorate that
the criteria used by the commissioner to decide on
an application were agreed with the Department
in 1980 and are being reviewed.
They also said that applications were considered
with reference to:
Whether the applicant had new qualications,
training, or experience;
Whether the application was within ve years
of resignation; and
Recommendations from the former member’s
local line management and sickness,
complaints and discipline records.
Officers rejoining undergo a pre-employment
medical but are not required to complete
induction training or to complete the probation
period again.
International Practice Relating to Re-entry
in Other Police Services
Many firms in the private sector now seek to
cultivate the re-employment of capable former
staff. Advantages include fast recruitment,
known skills, reduced need for training and
understanding of the organisation combined with
fresh perspective.
In England and Wales, regulations were amended
in 2013 to allow ocers to return to the police
service at the rank they last held, within a ve-
year limit. This can be extended by the relevant
chief ocer in exceptional circumstances. The
College of Policing’s Leadership Review, referred
to earlier, recommended that:
Ocers at any rank should be able to re-enter
at a higher rank if they can demonstrate the
appropriate skills, competence and values;
and
The time limit for return to the profession
should be extended beyond the ve-year limit
depending on the relevance and applicability
of the applicant’s external experience.
Police Scotland facilitates re-entry by former
ocers who are subject to individual assessment
prior to appointment. Training requirements
are assessed on an individual basis and depend
on factors such as length of previous service,
experience etc. If probation was previously
completed, there is no requirement for the
probationary period to be repeated.
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30 31
Its ten year strategy to 2026 notes that in the
future ‘Individuals will desire a more exible working
environment, which supports multiple routes into the
service and often shorter term and more varied career
secondments to increase experience, and options to re-
enter with additional skills and experience’ (Police
Scotland and Scottish Policing Authority, 2017).
Most Australian police services provide for the
recruitment of returning ocers with shortened
training alongside the schemes for experienced
officer recruitment described in the previous
section. The Victoria Police Blue Paper: A Vision
for Victoria Police in 2025 (2014) identified
police career mobility, including re-entry of
former members, as a means to strengthen both
individual and organisational capability. Former
ocers in that state must be registered with the
Police Registration and Services Board (PRSB),
which was established in 2014 to facilitate police
career mobility into and out of Victoria Police. It
provides a pathway for former police ocers to
return to Victoria Police at or above the rank they
last attained.
The PRSB is independent and assesses an
applicant’s capability, experience (policing and
otherwise) and any relevant qualications for the
rank for which registration is sought (including
a higher rank than previously held) against a
self-assessed rank capability prole. Once on the
register applicants are eligible to apply for re-
employment, subject to checks and a competitive
application process for advertised posts.
A report published by the PRSB in July 2017
notes that ‘re-hiring is a form of targeted recruitment,
which has been shown to be highly successful because
former employees have a more accurate understanding
of job duties, supervisory styles, work schedules,
co-worker relationships and organisational values’
(PRSB, 2017). It was seen as an opportunity to
bring in desired and in-demand capabilities and
qualities. In addition to registration, the PRSB
is responsible for advising about education and
practice standards and continuing professional
development.
In the USA, a challenging employment market has
led policing agencies to engage with those leaving
to encourage them to think about re-entering
policing at a future point in their careers (Orrick,
2007).
Overall, the Inspectorate has found that,
internationally, the provision of opportunities
for former ocers to rejoin is more common than
recruitment of experienced ocers from other
police services.
Proposed Approach
The Inspectorate considers that the current
Regulation 10 governing re-entry lacks
transparency. The Department has indicated
that it is considering a process which would
involve consideration by the commissioner of the
following matters:
The former member’s le in relation to sick
leave, reason for resignation, discipline (if
applicable), complaints (if applicable) and
bullying and harassment (if applicable);
Recommendations from the former
member’s local line management as to their
previous standards and their suitability for
reappointment;
Any newly acquired skills, experience
or qualications that could benet the
Garda Síochána upon the individual’s
reappointment;
The length of the period of absence from the
Garda Síochána and any associated training
needs to ensure the former member is fully
competent and available to undertake, and
fully capable of undertaking, the duties of
his or her position as a member of the Garda
Síochána;
The age and physical tness of the former
member; and
Any other factors, which the commissioner
considers relevant.
The Inspectorate agrees that criteria on these
lines would be more appropriate in the context of
developing transparent entry and re-entry routes
to the organisation. The criteria should be revised,
published and re-entry promoted in a positive
light, with the potential for entry onto a point of
the pay scale that takes account of experience and
skills acquired elsewhere. It should be noted that
Garda pension arrangements changed in 2013, as
described in Appendix 4, with the introduction of
the Single Public Service Pension Scheme.
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30 31
The Inspectorate understands that the break in
service means that there is no scope for a returning
ocer to rejoin the former scheme.
The Inspectorate has considered the option of
requiring applicants for re-entry to apply to the
PAS through the experienced ocer entry route
proposed above. However, it would be more
straightforward to adapt the current system, with
the commissioner deciding on re-entry, as now,
but subject to revised criteria. Other police services
do not require Ministerial consent to re-employ
an ocer who meets set criteria. The Inspectorate
does not see the need for such consent as long as
the deciding criteria are transparent. Feedback
should be provided to applicants and there should
be the right of an appeal, possibly to the Policing
Authority, in the case of an application being
refused by the commissioner.
The Inspectorate considers that re-entrants
should undertake a skills gap analysis and prior
learning evaluation to assist in assessing refresher
training requirements on an individual basis. The
Inspectorate considers that the current approach
not to update training for rejoining ocers raises
a risk that their knowledge could be out-of-step
with current practice. It is recognised that the
changes proposed may require an amendment of
the regulations.
3.14 Inspectorate’s Assessment
on New Entry Routes at
Garda Level
In the Inspectorate’s view, good recruitment
practice should seek the most qualied candidates
from the widest possible pool. The challenges
posed by the changing nature of crime, increasing
demands and the changing composition of the
population require improved levels of diversity
and the broadest possible skills mix and
experience prole in the workforce.
The commitment to signicant garda recruitment
up to 2021 provides a real opportunity to renew
and diversify the Garda Síochána workforce and
open up the organisation to external policing
experience.
Given that it currently takes one year to complete
the recruitment process and over two years to
train a new recruit, there are clear advantages in
seeking to proactively recruit already qualied
and experienced police officers from other
jurisdictions, subject to rigorous and efficient
selection processes which adhere to all relevant
standards for Garda recruitment.
The Inspectorate, therefore, has concluded that a
programme of recruitment of suitable, experienced
police ocers from international jurisdictions as
well as suitable former gardaí who wish to rejoin
should be considered for implementation. Such
an approach would bring in fresh perspectives
and thinking, as well as practical knowledge of
good practice in other services, while reducing
the training demand. It is considered that the
organisation’s dual mandate for policing and
security has no bearing on this proposal as all
successful candidates will have to satisfy security
clearance.
Recruits under an experienced officer entry
programme would undertake an individual
training needs assessment to evaluate prior
experience, skills and training. This would result
in appropriate exemptions from the induction
course being granted where the ocer is deemed
to have the relevant knowledge and skills
and where no benefit would accrue from the
training. In this way, the training requirement of
an experienced ocer or re-entrant joining the
Garda Síochána could be signicantly reduced.
Such shorter tailored training options, perhaps
delivered on a modular basis, would enable
appropriate dierentiation depending on prior
experience.
The Inspectorate considers that the outcomes from
the scheme’s operation should be fully evaluated.
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32 33
Proposal 4
That a programme be developed to recruit
suitable, experienced police officers from
police services in other jurisdictions.
To achieve this, the following will need to be
considered:
Amendment of the Garda Admission and
Appointment Regulations and a review
of the statutory work permit scheme
to facilitate recruitment of suitable,
experienced police ocers from other
jurisdictions, including from outside the
EEA;
Targeted approaches to market the Garda
Síochána as a career for experienced police
ocers in other jurisdictions;
Increasing the maximum age limit for
recruitment;
The requirement for a tness test;
Amendment of the language requirement
to specify prociency in English only;
The provision of abridged training on
the basis of individual assessment of
prior learning and experience and the
recognition of this for the purpose of the
BA in Applied Policing;
The development of an Experienced Police
Ocers Knowledge Test which must be
passed on completion of the abridged
training and prior to conrmation of
appointment;
Provision that pay at enrolment reects
conrmed satisfactory employment in
another police service;
Exploration of options around optimising
pensionable possibilities;
Provision of information and support to
assist with relocation;
Recruitment to be led by the PAS;
Provision that ocers who join under
the programme be eligible to compete for
promotion after 12 months’ satisfactory
service in the Garda Síochána; and
Arrangement for appropriate evaluation of
the programme.
Proposal 5
That the process whereby suitable former
members of the Garda Síochána can rejoin
should be reviewed and revised to ensure
transparency, timeliness and fairness.
To achieve this, the following will need to be
considered:
Development of a new set of criteria
to assess the suitability of the former
member to rejoin;
Requirement for a tness test;
The necessity for Ministerial consent to
reappoint a former member;
Implementation of an appropriate appeals
process;
Skills gap analysis and prior learning
evaluation to assist in assessing refresher
training requirements on an individual
basis; and
Amendment of the Garda Admission and
Appointment Regulations.
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32 33
4
Chapter 4
Entry at Sergeant
and Inspector Rank
(Mid-Level Leaders)
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34 35
4.1 Introduction
The Inspectorate has been asked to assess
international practice in relation to recruitment
to mid-level ranks in comparable police services
and to identify appropriate options for opening
up opportunities for entry to some or all of these
ranks to experienced police professionals or other
persons with the required skill set.
The Inspectorate understands the term
‘experienced police professional’ in this context
to mean a police ocer with signicant policing
and supervisory experience in a mid-level police
service rank. The term “comparable” police
service is understood to refer to a police service
operating under similar laws and procedures.
4.2 The Current
Appointment Process
Appointment to sergeant and inspector in the
Garda Síochána is by internal promotion only and
the processes are the responsibility of the Garda
Commissioner. They are managed centrally by the
Competitions Unit within the Garda Síochána’s
Human Resources Directorate and are governed
by the Garda Síochána (Promotion) Regulations
2006. These prescribe that eligibility for interview
is subject to a written examination in police duties
(known as the Sergeant’s Promotion Examination
or the Inspector’s Promotion Examination). The
Commission for Public Service Appointments’
Code of Practice on Appointments to Positions in
the Civil Service and Public Service (CPSA, 2017)
applies to positions in the Garda Síochána up to
and including inspector level.
To be eligible to sit the Sergeant’s Promotion
Examination, a garda must have completed three
years’ service or have a university degree and
have completed their probation. The Regulations
provide that a prociency in Irish is required and
this involves passing an oral Irish prociency
exam.
To be eligible to sit the Inspector’s Promotion
Examination, a sergeant must have completed
two years’ service in that rank.
A pass in the relevant written test provides
open-ended eligibility for interviews in future
competitions. There is no requirement on
candidates to demonstrate that they have
remained up to date in the subject matter.
Gardaí may serve considerable periods of time in
each rank before promotion. It is understood that
it can often take up to ten years for a garda to reach
sergeant level, up to 20 years to reach inspector
level and up to 24 years to reach superintendent
level.
The Commission for Public Service Appointments
published an audit of recruitment and selection
policies relating to the ranks of sergeant and
inspector in 2015. The audit made a number of
recommendations around the processes including
for a transparent mobility system to enable
candidates to obtain a greater range of experience
and skills. It also recommended that the Garda
Síochána support its promotion processes for
these ranks with a robustly managed probationary
period.
A review of the promotion processes, initiated
by the commissioner following this audit, was
undertaken and the Inspectorate met with the
review team as a stakeholder.
As indicated earlier, sergeants and inspectors
who leave the Garda Síochána may apply to re-
enter under the same process as applies at garda
rank. Since 2013, a sergeant and an inspector have
applied and both were successful.
4.3 International Practice
Overview
The Inspectorate has found that international
practice is mainly based on internal promotion
processes and that these are particular to each
police service.
Appointment processes in most jurisdictions
are supported by continuous professional
development, training, leadership development
and in some cases processes to select potential
future leaders for development.
