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Haddington Road Agreement Review of An Garda Síochána
Report by John Horgan
12 December 2016
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 1
BackgroundThisReviewofAnGardaSíochánaarisesfromacommitmentinthePublicServiceStability(HaddingtonRoad)Agreement2013-2016,thathasbeencarriedovertotheLansdowneRoadAgreement,whichextendstoSeptember2018.Appendix3oftheHaddingtonRoadAgreementprovided:TobuildupontheprogressalreadymadeinthePublicServiceAgreement2010-2014,aReviewofAnGardaSíochánawillbeundertaken.Thefollowingtermsofreferencewillapply.ToreviewandmakerecommendaGonsontheusebyAnGardaSíochánaoftheresourcesavailabletoit,withtheobjecGveofachievingandmaintainingthehighestlevelsofefficiencyandeffecGvenessinitsoperaGonandadministraGon.ThereviewshallencompassallaspectsoftheoperaGonandadministraGonoftheGardaSíochánaincluding:• thestructure,organisaGonandstaffingoftheGardaSíochána;• thedeploymentofmembersandcivilianstafftorelevantandappropriateroles;• theremuneraGonandcondiGonsofserviceofmembersofAnGardaSíochánaincludingan
evaluaGonofannualisedhours/shiNpayarrangements;• theappropriatestructuresandmechanismforthefutureresoluGonofmaOersrelaGngto
pay,industrialrelaGonsandaOendantmaOers.TheReviewwasduetocommencenolaterthan1September2013andbecompletednolaterthan1June2014.Thesecommitmentswerenotmet.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 2
HaddingtonRoadAgreementAGSReviewHorganStrand 3
TheOfficialside(DepartmentofJusTceandEquality,GardamanagementandtheDepartmentofPublicExpenditureandReform)consideredthattheGardaInspectorate,havingregardtoitsstatutoryroleundertheGardaSíochánaAct2005,wastheappropriatebodytoconducttheReview.TheGardaAssociaTons(GardaRepresentaTveAssociaTon(GRA),AssociaTonofGardaSergeantsandInspectors(AGSI),AssociaTonofGardaSuperintendentsandAssociaTonofChiefSuperintendents)tookadifferentviewbuteventuallythetermsofreferenceoftheInspectoratewerelimitedtothefirsttwoindentsi.e.• thestructure,organisaGonandstaffingoftheGardaSíochána;• thedeploymentofmembersandcivilianstafftorelevantandappropriateroles;Mr.RayMcGee,formerlyoftheLabourCourtwasappointedtoundertakethereviewofthelasttwoindents.However,Mr.RayMcGeeresignedinMay2016.MyunderstandngisthatthefourrepresentaTveassociaTonsjointlynominatedmeasthenewChairandthetwoDepartmentsagreedtothenominaTon.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 4
TheInspectoratecompleteditsworkinDecember2015.Itsreport"ChangingPolicinginIreland--DeliveringaVisible,AccessibleandResponsiveService"wasbroughtbeforeCabineton8Decemberandpublishedon9December2015.Thereportmadesome80recommendaTonsinrelaTontothestructuresofAnGardaSíochána,itsdeploymentpracTces,culture,humanresourcespracTcesandfinancialmanagement.Havingregardtothefar-reachingnatureofsomeoftherecommendaTonstheMinisterputinplaceaprocesstoseektheviewsoftheGardaCommissionerandotherbodiestowhomrecommendaTonsweredirected.TheGovernmenton19July2016approvedaFiveYearReformandHigh-levelWorkforcePlanforAnGardaSíochánaaddressingtheimplementaTonoftheGardaInspectorateReportandtheProgrammeforGovernmentcommitmentsinrelaTontotheoverallGardaworkforce.TheInspectorate'sreportwasalsoforwardedtomesothatIcouldtakeitintoaccounttoanycrosscufngissues.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 5
On6July2016,theTánaisteandMinisterforJusTceFrancesFitzgeraldTDrequestedmetocompletetheReviewofAnGardaSíochánabyreporTngonthethirdandfourthindentsinthetermsofreference.i.e.• theremunera*onandcondi*onsofserviceofmembersofAnGardaSíochánaincludinganevalua*onofannualisedhours/shi;payarrangements;
• theappropriatestructuresandmechanismforthefutureresolu*onofma?ersrela*ngtopay,industrialrela*onsanda?endantma?ers.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 6
AtmyiniTalmeeTngmeeTngwithallparTesonTuesday19July2016aworkplanwasagreed:• August,SeptemberandOctoberVisits,submissionsandiniTateresearch• ConcluderesearchandsubmissionsbyendOctober• DrahReportNovember• CirculateFinalDrah28November• FinalizeReporton5December• Reporttobepublishedon12December2016AlltheparTesacceptedthisTmescale.IinsistedatallstagesthatIwouldproducethebestreportthatcouldbeproducedintheTmescaleagreed.AtvariousstagesduringourmeeTngsIofferedtobringforwardthedateofmyreportifthatwouldbehelpful.NoneoftheparTestookupthisoffer.Iampleasedthatwiththeco-operaTonofallparTesIhavebeenabletomeettheoriginalTmetable.IcirculatedtheFinalDrahon28Novemberandnowpublishthereportontheagreeddate,12December2016.