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34 35
Many services refer to the importance of
workforce planning, succession planning,
leadership development and talent management,
as already recommended by the Inspectorate in
Changing Policing in Ireland (2015).
12
For example,
the New Zealand Police Four Year Plan 2016–2020
(New Zealand Police, 2016) notes that ‘police’s
priority for management and leadership development
is its 1,900 Constabulary Sergeants and Senior
Sergeants. This cohort of front line leaders is critically
important to achieving Police’s strategy. They have
signicant inuence over the 6,600 sta at the rank of
constable… [and they are]… also crucial to developing
and mentoring the upcoming generation of leaders of
police’.
As with the examination of the garda rank in
Chapter 3, international practice in the UK and
other jurisdictions is dealt with separately.
UK Practice
Police services in the UK are increasingly opening
their appointment processes to candidates serving
in other UK police services. This is possible
because of the standardisation of recruitment
and training processes. Appointment can take
the form of either promotion to the next rank or
in-rank transfer.
In England and Wales, promotion to sergeant and
inspector follows the National Police Promotion
Framework (NPPF), which sets out standards and
mandatory steps to be followed by police services.
It is a four step process:
Step one: Competence in current rank;
Step two: Legal knowledge examination
(previously called OSPRE Part I
13
);
Step three: Local assessment against rank-
specic vacancies and matching to vacancies
(this local police service assessment replaces
the OSPRE Part II one-day behavioural
assessment); and
Step four: Temporary promotion and work-
based assessment, leading to a professional
qualication in police management.
12 ChangingPolicinginIreland(2015):recommendation3.11
13 OSPREistheObjectiveStructuredPerformanceRelatedExaminationandhasbeenreplacedbytheNationalPolicePromotion
Framework
Some police services have opened up promotion
processes to sergeant and inspector to eligible
candidates from other police services in England
and Wales who have passed NPPF step II or
OSPRE II. For example, the Metropolitan Police,
Surrey Police, Avon and Somerset Constabulary,
and Northumbria Police all have done this.
Police Scotland has recruited sergeants and
inspectors on in-rank transfers occasionally. It is
not an active process and appointment is subject
to meeting all necessary qualification criteria,
standards and passing an interview. It does not
accept applications for transfer on promotion
(however, transferees can carry forward
promotion qualications gained in England and
Wales (OSPRE)).
In the PSNI, all promotion processes are open to
candidates from other UK police services who
meet the required criteria including having passed
OSPRE Parts I and II in the case of the sergeant
and inspector processes.
These mobility trends are in keeping with the
College of Policing’s Leadership Review, referred
to in Chapter 3, which stated that ‘career movement
within and between forces, and within and between
other sectors, can provide benets to individuals and
organisations. This movement would be supported
by a requirement for all forces to advertise all police
ocer and sta vacancies nationally’. It went on to
recommend that ’all potential opportunities in policing
should be open to the widest pool of capable and suitably
qualied candidates. This will ensure candidates have
the greatest chance to full their potential and promote
greater diversity, exibility and mobility throughout
the police service’.
The Leadership Review emphasised the
importance of giving attention to both
management and leadership development at all
levels including for front-line supervisors who are
‘arguably the most important level at which to establish
leadership skills and approaches’.
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36 37
In discussions with HMICFRS, the view was
expressed to the Inspectorate that, in general,
the best performing police services are open
to new people coming into their organisation
through dierent routes. Its 2016 review of police
leadership reected this point noting that ‘some
forces are recruiting for roles that are promotions from
outside their own force in order to improve diversity
in skills, views and ability’. The Inspectorate
particularly notes the view that ‘the forces that
are best at creating diverse leadership teams recruit
externally, and assess the abilities of their workforces
against individuals from outside of the force’ (HMIC,
2016).
Practice in Other Jurisdictions
Many European police services operate a system
whereby the police is effectively split into
commissioned and non-commissioned ocers,
the split reflecting groupings broadly similar
to constable to sergeant ranks and inspector to
superintendent ranks. (These terms come from
the military with non-commissioned officers
forming the junior ranks, not having earned
a commission. Commissioned officers have
more strategic responsibilities and usually
earn their commissions through graduate
recruitment, without having risen through the
non-commissioned ranks.) The inspector and
superintendent levels entail some element of
direct recruitment, often requiring qualication to
Master’s level. In France, for example, graduate
recruitment to inspector level operates alongside
promotion systems.
In Australia, while prior experience in overseas
police services has often been taken into account
for pay purposes, those joining from higher
ranks in other police services have had to join
at constable level. In the USA and Canada, it is
uncommon that ranking police ocers can move
to a dierent police department and retain their
supervisory position. In Edmonton Police Service
(Canada), for example, a higher classication is for
pay purposes only and does not aect seniority or
rank.
Further details of international practice relating to
mid-level ranks are given in Appendix 3.
Recent Changes to the Appointment
System in England and Wales
The Independent Review of Police Ocer and Sta
Remuneration and Conditions (Winsor Review,
2011) considered the leadership requirements of a
changing police service, the length of time it takes
to progress to higher rank, the need to open up the
culture of policing and the need for diversity of
thinking and experience. Winsor’s vision was that
policing, including its criteria and procedures for
entry should be reformed so that all young men
and women of intelligence and character consider
a policing career on a par with other professions
such as law, medicine and industry.
Winsor considered the inspector rank as key as
they ‘are the ocers who organise, manage and engage
to the greatest extent with constables and sergeants.
They are the ocers who can introduce, or block, change
which can have the greatest effect on the policing
services which forces provide. Promoting ocers of the
highest potential rapidly to this rank should have an
appreciable benecial eect on the police service culture
and the way policing is managed’.
Winsor envisaged that external entrants would
join as constables and acquire experience at
that rank before promotion as they would need
experience of ‘what it means to be on the streets.
They should have used the powers of a constable, and
understand how serious it is to make a decision to arrest
a suspect, subject an unwilling person to a search, and
to use reasonable force. They should have faced danger’.
There would be an intensive training scheme,
focusing on leadership, alongside practical police
operational and management skills.
The Winsor report also proposed a Direct Entry
Superintendent scheme on the basis that the
police service would benet from the recruitment
of those with leadership and management
experience in other disciplines, particularly in
relation to business and nancial management
whether in the public or private sectors. The
importance of a strong ethos of public service for
the role was recognised. Winsor acknowledged
that this recommendation had caused him the
greatest hesitation in view of issues around
operational credibility and inexperience.
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36 37
However, he made it in the light of ’the present
and likely future content, composition and intensity
of the culture of the police’ and because it would
widen the pool of available candidates ‘beyond
the very limited resource of serving chief inspectors
and inspectors’. The option of direct entry to the
superintendent rank is discussed in Chapter 5.
4.4 Stakeholder Engagement
Views of the Policing Authority
The Policing Authority said that it was crucial
that entry be opened up at all levels to trained
and qualied police ocers from other policing
services, particularly leadership ranks, to help
generate pace and depth around change and
modernisation. It also suggested direct entry to
inspector and superintendent levels. The current
Garda Síochána promotion model presumes that
policing knowledge and experience is a given. The
Policing Authority suggested that there is much to
be oered by reversing this in appropriate cases
by recruiting skilled managers and leaders and
giving them the necessary training in policing,
which would bring in new skills and experience,
widen the talent pool from which leaders can
be selected and allow a focus on the need for
excellent leadership skills.
Views of Garda Associations
In regard to direct entry at mid to higher levels,
the GRA pointed to the educational and age
prole of recent recruits, many of whom have
third level qualifications and previous career
experience. It said that experience at the rank of
garda is essential to ensure that managers have a
grounding in and understanding of what front-
line operational policing entails. This cannot be
gained elsewhere. It suggested that leadership
programmes to identify and nurture future
potential leaders should be developed. It noted
that the Scottish Justice Secretary had recently
rejected direct entry to inspector/superintendent
levels because such recruits would not have
policing experience. The GRA submitted that a
grounding in policing, obtained at garda rank, is
essential to critical real time decision making by
senior ranks.
The GRA and AGSI said that reducing career
opportunities for existing members at sergeant
and inspector levels would have a negative
impact on morale. AGSI said that if there is to
be a move to expand the pool of eligible ocers,
there should be reciprocal arrangements with
other police services, allowing skills transfer in
both directions. It would have no objection to
experienced police ocers being recruited if they
are in addition to the authorised complement.
On direct entry of non-policing professionals, it
argued that any such recruitment should be to
specialist roles in support functions and ‘in as far
as possible be conned to assistant commissioner, i.e.
executive director positions’.
The Inspectorate met with the Public Service
Executive Union (PSEU) and Association of
Higher Civil and Public Servants in the context of
preparing this report. In its submission, the PSEU
advocated direct entry for garda sta to be able
to apply for posts of trainee inspector and trainee
superintendent. It contended that many garda
sta have the necessary qualications, attributes
and skills to be appointed to many jobs in the
Garda Síochána.
4.5 Options for New Entry
Routes at Mid-level Ranks
The Inspectorate considers that the mid-level
ranks have considerable potential to inuence
culture change. The Changing Policing in Ireland
(2015) and Crime Investigation (2014) reports
highlighted issues around insucient levels of
supervision in the Garda Síochána.
In this context, the overriding issue for the
Inspectorate in assessing possibilities at mid-
level is how to support the Garda Síochána to
increase capability and diversity. Strategies to
diversify recruitment at garda level will feed into
diversication of the mid-level ranks in due course
as gardaí are promoted. However, in considering
ways to help accelerate diversication in these
ranks, the Inspectorate has critically examined
ve separate options.
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38 39
Option 1: Entry at sergeant level by ocers
qualied at sergeant equivalent level in
other police services
The Inspectorate has not found any evidence of
ranking ocers retaining their promoted rank on
transfer into another police service, other than in
the case of transfers between police services in
England and Wales. Notably, Police Scotland does
not accept transfers on promotion and has only
occasionally accepted in-rank transfers. The PSNI
does not accept transfers above constable level.
The recruitment of suitably trained and
experienced policing supervisors could help
to influence the development of the intrusive
supervisory culture that the Inspectorate
has previously recommended. However, the
Inspectorate has identied a number of challenges
to devising a system to recruit sergeants from
abroad. There is no readily recognised equivalency
between police ranks internationally (although in
practice there is a general similarity in the roles
performed by sergeants in the UK and Ireland).
A process would be necessary to conrm such
equivalencies of rank across disparate police
services if automatic recognition was to be given
to the rank of sergeant or equivalent in another
police service. Secondly, if the sergeant rank was
to be designated as an entry point, it would seem
right that a candidate would need to pass the
internal sergeants examination. This could be
dicult to navigate for a potential applicant.
An inter-jurisdictional process to recognise
equivalency of ranks would be complex to design.
If it is to be done, it might best be done in the
context of reciprocal arrangements with other
police services and we return to this point in the
discussion of reciprocal arrangements with the
PSNI below.
As a general principle, the Inspectorate considers
that as the sergeant is the rst line supervisor, it is
important that applicants have broad experience
of policing in Ireland and an understanding of
communities. In this context, it is critical that
new sergeants are trained and supported in the
supervisory aspects of the role.
Having considered all aspects of this option, the
Inspectorate does not propose the recruitment of
experienced ocers who are serving at sergeant
equivalent level in other jurisdictions.
It considers that the most practical approach
would be to direct such ocers who are interested
in joining the Garda Síochána to entry at garda
rank, on the understanding that, if appointed,
they will be eligible to compete for sergeant
after 12 months’ satisfactory service. This was
referred to in Chapter 3 and the proposal would
see experienced police officers available for
promotion after one year’s service. They could
also be referred to the Direct Entry Inspector
programme proposed below.
Option 2: Entry at inspector level by
ocers qualied at inspector equivalent
level in other police services
The Inspectorate considers that similar
issues regarding equivalency and reciprocal
arrangements arise at inspector level. The
Inspectorate, therefore, does not propose the
recruitment as inspectors of experienced ocers
who are serving at inspector equivalent level in
other jurisdictions. Any such interested ocers
could be directed to the Direct Entry Inspector
programme proposed below. The Inspectorate
considers that the approaches discussed in the
following sections are more likely to advance
diversity in the mid-level ranks.
Option 3: Extension of reciprocal
arrangements with the PSNI to the
sergeant and inspector ranks
The reciprocal bilateral arrangements that have
been implemented by the Garda Síochána and
the PSNI relating to senior appointments above
superintendent rank are provided for in the 2002
Intergovernmental Agreement on Police Co-
operation, which is discussed in Chapter 5. They
are the only inter-jurisdictional arrangements
relating to policing appointments identied by
the Inspectorate.
In the context of policing requirements and
most especially having regard to the possible
implications of Brexit, the Inspectorate considers
that it would be beneficial to review the HR
elements of the Cross Border Policing Strategy
(Department of Justice, Department of Justice
and Law Reform, PSNI, Garda Síochána, 2010),
in order to encourage mobility.
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38 39
This commits to practical co-operation and
to maximising the effectiveness of personnel
exchanges and secondments.
The Inspectorate considers that there is a special
case to be made for bilateral arrangements
between the Garda Síochána and the PSNI for
appointments to sergeant and inspector ranks,
given that such arrangements already operate at
the higher ranks.
New extended reciprocal arrangements with
the PSNI could enable ocers in both services
to participate in the competitive sergeant and
inspector appointment processes in the other
service. This would signicantly broaden the pool
of sergeants and inspectors and introduce more
cross-fertilisation of experience. It could be argued
that the Garda Síochána could lose members to
the PSNI as well as gain new members but overall
the Inspectorate considers that such mobility
would be a good development in terms of the
issues of culture, diversity and openness to new
ideas which are the focus of this review.
The Inspectorate sees practical issues that would
need to be addressed to accommodate the dierent
promotion systems and assessment arrangements
that operate in the two organisations. Amongst
the issues that would need to be addressed are
whether candidates for promotion to sergeant or
inspector from the PSNI would have to pass the
sergeant or inspector examination and interview
and, in the case of sergeant, an Irish language test.
There may be similar issues on the PSNI side.
Amendment to the Garda appointment and
promotion regulations would be necessary. Such
a scheme, if agreed, would need to be supported
by an appropriate familiarisation and induction
programme in addition to the training normally
provided by the Garda Síochána to new sergeants
and inspectors.
The Inspectorate recognises that this option
potentially needs further discussion and
consideration in the context of a review of the
reciprocal arrangements generally.
As a rst step to greater mobility, the existing
arrangements relating to exchanges and
secondments, which are discussed in Chapter
5, could be promoted in order to provide
development opportunities and exchange of
knowledge. This would also help to ascertain
interest in mobility between the two organisations.
The Inspectorate considers that if a reciprocal
scheme with the PSNI for sergeants and
inspectors was implemented, it could open up
the possibility of seeking similar arrangements
with other jurisdictions in the future. At present,
there does not appear to be an international
context or a demand for reciprocal arrangements
between police services internationally regarding
appointments. For example, within the EU, police
appointment arrangements are considered to be
matters for national determination.
Option 4: Direct Entry Sergeant
The Singapore Police recruits direct entry
sergeants without prior policing experience,
giving them six months’ residential training.
The curriculum includes lessons in criminal law,
physical training, community policing, as well
as leadership development. The Inspectorate
has not found any other examples of direct open
recruitment to policing at sergeant level.
The general case for direct entry to policing
beyond the traditional entry level is to broaden
and diversify the recruitment base in terms of
experience, perspectives and background. The
Inspectorate has noted that in the Civil Service
there is now open recruitment to the rank of
Higher Executive Ocer.
A Garda Síochána sergeant is a rst level police
supervisor, which is a unique supervisory role.
The Inspectorate agrees with the view outlined
in the New Zealand Police Plan (referred to
above) that the rank is ‘critically important to
achieving Police’s strategy’. As already indicated,
the Inspectorate considers that it is important
that sergeants have broad experience of policing
in Ireland and an understanding of communities
here.
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40 41
Experience in England and Wales shows that
the introduction of direct entry programmes
requires considerable investment to develop
the recruitment and training schemes and to
evaluate them. The Inspectorate considers that
to justify such investment, the development
of direct entry needs to be at such a rank as to
have the maximum impact to eect change at a
cultural and organisational level. While direct
entry at sergeant level is, of course, an option, the
Inspectorate considers that direct entry at a higher
rank would have more organisational impact.
There are also practical and capacity issues. For
example, any direct entry programme for sergeant
may involve a residential training period such as
operated for garda recruits. This may put pressure
on accommodation and facilities in the Garda
College. The Inspectorate has also considered the
practicality of being able to exclude serving gardaí
from such a process and concluded that it would
not be possible to do so having regard to fairness
and equality. Unless the entry programme could
ensure greater diversity of skills and experience
compared with the current sergeant recruitment
base, the Inspectorate sees little benefit in
proceeding with this type of programme.
Option 5: Direct Entry Inspector
Operation of the English and Welsh programme
Following the Winsor Report and a Government
consultation, the Direct Entry Inspector
programme was launched in England and Wales
in 2016. It lasts 24 months. The recruitment
material for the programme is aimed at those with
middle management experience ‘who are ready
to tackle their biggest challenge yet’. It emphasises
the challenging nature of the programme,
the unpredictability of police work and the
responsibilities at management and leadership
levels. Applications are considered from people
over the age of 18 (at the time of application) and
while there is no upper age limit, applicants are
advised that the compulsory age of retirement for
a police inspector is 60 years.
The College of Policing says that the Direct Entry
Inspector programme opens up a second direct
entry point into policing for individuals who
bring a diversity of experience, perspectives
and backgrounds to support the continuous
development of policing (the other one being
Direct Entry Superintendent discussed in
Chapter 5). The training programme has been
designed to equip these new inspectors to make
the transition from a current leadership role to
police leadership. Training includes 20 weeks in
the College of Policing and operational rotations
at the constable, sergeant and inspector ranks,
the latter accounting for 70% of training. Pay and
rank is at the inspector level from the outset of the
programme at which point recruits are attested
with constable powers.
Participation in the scheme by the 43 police
services in England and Wales is optional. The rst
competition took place in March 2016 and nine
services initially participated. The Inspectorate
was told that a total of 1,647 applications were
received, resulting in 18 appointments and this
cohort are due to complete the programme in
September 2018. For the 2017 intake, 20 of the 43
police services took part.
In the HMICFRS 2016 national overview of police
leadership referred to earlier, it was noted that
‘although recruitment through these schemes only
aects a small proportion of the workforce, commitment
to them nonetheless demonstrates an appreciation of
the need to be more receptive to talented leaders from
diverse backgrounds’.
An evaluation of the Direct Entry Inspector
programme is due to be completed by the College
of Policing in 2019.
Adapting a programme for Ireland
The Inspectorate considers that the option of direct
entry to inspector rank has merit in that people
with high level leadership and management
skills who did not consider policing as an entry-
level career could be recruited. However, it is not
simply a question of recruiting people with the
required leadership and management skill set, as
suggested by the terms of reference.
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40 41
Such mid-level recruits would need to be trained
to be competent inspectors and, as in England and
Wales, this would need signicant commitment
and investment. However, a programme of
direct entry would broaden the experience base
of the next generation of the organisation’s
leadership and give the Garda Síochána access
to a diverse range of leaders and managers who
have experience in other sectors. A direct entry
option at inspector, unlike at sergeant, would be
at a level where new direct entrants will be able
to positively influence Garda culture through
dierent approaches learnt in other sectors.
The Inspectorate considers that the inspector rank
is a key rank within the Garda Síochána. Inspectors
have considerable inuence over others and can
exercise this at all levels. It is also the rank from
which superintendents, chief superintendents and
assistant commissioners are currently recruited.
For these reasons, the Inspectorate believes that
it is the rank which would most benet from a
direct entry programme in terms of enhancing
the diversity and capability of current mid-level
leadership. This would also broaden the base from
which superintendents and more senior ranks are
promoted.
A direct entry programme, open to high calibre
candidates, would be targeted at individuals
with leadership and management experience in
organisations outside the Garda Síochána. The
aim would be to:
Open up entry to the Garda Síochána to
people with managerial and leadership
experience who would bring dierent
perspectives and experience to policing;
Recruit direct entrants who would support
existing Garda Síochána leaders to bring
about fundamental, positive changes to
Garda culture;
Bring into policing new members with
leadership skills that would inspire
condence in colleagues, senior ocers and
the public; and
Provide a development programme that
would ensure that direct entrants are
equipped with the necessary skills to be
highly competent as inspectors with the
potential to progress to more senior roles.
It will be critical to the success of a programme
that it is appropriately challenging in its selection
and training to meet these objectives and that it be
the subject of appropriate evaluation.
The Inspectorate considers that this type of
programme has the potential to be a catalyst
for broader organisational and cultural change.
Therefore, it should be viewed in the context of a
long-term strategy for leadership development. In
Changing Policing in Ireland (2015), the Inspectorate
recommended that the Garda Síochána develop
a talent management strategy to identify and
develop leaders for the future.
In the UK, a Fast Track Inspector programme,
open to capable internal candidates, is a two-year
programme to develop ocers with the skills,
experience and capacity to reach the senior ranks
of the service. The Inspectorate considers that the
development of a similar accelerated progression
programme for promotion to mid-level rank could
be part of such a strategy.
Although the evaluation of the UK direct entry
programme has not yet been completed, the
Inspectorate was impressed with the programme
and the calibre of participants on its visit to the
College of Policing. The Inspectorate would like
to see the planning of a similar programme in
Ireland proceeding and this could take account
of any learning from the England and Wales
evaluation in 2019.
4.6 Issues Potentially Arising
in Relation to the Option
of a Direct Entry Inspector
Scheme
Need for Detailed Planning and
Ownership of the Programme
The programme in England and Wales is based
on detailed planning and evaluation around the
recruitment, training, assessment and ongoing
development of the cohort. The demanding
nature of the selection process is shown by the
attrition rate with 18 appointments made from
1,647 applications in 2016.
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42 43
A critical challenge to the development of a direct
entry scheme in Ireland will be that there is no
independent body to champion it, develop it,
safeguard standards and oversee evaluation. In
England and Wales, the College of Policing, as an
independent body, is responsible for developing
the professional standards of policing in that
jurisdiction and fulls that role. In the absence
of an independent champion, the support of
all stakeholders, including Garda Síochána
management and staff associations, would be
critical and it would need to be championed by
the Garda College, with external oversight.
Costs
There will be significant costs in advancing a
direct entry programme because of the substantial
marketing and training element. The College of
Policing informed the Inspectorate that the Home
Office provided £5m funding for marketing,
college costs and to enable the College to make
grants to the employing police services to cover the
direct entry recruits’ salaries for both the inspector
and superintendent programmes. The College
estimates that the cost per head for training for
Direct Entry Inspectors is about £30,000.
Based on the costs in England and Wales, the
Inspectorate estimates that the cost of a Direct
Entry Inspector programme could be in the region
of €2m per annum including salaries.
How the Recruitment Processes might
Operate
A Direct Entry Inspector programme should aim
to attract individuals with experience and track
records as mid-level managers in other professions
and sectors from outside of the Garda Síochána.
It could also be targeted at ranking police ocers
in other jurisdictions, who have leadership and
management credentials.
In England and Wales, candidates for direct
entry are advised to complete a self-assessment
questionnaire designed to help them see if
they have the potential to be successful on the
programme. The candidate is then encouraged
to create an action plan to help their own
development. This will assist in completing the
application and if successful at that stage, it will
help prepare for attendance at an assessment
centre.
The National Assessment Centre evaluates ability
to perform competently in the rank of inspector
within two years and at superintendent rank
beyond that. The process is demanding and takes
place over two days. The assessment exercises
have been generated from research into the
leadership challenges facing the police service and
reect tasks that a senior police ocer performs.
They consist of:
An oral brieng;
Written in-tray exercises;
Performance management exercises;
A meeting with policing partner agencies;
Presentation and interview;
Cognitive ability tests (verbal, numerical and
inductive reasoning); and
A values exercise.