WorkPlanAgreed
FamiliarisaTonVisits• OverallIhaveheld45meeTngswithvarious
parTesincludingthefamiliarisaTonmeeTngsdetailedopposite.IesTmatethatthecumulaTveTmespentinmeeTngsanddiscussionscametoover140hours.MyTmeindrahingthevariousdiscussionpapersanddrahingmyreportcametoatotalofapproximately60hours.
• DuringAugustIvisitedlocaTonsaroundthecountrymeeTngmorethan200Gardaí,SergeantsandInspectors,SuperintendentsandChiefsoverninedaysandapproximately60hours.
• ThesemeeTngshavebeenveryusefulandhavegivenmeagoodinsightintotheworkandworkingcondiTonsandenvironmentofthoseranks.TheajendeesfromthevariousgradesarenotproporTonaltothetotalnumbersemployedinthosegrades.HoweverIwasinterestedonlyintheweightandvalidityoftheargumentsputtomeratherthanthepreponderanceofspeakers.
Loca?on Gardai Sergeant/Inspectors Total
Dublin 13 10 23
Dundalk 13 13 26
Limerick 9 9 18
Galway 12 11 23
Cork 10 15 25
Dublin 15 14 29
TemplemoreSuperintendents 15
TemplemoreChiefSuperintendents 5
Mullingar 14 10 24
Waterford 13 4 17
Total 99 86 205
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 7
THECURRENTSTATEOFPLAY:RESOURCESANDNUMBERSATWORK
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 8
AnGardaSíochánaAnGardaSíochánaprovidestheciTzensofIrelandwithanexcellentpoliceservicebyanystandard.ThispointhasbeenmadebyvariousreportandreviewsoveritsenTrehistory.WhilerecentreportshaveidenTfiedshortcomingsinparTcularinstances,thevastmajorityofmembersoftheforcearededicatedtoprovidinganimparTalfairpoliceserviceinlinewithbestPeelianprinciples.ThemembersofAnGardaSíochánaperformadifficultandohendangerousjobthatisuniqueinIrishsocietyandallitsmembersdeservetoberewardedappropriately.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 9
ExtractfromGardaReviewEditorialNotes,November1929
TheGardaSíochánaisapublicservice,towardstheupkeepofwhicheveryciGzen,richandpoor,contributesdirectlyorindirectly.EveryciGzenisthereforewithinhisrightsinseeingthattheserviceforwhichhepaysisproperlyrendered.ThemembersoftheForcefullyrecognizetheserights;theywelcomehonestandintelligentcriGcismandevenifnotintelligent,theytolerateit,solongasitismadeingoodfaith.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 10
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 11
10,000
11,000
12,000
13,000
14,000
15,000
16,000
2008Q1
2008Q2
2008Q3
2008Q4
2009Q1
2009Q2
2009Q3
2009Q4
2010Q1
2010Q2
2010Q3
2010Q4
2011Q1
2011Q2
2011Q3
2011Q4
2012Q1
2012Q2
2012Q3
2012Q4
2013Q1
2013Q2
2013Q3
2013Q4
2014Q1
2014Q2
2014Q3
2014Q4
2015Q1
2015Q2
2015Q3
2015Q4
2016Q1
2016Q2
Employment(Number)
Employment(Number)
SourceCSO
CSOGardaSíochánaQ32016
• Employment(Number) 13,000 • AverageWeeklyEarnings(Euro) 1,251.09 =€65,235p.a.• AverageHourlyEarnings(Euro) 29.01 • AverageHourlyEarningsexcludingIrregularEarnings(Euro)24 • AverageWeeklyPaidHours(Hours) 43.1 • Averagehourlyirregularearnings(Euro) 4.03 • Averagehourlyotherlabourcosts(Euro)2.31 • Averagehourlytotallabourcosts(Euro) 31.32
NBDataforthelatestquarterispreliminaryandsubjecttorevision.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 12
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 13
OverallInvestmentLevelsareIncreasingandAlmostatPeakPre-CrisisLevels
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 14
.