In Ireland, the PAS has extensive experience of
running graduate level campaigns, for example,
the administrative officer in the Civil Service
and third secretary in the Department of Foreign
Aairs and Trade. In whatever form assessment
takes, the Inspectorate considers that it should be
demanding in order to evaluate suitability and
potential to progress to at least superintendent
rank.
The Inspectorate considers that leadership and
managerial competency would be the key criteria
in recruitment. To encourage diversity in the
applicant pool, a similar approach to that proposed
in Chapter 3 for garda rank should be taken and
the upper age limit and the requirement for two
languages should be modied. As the applicant
pool will consist of people with management and
leadership experience generally, it will be broader
than that in the case of experienced police ocers.
Therefore it may not be necessary to make a case
for eligibility to be open to citizens outside of the
EEA.
It is envisaged that successful candidates would be
recruited as inspectors and be on probation for the
duration of training. They would be attested with
Garda powers at the outset, as is the case in the
programme in England and Wales. They would
wear the insignia and be paid as inspectors from
when they enter training.
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Training Requirements
To support the scheme, the Inspectorate considers
that a training programme similar to the Direct
Entry Inspector scheme in England and Wales
would be essential.
The College of Policing informed the Inspectorate
that the Direct Entry Inspector programme was
developed through a consultation process carried
out by the College of Policing with police focus
groups, representative bodies and College sta.
It is of 24 months’ duration and is accredited
by Teeside University as a level 7 postgraduate
certicate. Programme members are subject to
a probationary period for the duration of the
programme. They spend 70 to 80% of the time
on in-service rotation working through the
ranks from constable to their substantive rank
of inspector. There is 20 weeks’ training with the
College of Policing over a number of modules,
which prepares participants for the various stages
of the programme and the operational rotations.
Modules specialise in areas critical to the various
roles ranging from constable powers, supervisory
skills for sergeant and areas critical to the role
of inspector such as performance management,
decision making, critical incident management
and partnership working.
Participants are prepared for the standard
inspectors’ promotion examination. If they fail,
they get one opportunity to re-sit it by taking the
standard examination the following year. There
are regular assessments and they are required to
produce and maintain a personal development
plan. Tutor and mentor support are highlighted
as important features of the programme. Other
elements which give academic rigour to the
programme include:
Action research which entails a 4,000-word
dissertation on a community policing project
as well as the work-based assessments; and
A 2,000-word reective account of their
experiences.
This type of training model is also provided in the
Netherlands to graduate recruits where training
in the academy is interspersed with work-based
assignments and assessments. However, all
ocers compete for promotion on the same basis
with no accelerated scheme.
In France, in the case of direct recruitment to
inspector level, there is an 18-month course
consisting of 12 months in the training college and
six months on work-based assignments in various
police roles and areas. After six months’ training,
the student ocer becomes a stagiare (intern) and
after a further year of satisfactory training, they
are established as inspector. Training consists of
general instruction in command and management,
criminal law and procedure and human rights.
Specic training includes policing techniques,
public order, use of arms and communications.
The England and Wales model described is one
possible training model which would support a
Direct Entry Inspector scheme. For the scheme to
work in Ireland, it would need to be adapted for
the Garda Síochána with the aim of developing
the knowledge and competencies for policing and
to prepare for leadership level. Active service in
the garda and sergeant ranks during the two-
year training period will be essential to foster the
credibility of these new inspectors.
The Inspectorate broadly envisages a preliminary
year when inspectors will complete an accelerated
Garda Recruit Foundation course, covering all the
core elements of the three phases of the current
foundation training. Appropriate exemptions
should be granted for relevant prior learning and
experience and this would apply in particular to
those with police ocer experience abroad. The
emphasis would be on experiential learning and
acquiring on-the-job experience. At the end of this
phase and in order to proceed further, those on the
scheme will need to have:
Achieved the learning objectives of the Garda
Recruit Foundation course;
Performed eectively as a garda; and
Demonstrated readiness for promotion to
sergeant and suitability for progression to
inspector.
Training would need to be a blend of classroom,
experiential and on-the-job learning with regular
assessments against the competences of the role,
supported by personal development plans and
mentoring.
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44 45
The second year would consist of training to
prepare for the sergeant role and assignment
as a sergeant, followed by preparation for the
inspector role. Mentor and coaching support
would be essential at all stages of this challenging
police leadership programme.
4.7 Inspectorate’s Assessment
on New Entry Routes at
Mid-level
The sergeant and inspector ranks are key ranks
in the Garda Síochána with both an upward and
downward focus and inuence. The Inspectorate
considers that the possible widening of the pool
of potential candidates for sergeant and inspector
through an extended PSNI scheme could help
to enhance the diversity of the mid-level ranks.
It is acknowledged, however, that there are
practical issues which will need to be addressed
in order to advance this. In the meantime, the
existing arrangements relating to exchanges and
secondments, which are discussed in Chapter 5,
could be further promoted in order to ascertain
interest in mobility between the two organisations.
Successful operation of reciprocal arrangements at
mid-level ranks with the PSNI could provide the
basis to consider the possibility of seeking similar
arrangements with other policing jurisdictions.
The proposed Direct Entry Inspector programme
will require considerable investment to develop
and implement it successfully. However, the costs
need to be set against the potential benets of
diversifying the cohort in the inspector rank. The
Inspectorate considers that it is an option which is
potentially transformative and would like to see
planning for this being prioritised because of its
innovative nature. It should be brought forward
in the context of a talent management strategy
that would provide for accelerated promotion to
inspector rank.
Proposal 6
That similar reciprocal arrangements as
exist for senior appointment processes in
the PSNI and Garda Síochána under the
Intergovernmental Agreement on Police
Co-operation be developed to allow access
to the sergeant and inspector promotional
processes in both jurisdictions.
To achieve this, the following will need to be
considered:
The promotion processes in both
jurisdictions to be examined in order to
identify the practical issues involved and
how they might be addressed;
Appropriate training to support such a
scheme would need to be developed;
Review the 2010 Cross Border Policing
Strategy to give renewed focus on the
bilateral arrangements;
Exchange and secondment opportunities
at sergeant and inspector levels to be
promoted to help develop awareness
of opportunities and for exchange of
knowledge; and
Amendment of the Garda Síochána
Act 2005 and Garda appointment and
promotion regulations.
Proposal 7
That the possibility of seeking reciprocal
arrangements with other police services
regarding appointments be explored
following the implementation of extended
arrangements between the PSNI and Garda
Síochána.
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44 45
Proposal 8
That a Direct Entry Inspector programme
to attract candidates with appropriate
leadership and management experience in
organisations outside the Garda Síochána
be developed.
To achieve this, the following will need to be
considered:
Planning for a Direct Entry Inspector
programme to be commenced and
take account of the evaluation of the
corresponding programme due to be
completed in England and Wales in 2019;
The need for independent governance
arrangements and expertise in the
development, delivery and evaluation of a
programme;
Engagement with stakeholders in order to
help create an environment conducive to
supporting the programme;
The development of an internal talent
management strategy to include an
accelerated progression programme for
promotion to inspector; and
Amendment of the Garda appointment
and promotion regulations.
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5
Chapter 5
Entry at the Senior
Leadership Level
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48 49
5.1 The Current Situation
Eligibility
Appointment to superintendent, chief
superintendent (and assistant commissioner
which is discussed in Chapter 6) is governed by
the Garda Síochána Act 2005 (Appointment to
the ranks of Assistant Garda Commissioner, chief
superintendent and superintendent) Regulations
2016. The Policing Authority is now responsible
for running these promotion competitions and for
making the appointments. Regulation 7 provides
that the following persons are eligible to apply
for a competition for appointment to these ranks:
(a) a member not below the rank of inspector who
has served not less than two years in that rank on
the date on which the competition commences;
(b) a member of the PSNI not below the rank of
inspector who has served not less than two years
in that rank on the date on which the competition
commences.
Prior to these new Regulations, promotion was
only possible from the rank immediately below.
This eectively introduces the possibility of fast
track promotion to the senior leadership ranks but
there is no formal development programme prior
to promotion to support it.
The PSNI and Garda Síochána Bilateral
Arrangements
Following the Good Friday Agreement, the Irish
and British Governments signed an Agreement
on Police Co-operation on 29 April 2002. This
provided a framework for the implementation
of recommendations which had been made
by the Independent Commission on Policing
for Northern Ireland on enhancing police co-
operation. Article 1 of the agreement dealt with
eligibility of members of the Garda Síochána
and PSNI to apply for posts above the level of
inspector in each other’s police services, while
Article 2 dealt with secondments and Article 5
dealt with personnel exchanges.
14 Section52oftheGardaSíochánaAct2005andGardaSíochánaAct2005(PoliceServiceofNorthernIrelandAppointments)
Regulations2012andtheGardaSíochánaAct2005(Section52)Regulations2012
This Agreement came about in the particular
context of policing in Northern Ireland and is an
exception internationally.
The Garda Síochána Act 2005 is the enabling
legislation for these provisions (incorporating
the provisions of the Garda Síochána (Police Co-
operation) Act 2003) along with Regulations made
in 2012.
14
The legislation expands the pool for
appointment to the ranks of superintendent, chief
superintendent and assistant commissioner in the
Garda Síochána to eligible members of the PSNI.
In the most recent processes conducted by the
Policing Authority, two members of the PSNI out of
79 applicants applied for the chief superintendent
process, and six PSNI members applied for the
superintendent process out of 96 applicants. These
gures show a slight increase on previous years.
No applications were received from members
of the PSNI for the most recent competition for
promotion to the rank of assistant commissioner.
In 2014, one PSNI inspector was successful and
was appointed as a superintendent in the Garda
Síochána. Another inspector was successful in
2015 but did not take up appointment. In the 2017
competition for superintendent conducted by the
Policing Authority, two PSNI ocers were placed
on the panel.
Assessment of the Bilateral Arrangements
The terms of reference for this review ask the
Inspectorate to identify factors inuencing the
limited impact of the arrangements. It appears
to the Inspectorate from discussion with
individuals who have considered or partook
in the process that the factors influencing the
limited participation to date are around perceived
pension losses. In addition, the schemes have not
been proactively promoted and there has been
diculty in accessing information and support for
transferees and families prior to, during and after
a move (in regard to everyday issues relating to
living in the jurisdiction such as taxation, housing
and education).
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48 49
The Inspectorate’s assessment is that the ocers
attracted to this scheme are generally in the nal
years of their service, are enrolled in a nal salary
pension scheme and are in the fast accrual years
of their pension when each year counts as double.
As discussed earlier, the PSNI and other UK
police pensions were nal salary dened pension
schemes prior to April 2015. The eect of these is
to provide police ocers with a nancial incentive
to stay in the police service until they have reached
full pensionable service (at 30 or 35 years), but
little incentive to stay beyond that (Crawford,
Disney and Simpson, 2016). The Inspectorate has
been told by individuals who have considered a
move and who are in the fast accrual period of
nal salary dened pension schemes of potential
losses in the region of £80,000–£90,000 from the
nal lump sum in the event of early retirement. In
2015, the police nal salary pension scheme closed
and was replaced by a new career average scheme
model.
The effect is that a move from the PSNI to
the Garda Síochána is only likely to appeal to
somebody who, as a member of the nal salary
scheme, has completed full pensionable service in
the PSNI. On the other hand, pensions are unlikely
to be an issue for an ocer who is relatively junior
in service, is enrolled in the career average scheme
and has the potential to accrue pension benets
from the Garda Síochána pension scheme. These
ocers, of course, are unlikely to be in the senior
ranks.
Another possible factor is that unlike normal
transfers on promotion within the service, the
Inspectorate was told that the relevant regulations
have been interpreted to mean that removal
expenses are not payable to an ocer transferring
from the PSNI. Concerns around personal safety
may also be a factor.
These arrangements between the Garda Síochána
and the PSNI are exceptional internationally and
could be considered to be the only example of
inter-jurisdictional practice.
As indicated earlier, the Inspectorate considers
that it would be timely to review the HR elements
of the 2010 Cross Border Policing Strategy in
order to give a renewed focus on the bilateral
arrangements and increase their impact.
Secondment and Exchange Scheme
As part of the bilateral arrangements, the
secondment and exchange scheme with the
PSNI is a way of improving awareness of
opportunities and achieving policing benets.
Secondments and exchanges of police officers
between dierent jurisdictions are very eective
in promoting relationships and joint working.
They provide opportunities for development and
new experience and for the cross-fertilisation of
ideas and perspectives about policing practices.
They also represent an opportunity to experience
policing in another jurisdiction.
In February 2005, the Garda Commissioner
and the Chief Constable of the PSNI signed
protocols which provide a framework for the
implementation of a programme of personnel
exchanges and secondments between the Garda
Síochána and the PSNI. Exchanges do not involve
the exercise of police powers and take place for
periods of between one and two months in the
host jurisdiction.
A total of 102 members of the Garda Síochána
and 93 members of the PSNI have taken part in
exchanges under the protocols.
The exchange programme has been successful
with exchanges taking place across the whole
spectrum of policing including training, human
resources, general operational policing and
specialist areas. There were no exchanges in 2017.
The Modernisation and Renewal Programme
indicates that there will be a commitment to
exchanges with other police services to expand
skills and knowledge.
Sections 53 and 54 of the Garda Síochána Act 2005
provide for secondments which allow for the
exercise of police powers in the host jurisdiction.
The arrangements apply to inspector rank and
above. Members on secondment remain in their
pension scheme and there is no break in service.
In 2010, a superintendent from the Garda Síochána
was seconded to the PSNI for 12 months. There
have been no secondments from the PSNI to
the Garda Síochána in the last three years. The
Inspectorate considers that secondments are a
positive way to promote diversity and to broaden
experience.
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50 51
The Inspectorate considers that secondments
and exchanges could be used strategically by
the Garda Síochána to enhance opportunities for
development. This was referred to in Chapter 4
and could include where ocers have gained
unique experience in a niche discipline that could
benet the other agency, e.g. the investigation
of child sexual abuse, cybercrime or organised
crime gangs, or policing of major sporting
events. In this context, consideration could be
given to revisiting the agreement with the PSNI
governing secondments and exchanges in order to
secure momentum and traction for the processes
which need to be supported by clear policies and
advocacy for the organisational value the scheme
can bring. This could include reviewing ways to
enhance the attractiveness of a secondment.
Secondments to Other Organisations
Consideration could also be given, in the context
of a talent management strategy, to arranging
secondments with other organisations in both
the public and private sectors. On its visit to the
College of Policing, the Inspectorate was told that
the College is piloting a secondment programme
for mid-level leaders to give them an opportunity
to spend time in a dierent organisation or sector
in order to develop leadership skills which they
can bring back into policing.
5.2 International Practice
As indicated earlier, individual police services in
the UK are increasingly opening their appointment
processes to candidates serving in other UK
police services. Appointment can take the form
of either promotion to the next rank or in-rank
transfer. Police Scotland advertises in England
and Wales (through the College of Policing) for
superintendents and chief superintendents. The
PSNI promotion procedures allow for applicants
to chief inspector, superintendent and chief
superintendent to apply from England and Wales,
Scotland and the Garda Síochána. To be eligible
for promotion to superintendent in the PSNI, an
applicant must have a minimum of two years’
substantive service in the rank of chief inspector,
a rank which does not exist in the Garda Síochána.
As also already pointed out, in many European
jurisdictions the police is effectively split
into commissioned and non-commissioned
officer bands. In France, half of the recruits
to commissaire (superintendent) are external.
Overall, the Inspectorate has found that the
general international practice is that appointments
at senior levels are made through internal
promotion processes, supported by leadership
and management development.
The Inspectorate’s review of international practice
does not reveal any one single model of best
practice. A study published in the European Police
Science and Research Bulletin conrms this, pointing
out that rank equivalence does not properly exist
across police systems and that police leaders are
developed and promoted in dierent ways across
Europe (Caless and Tong, 2015).
5.3 Stakeholder Engagement
Views of the Policing Authority
The Policing Authority noted that it had
previously recommended to the Department
that the relevant regulations for promotion
to the senior ranks should provide for open
recruitment to these ranks, continuing the
practice established by Government whereby the
selection competitions for Garda Commissioner
and Deputy Commissioner have been opened to
candidates with appropriate experience. It also
emphasised, as noted earlier, that it is crucial
that direct entry be open to dierent levels of
the organisation, particularly leadership ranks
to help generate pace and depth around change
and modernisation. It said that such schemes
serve to widen the talent pool from which leaders
can be selected and allow a focus on the need for
excellent leadership skills.
Views of the Garda Associations
The AGSI said that it would have no objection to
experienced police ocers from other jurisdictions
being recruited at mid to higher ranks if they are
in addition to the authorised complement and
on the basis of reciprocal arrangements allowing
skills transfer in both directions.
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50 51
The Association of Garda Superintendents’
submission pointed to the importance of
developing district and divisional management
teams to include professional support and skilled
civilian personnel in the areas of nance, HR,
administration etc. In regard to direct entry into
the ranks of policing, it noted that the schemes in
England and Wales have not yet been evaluated. It
pointed to the potential of exchange opportunities
and the importance of qualications and training
for members, including the development of a
system of professional qualifications. It also
referred to the need to develop members for the
rank of superintendent, which should include
the opportunity to train and work with other
police services as well as pursuing academic
qualications.
5.4 Options for New Entry
Routes at Senior Ranks
In considering ways to broaden the pool of eligible
candidates for the superintendent and chief
superintendent ranks, the Inspectorate examined
a number of options.
Option 1: Entry at superintendent and chief
superintendent level by suitably qualied
ocers in other police services
The chief superintendent and superintendent
roles revolve around leadership, command and
managing the delivery of policing services and
policing operations. They entail strategy, business,
human resources and stakeholder management in
the policing context and are also most importantly
senior operational leaders who are responsible for
the management of high risk policing activity.
The most recent PAS Candidate Information
Booklets specied that candidates for both ranks
must have a breadth and depth of policing
experience and a sound understanding of the
law and of policing issues, amongst other general
requirements. The Inspectorate considers that
these requirements are appropriate, given the
complex policing nature of both roles. In the view
of the Inspectorate, only experienced policing
professionals will have the required skill set for
the superintendent roles without undergoing
substantial training in core policing skills.
In the following section, the question of whether
candidates without policing experience could be
trained for the role is considered in relation to the
option of Direct Entry Superintendent
Broadening the candidate base for appointment
to chief superintendent and superintendent
beyond the Garda Síochána and the PSNI to police
ocers in other jurisdictions would open up the
possibility of recruiting experienced police ocers
who:
Have proven track records in leading and
managing policing and the operational
command of police ocers;
Have diverse policing experience in
jurisdictions where there have been policing
challenges which are now emerging in
Ireland;
Have experience of strategic and tactical
planning;
Have experience of managing policing
operations within nite resources; and
Have experience in developing policing
approaches that match demand for service
with available budgets.
At these levels, an ocer needs to have overall
competency in the management of policing
systems and people. He or she will need to
demonstrate consistency with the values of the
Garda Síochána in their track record as well as a
general understanding of Irish policing law and
practice.
The Commission on Public Service Appointments
has stated that it ‘believes the public interest is best
served when those appointed to public service positions
are selected from the broadest available candidate pool
following a merit based competitive appointment
process’ (CPSA, July 2011). It welcomed the trend
towards openly advertised appointment processes
for positions in the Civil Service and believed that
‘this will serve to broaden the talent pool available for
vital public service posts’.
The Inspectorate considers that opening up
eligibility to applicants with the appropriate
credentials in other police services would apply
this principle to the Garda Síochána.
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The Inspectorate notes the views of the Garda
associations that if opportunities for external
recruitment are to be provided, they should be on
a reciprocal basis with other services. As pointed
out earlier, reciprocal arrangements and rank
equivalency between police services are not under
discussion internationally. However, in the case of
senior ranks in particular, an eligibility criterion
based on equivalency would not be appropriate
as suitability for a post at these levels depends
critically on evidence of qualifications, skills,
experience and achievement. The Inspectorate,
therefore, considers that competition could be
opened up without reciprocal arrangements.
In this light, the Inspectorate proposes that there
should be an appropriate selection process to
evaluate applications from senior police ocers
in other jurisdictions who demonstrate substantial
command, leadership and management
experience. The Inspectorate envisages that the
recruitment procedures would focus on the skills,
competencies and experience needed instead of
specifying minimum service requirements in
specic police ranks.
In order to encourage diversity in the applicant
pool, as discussed in Chapter 3, it is considered
that as few limitations as possible should be placed
on nationality and residence with provision being
made for recruitment from outside of the EEA.
The Inspectorate considers that this is justied on
the grounds of the experience prole required at
senior level.
How recruitment of superintendents and chief
superintendents might operate
The approaches to be developed to support the
international recruitment of experienced police
ocers discussed in Chapter 3 will need to be
adapted to support international recruitment
campaigns for appointment of superintendents
and chief superintendents. This would include
proactive marketing using international policing
journals to attract candidates and engage with
them about the process. Information about life in
Ireland, public services and taxation issues will
need to be provided.
The Inspectorate considers that the cohort that
would be attracted by a senior position in the
Garda Síochána are ranking police ocers, with
substantial career experience, who may wish to
come to Ireland for personal or career reasons.
Incentives to be highlighted would include
promotion and development opportunities in
an expanding service. In order to successfully
recruit at this level, consideration of issues such as
assistance with relocation expenses would need to
be included. The preliminary selection processes
would need to be demanding in order to evaluate
the candidate’s experience and qualifications
portfolios.
Training
Newly appointed superintendents and chief
superintendents undertake the Garda Síochána
senior management programme. The Inspectorate
envisages that those recruited externally would
also complete this training programme as well as
a skills gap analysis and prior learning evaluation
to assist in assessing training requirements on an
individual basis. Arrangements are already in
place to support superintendents joining from the
PSNI and these could be adapted to the individual
circumstances of new appointees. The pre-read
material for experienced ocers, the development
of which is proposed in Chapter 3, would be an
essential resource for them.
Option 2: Direct Entry Superintendent
UK experience
Following the Winsor Report in the UK, the Direct
Entry Superintendent programme was launched
in 2014. It is aimed at those with senior leadership
experience. Serving police ocers may apply but
the website for the programme recommends that
they should seek promotion via the regular in-
service processes. Participation by police services
is optional and 20 of the 43 police services in
England and Wales participated in the 2017 intake.
There is a considerable attrition rate between
application and appointment. While 867 people
applied for the first intake, only nine were
appointed, with eight graduating in 2016. In 2015
and 2016, the number of applicants was 756 and
640 respectively, with six and eight respectively
being appointed.
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On a visit to the College of Policing, the
Inspectorate noted that appointees are generally
in the age group of 30 to 50 years and have diverse
career backgrounds. Trainees progress through
the ranks incrementally, although they wear
the insignia of their substantive rank. They are
attested on day one in the police, before starting
the college modules.
In discussions with the College of Policing,
the Inspectorate was told that the Direct Entry
Superintendent programme aims to bring
exceptional leaders into the police to make an
immediate impact on culture, efficiency and
eectiveness. The programme is intended to create
cohorts that will have the potential to further
develop and acquire the skills and experience
to progress to assistant chief constable level.
Applicants are expected to have a proven track
record in improving organisational performance
and managing budgets, resources and sta.
The College of Policing told the Inspectorate
that in its preparation of the schemes it had not
found anything comparable in other jurisdictions.
While there have been significant numbers
applying, the numbers of successful candidates
appointed to and completing the programme are
acknowledged to be small. It is understood that to
address this, the College of Policing is intending to
take a more targeted approach in the employment
market to seek to attract the right candidates
with the necessary proles, experience and skills.
The programme is being formally evaluated in a
process which will be completed in 2019.
The Inspectorate was informed by Police
Scotland that the introduction of direct entry for
superintendent is not under consideration.
The recruitment process for direct entry
superintendents is broadly similar to that
described for direct entry inspector earlier.
Selection and training is intensive. Training lasts
18 months (shorter than the 24 months’ training
for inspector because of the less operational role).