GrossExpenditureonGardaPayisIncreasingAgain,
mostlydrivenbyaDoublinginOverTmesince2014
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 15
SomeoftheseincreaseswereduetoexcepTonalfactorsandwerenotsharedequallyacrossthemembersoftheforce.
CURRENTPAY,ALLOWANCES,PENSIONSANDCOMPARISONS
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 16
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 17
Inthe2016esTmatethetotalexpenditureonAnGardaSíochánawillbe€1,554mofwhich€971.7mwillbepaycostsand€325.5mpensions.(ThisispriortoanyadjustmentthatmayarisefromtheAdHocLabourCourtRecommendaTons[LCR]CD/16/321andCD/16/322dated3November2016):AtTmeofwriTngitwasannouncedthattheLabourCourtrecommendaTonswereacceptedbytheGRAandAGSIbuttheconsequenTalimpactonSuperintendentsandChiefSuperintendentswerenotknown.TogiveacomprehensivepictureofRemuneraToninAGSitisimperaTvetoconsiderthreeelements:BasicPay;OverTmeandAllowances;andPensions.AllthreearepartoftotalcompensaTon,andmustbeconsideredtogether.Theyareexaminedinthischapter.TheincrementalpayscalesforGardaí,Sergeants,Inspectors,SuperintendentsandChiefSuperintendentsareshowninthefollowingpages.IrequestedtheDepartmentofJusTcetocalculatethePost-LCRscales,buttheydidnotdoso.IhavethereforeesTmatedthateachpointofthescalewillincreaseby€4,655.ThisIsnotaasalaryincreasebutaconsolidaTonofanincreasedrentallowance.
BasicPayScales–GardaRankYearsofService CurrentA Est.Post
LCR*1 €25,745 €30,4002 €28,302 €32,9573 €29,834 €34,4894 €32,407 €37,0625 €35,840 €40,4956 €38,110 €42,7657 €40,163 €44,8188 €42,138 €46,7939 €42,138 €46,79310 €42,138 €46,79311 €42,138 €46,79312 €42,138 €46,79313 €43,857 €48,51214 €43,857 €48,51215 €43,857 €48,51216 €43,857 €48,51217 €43,857 €48,51218 €43,857 €48,51219 €45,793 €50,448
YearsofService CurrentB Est.Post
LCR*1 €24,890 €29,5452 €27,369 €32,0243 €28,867 €33,5224 €31,365 €36,0205 €34,683 €39,3386 €36,875 €41,5307 €38,856 €43,5118 €40,767 €45,4229 €40,767 €45,42210 €40,767 €45,42211 €40,767 €45,42212 €40,767 €45,42213 €42,429 €47,08414 €42,429 €47,08415 €42,429 €47,08416 €42,429 €47,08417 €42,429 €47,08418 €42,429 €47,08419 €44,302 €48,957
YearsofService
CurrentNewRecruits*
Est.PostLCR*
1 €25,472 €30,1272 €28,302 €32,9573 €29,834 €34,4894 €32,407 €37,0625 €35,840 €40,4956 €38,110 €42,7657 €40,163 €44,8188 €42,138 €46,7939 €42,138 €46,79310 €42,138 €46,79311 €42,138 €46,79312 €42,138 €46,79313 €43,857 €48,51214 €43,857 €48,51215 €43,857 €48,51216 €43,857 €48,51217 €43,857 €48,51218 €43,857 €48,51219 €45,793 €50,448
*GardaTraineesreceiveanallowanceof€184aweekforthe32weeksleadingtoajestaTon.Onappointmenttheyarepaid€23,171foraperiodof32weeks
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 18
BasicPayScales–Sergeants&InspectorsYearsofService
CurrentInspectorRateB
Est.PostLCR*
1 € 51,660 €56,3152 € 52,532 €57,1873 € 53,974 €58,6294 € 55,606 €60,2615 € 55,606 €60,2616 € 55,606 €60,2617 € 57,243 €61,898
YearsofService
CurrentInspectorRateA
Est.PostLCR*
1 € 53,404 €58,0592 € 54,305 €58,9603 € 55,794 €60,4494 € 57,483 €62,1385 € 57,483 €62,1386 € 57,483 €62,1387 € 59,178 €63,833
YearsofService
CurrentSergeantRateB
Est.PostLCR*
1 € 44,725 €49,3802 € 45,795 €50,4503 € 46,919 €51,5744 € 48,131 €52,7865 € 48,131 €52,7866 € 48,131 €52,7867 € 49,368 €54,0238 € 49,368 €54,0239 € 49,368 €54,02310 € 49,368 €54,02311 € 49,368 €54,02312 € 49,368 €54,02313 € 51,385 €56,040
YearsofService
CurrentSergeantRateA
Est.PostLCR*
1 € 46,229 €50,8842 € 47,337 €51,9923 € 48,493 €53,1484 € 49,755 €54,4105 € 49,755 €54,4106 € 49,755 €54,4107 € 51,034 €55,6898 € 51,034 €55,6899 € 51,034 €55,68910 € 51,034 €55,68911 € 51,034 €55,68912 € 51,034 €55,68913 € 53,119 €57,774
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 19
BasicPayScales–ChiefSupt.&Supt.