It includes 14 months of rotations at constable,
sergeant, inspector and superintendent level (11
months of which consists of shadowing police
officers at every rank up to superintendent)
as well as classroom training at the College of
Policing.
Participants complete modules in a range
of subjects essential to the superintendent’s
leadership, operational and strategic role
including critical incident management, criminal
justice and crime, public protection, public order
and criminal investigations.
Direct entry superintendents sit a bespoke
law and procedure examination (as there is no
standard law and procedures examination for
promotion to superintendent). This focuses on the
role of the superintendent and police law around
criminal investigations. If a candidate fails twice,
probation is extended. They are also expected to
lead a community partnership project (writing
a 2,000-word brieng document) and launch an
initiative in their police service to improve the
way the service works (writing a 6,000-word
business improvement plan). In order to ensure
that they are on track to become a fully competent
superintendent within the 18- month programme,
they are expected to provide evidence of
competence against set criteria in ten work-based
assessments across the key competencies for the
role.
The option of developing a Direct Entry
Superintendent programme
‘Police-craft’ and ‘street awareness’ are clearly
vital attributes in policing, which officers at
senior levels need to possess. The Inspectorate
notes that the approach in the England and
Wales direct entry programmes is to provide
intensive training including rotations in the
ranks up to superintendent to give recruits this
experiential grounding. The numbers coming
through so far are small. However, feedback is
that the intensive selection and training provided
is producing candidates of real calibre who have
the potential to make a signicant contribution
to policing at leadership level, grounded in the
dierence in their experience. It is important to
note that there is no evaluation yet available as
to whether such new superintendents will be
successful in command positions without having
had operational experience in the inspector rank
over a number of years.
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A challenge facing the development of a
programme is whether sufficient knowledge
and on-the-ground experience of operational
policing can be learnt in an intensive 18-month or
24-month induction process to enable people to
perform capably as superintendents.
Whilst the Inspectorate sees merit in a direct entry
programme for superintendents, it is suggested
that the option be reconsidered when the UK
programme has been fully evaluated and in the
light of Irish experience of the proposed Direct
Entry Inspector programme.
5.5 Inspectorate’s Assessment
on New Entry Routes at
Senior Leadership Level
Events relating to policing that have featured in the
public domain point to the need for the prevailing
Garda Síochána culture to become more open. The
Inspectorate believes that this will require a more
diverse mix of experience and thought at senior
leadership levels. The changes introduced in 2017
to eligibility for appointment to superintendent,
chief superintendent and assistant commissioner
(now requiring two years’ service in the rank of
inspector, either in the Garda Síochána or the
PSNI) are welcome, as previously promotion was
only possible from the rank immediately below.
The Inspectorate considers that a balanced
recruitment strategy needs to go further than this
in seeking to attract a wider cohort of external
candidates in order to give the organisation the
greatest chance of nding the right person for
each job. This is now the general practice in other
parts of the public sector, notably the Civil Service,
where open recruitment to principal ocer and
assistant principal ocer levels is now the norm.
15
In France and other European countries, there is a
reliance on external graduate recruitment at mid
to higher ranks to form the leadership cadre but,
in common with policing services everywhere,
they also emphasise training, professional
development and promotion.
15 Followingarbitrationin2015,66%ofprincipalpostsand33%ofassistantprincipalpostsaresubjecttoopencompetition.Inaddition,
postsathigherexecutiveofcerlevelareopentoallcandidateswithtwoyears’serviceintheCivilService.
The innovations in England and Wales around
direct entry to superintendent seek to introduce
into policing the kind of mixed systems of internal
and open competition which have become the
norm in the public service in recent years.
In the circumstances, the Inspectorate proposes that
consideration be given to opening up recruitment
to superintendent and chief superintendent to
senior police ocers in other jurisdictions who
demonstrate substantial command, leadership
and management experience. It is considered
that the organisation’s dual mandate for policing
and security does not aect this proposal as all
successful candidates will have to satisfy security
clearance. Furthermore, no issues have arisen in
this regard in the operation of the PSNI bilateral
arrangements.
The Inspectorate also proposes that consideration
of the question of a direct entry programme
for superintendent be reassessed after the
implementation of the proposed Direct Entry
Inspector programme is fully evaluated.
This would also allow for the outcomes of
the evaluation of both of the UK direct entry
programmes and for any learning from these
initiatives to be taken into account. It would also
have regard to what is feasible to implement,
given the commitment and investment that would
be needed to develop the Direct Entry Inspector
programme.
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Proposal 9
That eligibility for appointment to
superintendent and chief superintendent be
extended to include senior police ocers in
other jurisdictions with appropriate skills
and experience.
To achieve this, the following will need to be
considered:
The requirements to compete for
appointment to chief superintendent and
superintendent should include substantial
command, leadership and management
experience in another police service;
Amendment of the Garda Síochána
Act 2005 and of the Garda Síochána
Act 2005 (Appointments to the ranks of
Assistant Garda Commissioner, chief
superintendent and superintendent)
Regulations 2016 and a review of the
statutory work permit scheme to facilitate
a competition which would be open to
experienced senior police ocers from
other jurisdictions, including from outside
the EEA;
Use of proactive recruitment approaches
and provision of information and support
to assist with relocation; and
In addition to general superintendent and
chief superintendent training, conducting
a skills gap analysis and prior learning
evaluation to assist in assessing training
requirements of successful candidates on
an individual basis.
Proposal 10
That the case for developing a direct entry
programme for superintendent be reviewed
after the implementation of the proposed
Direct Entry Inspector programme is fully
evaluated.
To achieve this, the following will need to be
considered:
Experience of operating the Direct Entry
Inspector programme;
Evaluation of the corresponding
superintendents programme in England
and Wales, due to be completed in 2019;
and
Evaluation of the outcomes of the
recruitment of experienced police ocers
from other policing jurisdictions.
Proposal 11
That the bilateral arrangements between
the PSNI and Garda Síochána that are
provided for under the Intergovernmental
Agreement on Police Co-operation relating to
superintendent rank and above be refreshed
and promoted.
To achieve this, the following will need to be
considered:
Proactive publication of the opportunities
presented by the appointment
arrangements;
Review of the secondment and exchange
arrangements in order to encourage
greater uptake; and
Development of clear policies
and advocacy for the professional
development and organisational value the
scheme can bring.
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6
Chapter 6
Entry at Assistant
Commissioner
(Executive
Level Leaders)
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6.1 The Current
Appointment Process
Appointment to assistant commissioner is open
to members of the Garda Síochána and the PSNI
with two years’ service in the rank of inspector or
above under the reciprocal arrangements with the
PSNI referred to in Chapters 4 and 5. The Policing
Authority is responsible for running selection
competitions and for making appointments. It is
worth noting that the most recent competitions
for commissioner and deputy commissioner were
open to people with a non-policing background
and placed no limitation on the countries which
could be applied from, with non-EEA applicants
welcomed.
6.2 International Practice
The Inspectorate has found that the general
practice internationally for appointments to levels
broadly equivalent to assistant commissioner is
that they are made on promotion from within the
police services in a particular jurisdiction.
In the UK, it is a requirement that candidates
for assistant commissioner equivalent level
have completed the Senior Police National
Assessment and the Strategic Command Course.
Recruitment is open to ocers serving in any UK
police service who have qualied under these
requirements. Scandinavian countries require a
Master’s qualication, preferably one involving
law. In France, appointment to equivalent
level (Controleur Général) is possible for chief
superintendents (Commissaire Divisionnaire) after
two years. These are discretionary appointments
by government.
In its desktop review of practices amongst
European police services, the Inspectorate has not
found any consistency in selection arrangements
other than that they are made from within the
police and that they generally require candidates
to demonstrate substantial evidence of career
achievement and professional development. In
some jurisdictions, appointments appear to entail
political considerations.
In England and Wales, following the Winsor
Review (2011), police services have had the
option since 2014 of opening recruitment to
chief constable to those who have served at
commissioner/chief commissioner and equivalent
levels in a common law jurisdiction which
practises policing by consent. The USA, Canada,
Australia and New Zealand were referenced by
Winsor. The recent competitions for commissioner
and deputy commissioner in the Garda Síochána
have therefore had a broader eligibility pool.
The Inspectorate has not found any other
evidence internationally of these types of wider
recruitment approaches being used at levels
broadly equivalent to assistant commissioner.
6.3 Stakeholder Engagement
The Policing Authority’s view is that promotion
to the senior ranks should provide for open
recruitment, continuing the practice established
by Government in the case of the competitions
for commissioner and deputy commissioner. The
most recent competitions for these posts were
open to people with a non-policing background
and placed no limitation on the countries which
could be applied from, with non-EEA applicants
welcomed.
6.4 Options to Create New
Entry Routes at Assistant
Commissioner Rank
The Inspectorate considers that the essentials of
the assistant commissioner role revolve around
strategy, command of and policy issues relating
to policing. Business, people and stakeholder
management and engagement with bodies
responsible for governance and oversight are
critical elements.
The Inspectorate’s view is that where operational
policing experience is required in a particular role,
eligibility should not be extended to non-policing
professionals. The assistant commissioner rank is
a role for people who have developed exceptional
leadership and management skills in the policing
profession.
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In this context, however, the Inspectorate
emphasises that executive-level posts that do not
require operational capability and sworn powers
should be lled by civilian professionals. This is
essential if the “civilian by default” policy is to be
eective and it is considered therefore that there
should be a critical examination of executive posts
to this end.
The strategic, leadership, management and
supervisory challenges facing the Garda Síochána
mean that the need for cultural change and
dierent management perspectives is urgent. The
Inspectorate believes that expanded eligibility
at assistant commissioner rank would create
the possibility for ranking police ocers from
other jurisdictions with a variety of policing
experience and dierent police perspectives and
leadership approaches to be eligible to compete
for appointment. Such ocers are likely to have
served in complex policing organisations and
jurisdictions with policing challenges which are
now emerging in Ireland. This would help to
ensure a high standard of competition for key
roles.
In the circumstances, the Inspectorate proposes
that consideration be given to an advertised
international appointment process seeking
experienced policing candidates for posts at
assistant commissioner level.
How Recruitment Might Operate
A candidate would require a track record of
achievement as a senior police officer and
the ability to quickly grasp legislative, policy,
operational, tactical and strategic issues around
policing. The recruitment process should focus
on the skills, competencies and experience
needed rather than specifying minimum service
requirements in specic ranks.
The Inspectorate envisages that competitions for
recruitment to assistant commissioner should
adopt proactive marketing using international
policing journals to attract candidates. Information
about life in Ireland, public services and taxation
issues will need to be provided.
The preliminary selection processes should be
demanding in order to conrm the candidate’s
experience and qualications portfolios.
As in the case of the earlier discussion relating to
experienced police ocers and superintendents
and chief superintendents, it would be important
that there be as few limitations as possible relating
to nationality and residence and that recruitment
from outside of the EEA be possible in view of the
experience prole being sought.
Training
At present, there is no standing training
programme for newly appointed assistant
commissioners. In the past, members of the
executive team have participated in executive
leadership programmes but unlike in the UK,
there is no mandatory programme that must be
completed before appointment. The Inspectorate
considers that attention needs to be paid to
this and understands that the Garda Síochána
is considering proposals in this regard. It is
considered as a general principle that completing a
course such as the UK Strategic Command Course
is benecial for ocers at assistant commissioner
and equivalent rank as it involves mixing and
working with senior police ocers and sta as
well as personnel from other agencies.
As part of any new assistant commissioner
training programme, the Inspectorate envisages
that any assistant commissioners recruited
externally should complete a skills gap analysis
and prior learning evaluation to assist in assessing
training requirements on an individual basis.
They would need to complete a specially designed
induction programme, which would provide a
foundation in policing in the Garda Síochána,
outlining its structures, procedures and other
essential information.
An important principle at executive level is that
personnel at this level take responsibility for
their own training. The training costs are likely
to be incremental to the costs incurred in normal
training at this level.
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6.5 Inspectorate’s Assessment
on New Entry Routes at
Executive Level
The Inspectorate considers that the quality of
competition for appointment to senior operational
posts at assistant commissioner level could be
enhanced by widening the pool of candidates that
are eligible. An openly advertised international
process would help to give assurance regarding
the standard of applicants.
Proposal 12
That eligibility for appointment to assistant
commissioner should be extended to include
senior police ocers in other jurisdictions
with appropriate skills and experience.
To achieve this, the following will need to be
considered:
The requirements to compete for
appointment to assistant commissioner
should include senior-level command,
leadership and management experience in
another police service;
Amendment of the Garda Síochána Act
2005 and of the Garda Síochána Act 2005
(Appointments to the ranks of Assistant
Garda Commissioner, chief superintendent
and superintendent) Regulations 2016
and a review of the statutory work permit
scheme to facilitate a competition which
would be open to experienced senior
police ocers from other jurisdictions,
including from outside the EEA;
Use of proactive recruitment approaches
and provision of information and support
to assist with relocation; and
In addition to general assistant
commissioner training, a skills gap
analysis and prior learning evaluation
should be used to assist in assessing
training requirements on an individual
basis. This should include a course such
as the UK Strategic Command Course, if
required.
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7
Chapter 7
Summary
of Proposals
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The proposals that have been developed in this
review are:
Proposal 1
That the Garda Síochána continue to advance its
development of a comprehensive Diversity and
Inclusion Strategy.
To achieve this, the Garda Síochána should consider:
Collecting self-identied data on the ethnic
origin of its members and sta, having regard
to data protection requirements, with a view to
measuring trends in recruitment, appointment
and retention of members and sta from
under-represented groups;
Assessing the impact of HR and related
actions already underway to develop cultural
competency in the organisation and promote
the values of diversity and inclusion; and
Continuing to develop a working environment
that is open, inclusive and non-discriminatory.
Proposal 2
That recruitment approaches are developed that
will encourage applications from minority and
diverse groups.
To achieve this, the Garda Síochána should consider:
Utilising targeted approaches to market the
Garda Síochána as a career, such as those used
in the advertising and branding of Police Now;
Using recruitment fairs, taster sessions and
volunteer schemes to attract applications from
under-represented groups; and
Proactively marketing the Garda Reserve to
under-represented groups to develop it as a
pathway to policing.
Proposal 3
That the Garda Síochána, as part of the review
of the Reserve, consider the development of a
strategy that would enable people with high
level skills to contribute to policing in specialist
areas such as cyber security and the development
of targeted approaches to attract them into the
Reserve.
Proposal 4
That a programme be developed to recruit
suitable, experienced police officers from
police services in other jurisdictions.
To achieve this, the following will need to be
considered:
Amendment of the Garda Admission and
Appointment Regulations and a review
of the statutory work permit scheme
to facilitate recruitment of suitable,
experienced police ocers from other
jurisdictions, including from outside the
EEA;
Targeted approaches to market the Garda
Síochána as a career for experienced police
ocers in other jurisdictions;
Increasing the maximum age limit for
recruitment;
The requirement for a tness test;
Amendment of the language requirement
to specify prociency in English only;
The provision of abridged training on
the basis of individual assessment of
prior learning and experience and the
recognition of this for the purpose of the
BA in Applied Policing;
The development of an Experienced Police
Ocers Knowledge Test which must be
passed on completion of the abridged
training and prior to conrmation of
appointment;
Provision that pay at enrolment of
training reects conrmed satisfactory
employment in another police service;
Exploration of options around optimising
pensionable possibilities;
Provision of information and support to
assist with relocation;
Recruitment to be led by the PAS;
Provision that ocers who join under
the programme be eligible to compete for
promotion after 12 months’ satisfactory
service in the Garda Síochána; and
Arrangement for appropriate evaluation
of the programme.
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Proposal 5
That the process whereby suitable former members
of the Garda Síochána can rejoin should be reviewed
and revised to ensure transparency, timeliness and
fairness.
To achieve this, the following will need to be
considered:
Development of a new set of criteria to assess the
suitability of the former member to rejoin;
Requirement for a tness test;
The necessity for Ministerial consent to reappoint
a former member;
Implementation of an appropriate appeals
process;
Skills gap analysis and prior learning evaluation
to assist in assessing refresher training
requirements on an individual basis; and
Amendment of the Garda admission and
appointment regulations.
Proposal 6
That similar reciprocal arrangements as exist for
senior appointment processes in the PSNI and Garda
Síochána under the Intergovernmental Agreement
on Police Co-operation be developed to allow access
to the sergeant and inspector promotional processes
in both jurisdictions.
To achieve this, the following will need to be
considered:
The promotion processes in both jurisdictions
to be examined in order to identify the practical
issues involved and how they might be
addressed;
Appropriate training to support such a scheme
would need to be developed;
Review the 2010 Cross Border Policing Strategy to
give renewed focus on the bilateral arrangements
Exchange and secondment opportunities at
sergeant and inspector levels to be promoted to
help develop awareness of opportunities and for
exchange of knowledge; and
Amendment of the Garda Síochána Act 2005 and
Garda appointment and promotion regulations.
Proposal 7
That the possibility of seeking reciprocal
arrangements with other police services
regarding appointments be explored
following the implementation of
extended arrangements between the
PSNI and Garda Síochána.
Proposal 8
That a Direct Entry Inspector programme
to attract candidates with appropriate
leadership and management experience
in organisations outside the Garda
Síochána be developed.
To achieve this, the following will need to
be considered:
Planning for a Direct Entry Inspector
programme to be commenced and
take account of the evaluation of the
corresponding programme due to be
completed in England and Wales in
2019;
The need for independent
governance arrangements and
expertise in the development,
delivery and evaluation of a
programme;
Engagement with stakeholders in
order to help create an environment
conducive to supporting the
programme;
The development of an internal talent
management strategy to include an
accelerated progression programme
for promotion to inspector; and
Amendment of the Garda
appointment and promotion
regulations.
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Proposal 9
That eligibility for appointment to
superintendent and chief superintendent be
extended to include senior police ocers in
other jurisdictions with appropriate skills
and experience.
To achieve this, the following will need to be
considered:
The requirements to compete for
appointment to chief superintendent and
superintendent should include substantial
command, leadership and management
experience in another police service;
Amendment of the Garda Síochána
Act 2005 and of the Garda Síochána
Act 2005 (Appointments to the ranks of
Assistant Garda Commissioner, chief
superintendent and superintendent)
Regulations 2016 and a review of the
statutory work permit scheme to facilitate
a competition which would be open to
experienced senior police ocers from
other jurisdictions, including from outside
the EEA;
Use of proactive recruitment approaches
and provision of information and support
to assist with relocation; and
In addition to general superintendent/
chief superintendent training, conducting
a skills gap analysis and prior learning
evaluation to assist in assessing training
requirements of successful candidates on
an individual basis.
Proposal 10
That the case for developing a direct entry
programme for superintendent be reviewed
after the implementation of the proposed
Direct Entry Inspector programme is fully
evaluated.
To achieve this, the following will need to be
considered:
Experience of operating the Direct Entry
Inspector programme;
Evaluation of the corresponding
superintendents’ programme in England
and Wales, due to be completed in 2019;
and
Evaluation of the outcomes of the
recruitment of experienced police ocers
from other policing jurisdictions.
Proposal 11
That the bilateral arrangements between
the PSNI and Garda Síochána that are
provided for under the Intergovernmental
Agreement on Police Co-operation relating to
superintendent rank and above be refreshed
and promoted.
To achieve this, the following will need to be
considered:
Proactive publication of the opportunities
presented by the appointment
arrangements;
Review of the secondment and exchange
arrangements in order to encourage
greater uptake; and
Development of clear policies
and advocacy for the professional
development and organisational value the
scheme can bring.
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Proposal 12
That eligibility for appointment to assistant
commissioner should be extended to include
senior police ocers in other jurisdictions
with appropriate skills and experience.
To achieve this, the following will need to be
considered:
The requirements to compete for
appointment to assistant commissioner
should include senior-level command,
leadership and management experience in
another police service;
Amendment of the Garda Síochána
Act 2005 and of the Garda Síochána
Act 2005 (Appointments to the ranks of
Assistant Garda Commissioner, chief
superintendent and superintendent)
Regulations 2016 and a review of the
statutory work permit scheme to facilitate
a competition which would be open to
experienced senior police ocers from
other jurisdictions, including from outside
the EEA;
Use of proactive recruitment approaches
and provision of information and support
to assist with relocation;
In addition to general assistant
commissioner training, a skills gap
analysis and prior learning evaluation
should be used to assist in assessing
training requirements on an individual
basis. This should include a course such
as the UK Strategic Command Course, if
required.
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Appendix 1
‘Recruiting for Diversity
– Police Now: A case study
Police Now is a graduate police recruitment and
leadership programme in England and Wales.
It was developed by the London Metropolitan
Police and piloted in 2015 with the aim of making
an impact on crime through a dierent approach
to recruitment and training. It is a national brand
which is advertised on radio, via billboards and
on social media (Facebook and Twitter). Particular
universities near clusters of participating forces
are targeted with on-campus activities to market
the idea of policing as a profession.
The recruitment process is intensive and
challenging, based on a mix of methods involving
self-assessment, application sift, situational test,
telephone interview, group assessments, in-tray
exercise and participation in an assessment centre
(based on a day in the life of a neighbourhood
constable). The “application to oer” time frame
is 6–8 weeks compared to 9–12 months for
conventional recruitment.
Successful applicants must undertake a three
month “pre-learn” course before induction,
which is examined on the rst day of training.
Candidates are required to make a two-year
commitment to the police service. They are
assigned to one of three police services which
they selected as preferences. On commencement
of training, they are attested and then undertake
six weeks’ training (six days per week and 12-
hour days), involving 27 assessments where
participants put into practice what they learnt in
the pre-learn period.
Training is delivered through a mix of classroom
based and practical activities including seven
shifts of eld training where participants get on-
the-ground experience of a busy London borough.
Training takes account of a personal development
plan and includes four weeks of one-to-one
mentoring. After graduation, ocers receive 28
days’ immersion in the police service to which
they are being assigned.
They then work within a clearly defined
neighbourhood as Dedicated Ward Officers,
gaining a deep knowledge of their area. Over the
probationary period of two years, they participate
in six Impact Events every 100 days during which
they make a presentation to peers, evaluators and
ranking ocers on the impact that they have had
in policing their neighbourhood.
The average age of recruits to Police Now is 23.5
years. It is not a fast track promotion programme
and does not guarantee promotion post probation.
Once they are conrmed in rank at the two-year
point, participants may choose to apply for
promotion in the normal way.
In the 2015 pilot, 67 recruits were successful from
1,248 applicants. The scheme was expanded to six
other police services in 2016, when there was an
intake of 112 graduates from 2,423 applicants. In
2017, the scheme was extended to 19 participating
services with a recruitment target of 250.
Police Now attracts a diverse and representative
pool of participants. In 2016, 54% were female and
20% were members of BAME communities. The
latter was an increase of 34% in the number of
BAME applications compared with 2015. Diversity
is also reected in the high calibre of graduates
participating and representation from dierent
social backgrounds – some 16% had qualified
for free school meals (Police Now – Inuence
for Generations, Impact Report 2017). This
reects the proactive recruitment methods used.
Police Now partnered with a specialist private
company to conduct extensive outreach work to
attract high achieving BAME undergraduates to
the programme, including contacting 18 African
and Caribbean societies and 16 university
career services. Work was also done to improve
assessment processes and the language used to
ensure they were not to the detriment of BAME
students (Race Equality Awards 2016).
The Evidence and Insight Team of the London
Mayor’s Oce for Policing and Crime published
the results of a two-year evaluation of the 2015
Police Now programme in December 2017.
Findings were generally positive.
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Appendix 2
An Overview of Police Transfer
Policies across USA, Canada,
Australia and New Zealand
USA
The size of the federal systems and multiplicity
of regional and local police services in the USA
and Canada provide opportunities for mobility.
In the USA, there is considerable scope to transfer
between police services, subject to the general
requirement relating to citizenship of the USA.
This is generally referred to as “lateral entry” but
there are no schemes open to potential recruits
from outside of the USA.
Lateral entry is mostly common to smaller
cities in individual states, where ocers often
apply to transfer to larger cities for better pay
and more professional opportunities. Some
states do not facilitate out-of-state lateral entry.
Notwithstanding this, there is general scope for
a police chief to hire a police ocer from another
police service at their existing salary level.
Pensions can be an issue as many services do not
allow portability of any pension accruals in the
previous city. Many cities and states, however,
allow ocers to vest the contributions made to
their current pension fund after a set number of
years.
Transfers within the USA are facilitated by the
Peace Officer Standards and Training (POST)
arrangements at State level which sets selection
and training standards that are often recognised
by other states.
Most agencies require a lateral entry candidate,
at the time of testing, to be an experienced police
ocer who worked for another agency for at
least 24 of the previous 36 months (post training)
with full police powers and duties. In general,
abbreviated training is provided subject to a skills
gap analysis. For example, the Denver Police
Academy allows lateral recruits to graduate after
15 weeks of training, depending on past training
and experience, compared with the general recruit
training of 27 weeks.
In the Minneapolis Police Department, full-time
active police officers with three years’ prior
policing experience are encouraged to apply.
Salary is determined by the number of prior years’
experience and the size of the police department
that the transferee last served in. Police training
in another state and three years’ policing
experience satises the state POST police process..
Abbreviated familiarisation training is provided
as well as in-service training
Canada
All foreign nationals wishing to apply to join a
Canadian police service must now emigrate to
Canada and become permanent residents before
joining a police service. Edmonton and Calgary
(regional plice services in the province of Alberta)
are the only Canadian police services to have
carried out overseas recruitment campaigns in the
past with the last such recruitment taking place in
2008 (because of diculties in recruiting locally).
However, those joining had to undergo the full
training programme.
Within Canada, most provinces and police services
allow experienced ocers from police services
across the country to move from one province to
another. For example, Toronto, Calgary and the
Royal Canadian Mounted Police (RCMP) accept
applications from experienced officers who
have completed recruit training at an accredited
Canadian Police College. Candidates are required
to have an exemplary service record.
Training exemption policies vary across the
country with some oering transitional training
and others requiring full recruit training to be
done (Canada Police, undated). In Ontario, the
Ontario Police College reviews requests for
exemption, assessing the candidate’s resume,
training certicate and at least one reference from
the jurisdiction in which the candidate served
(Ontario Provincial Police, undated). Vancouver
Police require applicants from outside of British
Columbia to do a two- hour multiple choice
“exemption” exam to be eligible.
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The RCMP provides a ve-week learning and
orientation programme compared with the usual
26-week programme for new recruits.
Australia and New Zealand
Many Australian police services accept
applications from New Zealand police
officers. The Australia New Zealand Police
Professionalisation Strategy 2013–2018 (2013)
incorporates the Police Practice Standards Model,
which aims to develop a consistent approach to
police education and training courses across
New Zealand and Australia based on common
guidelines and standards. However, there is no
provision for lateral transfers between police
services within Australia. Applicants with prior
policing experience may, however, apply to
receive recognition for prior service.
In the relatively recent past, certain Australian
police services have recruited overseas because
of a shortage of recruits locally or because of the
unpopularity of postings to remote locations. In
general, those wishing to join Australian police
services must be Australian or New Zealand
citizens or possess permanent residency in
Australia.
Victoria Police recognises prior policing service
only in the case of those who have served as
an operational police ocer in Australia, New
Zealand or the UK. Each application is assessed
individually. There is no guarantee that prior
service will be recognised or that a position with
Victoria Police will be oered at the end of the
process, even if all components of the application
process are passed successfully. Applicants are
required to undertake a skills gap analysis to
assess how much their knowledge deviates
from current Victorian law and Victoria Police
policy and operational procedures. The skills
gap analysis takes into consideration educational
qualications, the amount and quality of policing
service and how recent it is.
If deemed suitable, a training programme, known
as the Structured Abridged Training Program, will
be tailored to address identied skills gaps.
16 Dr.KarlO’Callaghan,CommissionerofPolice,WesternAustralia,TranscriptofEvidence,15February2016,p23
The length of this training depends on the
assessment, but will be between eight weeks
and 24 weeks, compared with the normal recruit
training of 31 weeks. Those who do not hold a
Diploma of Public Safety (Policing), which is
granted on successful completion of recruit
training, must satisfactorily complete it prior
to confirmation of appointment. This is the
benchmark standard for policing in Australia.
Western Australia Police has run international
recruitment campaigns, the most recent in 2012,
and is the only policing service in Australia to
explicitly recognise policing experience from
Ireland, with permanent residency visas being
sponsored. Previous service elsewhere was
recognised for pay purposes. Relocation expenses
were allowable against tax.
These recruitment programmes were aimed at
increasing police ocer numbers to accommodate
state-wide population growth in periods of
high police ocer numbers attrition. By 2013,
international recruits accounted for almost 10%
of Western Australia Police.
The Western Australia Police 2014–2017 Workforce
Plan included the option of international
recruitment but it is understood that the
employment market has since stabilised and there
is no need for overseas recruitment at present.
There has been acknowledgement that it was a
costly strategy as international recruits’ starting
salaries were determined by their levels of
experience.
16
Applicants from the UK and Ireland,
however, can still apply at any time if they are
Australian or New Zealand citizens or permanent
residents of Australia.
“Transitional” experienced officers must have
three years’ experience (normally within the last
18 months) and satisfy recruitment and testing
procedures. The three-year minimum service
requirement was a condition of the agreement
with the immigration authorities but in practice
the police service sought officers with more
experience who would be ready for operational
roles. Applicants for transitional police ocer are
tested over a ve-day period.
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If prior learning and experience is considered
appropriate, shortened training of 13 weeks
compared with the normal 28 weeks is provided.
There is a subsequent six-month probation period.
South Australia has recruited from overseas
in the past but current policy is not to do so. It
does not accept Australian interstate transfers
either. The Northern Territory Police Force and
Tasmania Police run an Accelerated Recruitment
Programme which is open only to those with
current or recent police experience in Australia
and New Zealand. It also provides for 13 weeks’
induction training compared with the normal
seven months’ recruit programme. Queensland
Police, however, requires experienced officers
who apply, to undergo the full 25-week training
course with no abridged training provision.
New Zealand Police last recruited from abroad
in 2008 with an eight-week course instead of the
usual 16 weeks. Under its current recruitment
processes, overseas police ocers must hold New
Zealand residency. They must pass the normal
recruiting process and undergo full training.
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Appendix 3
An Overview of Appointment
Practices at Mid to Higher
Levels in Selected Jurisdictions
Germany
The German Federal Police and the seven state
police agencies are broken into three rank brackets
– the constable/sergeant level, the inspector level
and the chief of police level, with graduates able
to access the second of these (inspector rank) as
the entry point for all senior ocers. Movement
upwards between the bands is possible but rare.
France
The French Police Nationale is organised in
three branches: the non-commissioned grades
(Corps d’encadrement et d’application, equivalent
broadly to garda and sergeant levels); the lower
commissioned ranks (Corps de commandement,
equivalent broadly to inspector level); and the
higher commissioned ranks (Corps de conception et
de direction, equivalent broadly to superintendent
level and above). There is direct entry to all three
branches, reecting practice in other parts of the
French public service. Many ocers spend their
career in one branch and while mobility between
the branches is possible, it is rare.
The basic grade police ocer (gardien de la paix)
can be promoted through four ranks to that of
major within the non-commissioned ranks. After
four years’ satisfactory service as a gardien de la
paix, an ocer can apply for entry to the inspector
ranks or the superintendent ranks, but these are
also subject to open competition. Fifty per cent of
commissaires (superintendent level) are recruited
externally. To be eligible for inspector level (ocier
de police), an applicant must have a minimum
of a Bachelor’s degree and for (commissaire), a
minimum of year two in a Master’s, preferably in
law, is specied.
There is an 18-month training course for
inspectors (12 months in the National Higher
Police Academy and six months on assignments)
and a two-year course for superintendent rank.
The training for new commissaires de police, whether
recruited internally or externally, is provided on
an individualised basis because of the diversity of
their previous experience (Devine, 2010).
The training programme takes account of prior
learning and the skills expected in the rank and is
delivered on a modular basis with the individual
held accountable for the design of their own
training, guided by explicit learning objectives
and a mentor. Training is aimed at developing
professional skills based on real situations. It
consists of a foundation phase of 18 months,
alternating between periods in the academy and
on the ground, teaching the skills needed in the
role and providing the opportunity to practice
them. The second phase is on the job and takes
six months, during which the individual builds
policing expertise with a training assignment for
four months, followed by a preparatory six weeks
in the post to which they will be assigned.
Netherlands
In the Netherlands, besides recruitment at
constable and sub-constable level, there is
recruitment at graduate level (Politiekundige).
This level is a tactical, analytical and policy role
in crime prevention and policing of public events.
Training lasts four years alternating between the
training college and assignments at operational
units. Holders of certain relevant qualications
can complete the course in two and a half years.
There is also recruitment at senior constable level
(Hoofdigent) requiring a Master’s qualication.
They undertake three years’ training – again
alternating between periods in the training college
and on assignment to units. The duties are more
strategic.
The Dutch Police informed the Inspectorate that
all recruit level ocers compete for promotion on
the same basis – there is no accelerated promotion.
The Police College’s Centre for the Recognition
of Prior Learning evaluates prior qualications
to ensure all training is goal orientated towards
achieving competencies.
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70 71
As regards advancement to the higher ranks,
the National Management Development Agency
works with the service to ‘nd talented individuals
who can serve in the highest strategic rank’ (Policing
in the Netherlands, 2009). A selection committee
oversees the selection of officers for strategic
positions and works out a personal development
process in association with each individual.
Hong Kong
Hong Kong Police, with approximately 34,000
personnel, operates a dual system, recruiting
at constable level and at inspector level, the
duties of which are specied as ‘supervisory and
operational duties, covering all aspects of police work’
(Hong Kong Police Service, undated). Eligibility
for inspector requires a Hong Kong degree or
equivalent. After a 36-week training course,
successful candidates are awarded a Professional
Diploma in Leadership and Management in
Policing, which is accredited under the Hong
Kong Qualications Framework. There is a three-
year probationary period. Inspectors follow a
structured career path over ve years, consisting
of assignments to district/divisional posts and
tactical/specialist units and they must complete
the standard criminal investigation course (nine
months). Internal candidates can apply for
inspector through the “potential ocer scheme”.
Eligible constables may apply for sergeant, and
sergeants with two years’ experience may apply
for inspector.
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Appendix 4
Information on Garda Pension
Arrangements
There are four pension schemes applicable to
members of the Garda Síochána, with the date
of attestation of the member determining which
particular scheme applies to them. These are:
1. Attested before 6 April 1995 – Class B PRSI –
can retire at 50 on full pension with 30 years’
service.
2. Attested after 6 April 1995 – Class A PRSI;
and
3. Attested on or after 1 April 2004 – Class A
PRSI but minimum retirement at age 55.
These three schemes are nal salary schemes.
4. Attested on or after 1 January 2013 – Single
Public Service Pension Scheme based on
career average. This scheme applies to
the entire public service. The minimum
retirement age is 55 and members must retire
at 60. This is the statutory retirement age for
all Gardaí.
Under the Single Public Service Scheme, Garda
pensions will no longer be based on nal salary.
Benets will be accrued for each year of service
and pensions will be based on career average
earnings. A proportion of annual pensionable
pay is notionally accumulated and inflated
each year in line with the consumer price index.
Contribution rates and accumulation rates are
higher than for most public servants as Gardai
may retire at age 55. Final pension and lump sum
on retirement are based on the accumulated career
average amounts. These accumulated amounts are
called the “Referable Amounts”. One is notionally
accumulated for pension purposes and a second
to provide a lump sum on retirement. The single
scheme is an unfunded pay-as-you-go scheme.
Membership of the single scheme is compulsory.
Service of Garda members who transfer from
other Irish public service positions to the Garda
Síochána or vice versa is reckonable for pension
purposes. In such a transfer, where the pension
is based on 40 years’ service, three quarters
of previous service is reckonable for pension
purposes.
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