YearsofService
CurrentChiefSuptRateB Est.PostLCR*
1 € 79,699 € 84,354 2 € 83,155 € 87,810 3 € 87,142 € 91,797 4 € 92,629 € 97,284 5 € 92,629 € 97,284 6 € 92,629 € 97,284 7 € 94,998 € 99,653
YearsofService
CurrentChiefSuptRateA Est.PostLCR*
1 € 82,278 € 86,933 2 € 85,853 € 90,508 3 € 89,976 € 94,631 4 € 95,653 € 100,308 5 € 95,653 € 100,308 6 € 95,653 € 100,308 7 € 98,100 € 102,755
YearsofService
Current Supt Rate B
Est. Post LCR*
1 € 66,636 € 71,291 2 € 68,951 € 73,606 3 € 70,948 € 75,603 4 € 72,942 € 77,597 5 € 74,940 € 79,595 6 € 74,940 € 79,595 7 € 74,940 € 79,595 8 € 77,608 € 82,263
YearsofService
Current Supt Rate A
Est. Post LCR*
1 € 68,835 € 73,490 2 € 71,228 € 75,883 3 € 73,291 € 77,946 4 € 75,354 € 80,009 5 € 77,377 € 82,032 6 € 77,377 € 82,032 7 € 77,377 € 82,032 8 € 80,116 € 84,771
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 20
AtTmeofwriTngnodecisionhadbeenmadeastotheconsequencesoftheADHocLabourCourtrecommendaTonforthesegrades
LabourCourtRecommendaTonInthecaseofindividualmembers,therecommendaTonfortheGRAandAGSIwillprovideextraremuneraTonofaround€4,000onaveragetoamemberoftheServiceoverthenext12monthsthrough:• Anincreaseinthevalueoftherentallowanceby€500bringingitto€4,655perannumwith
effectfrom1January2017• TheintegraTonoftherentallowanceinthenewamountof€4,655intosalarywith
consequenTalincreasesinunsocialhoursandoverTmepaymentsalsowitheffectfrom1January2017
• TheintroducTonofa€15premiumpaymentperannualleavedaytocompensatefortheuncertaintyajachingtothetakingofleavebyGardaí.Thispaymentwillbeworth€510perannumtoaGardawith34daysannualleave
• TheimplementaTonofalong-standingrecommendaTonoftheGardaInspectoratethroughtheintroducTonofpaid15-minutepre-tourbriefingortaskingsessionswitheffectfrom1January2017
• Newrecruitswhodonotcurrentlyreceiverentallowance,willhaveitrestored,inaddiTontotheotherimprovementsjustlisted.InaddiTon,theincrementfreezeinplaceforGRAmemberssince1Julywillbelihedandanyarrearsarisingfromincrementsforegonewillbepaid
• SourceAnswertoPQTuesday,15November2016,TánaisteandMinisterforJusTceandEquality.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 21
PostLCRScalesRank Minimum Point Maximum Point
Garda € 30,400.00 € 50,448.00
Sergeant € 50,884.00 € 57,774.00
Inspector € 58,059.00 € 63,833.00
Superintendent TBD TBD
Chief Superintendent TBD TBD
These refer to “A” PRSI scales only
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 22
Therevisedsalaryscalesthatwillcomeintoeffecton1January2017areinpreparaTonandwerenotavailabletome.IhavehereforeesTmatedthefigureabove
PensionRelatedDeduc?on
• Pension-RelatedDeducTon(PRD)isadeducTonfromtheremuneraTon(pay)ofpensionablepublicservants.ItisprovidedforunderthetermsoftheFinancialEmergencyMeasuresinthePublicInterest(FEMPI)Act2009,asamended.MostrecentlythatActhasbeenamendedinrespectofPRDbytheFEMPIAct2015,whichprovidesforaneasingofthePRDburdenonaffectedpublicservantsbywayofrevisedthresholdsapplyingfrom1January2016and1January2017.ThePRDformspartofawidersetoffinancialemergencymeasuresaffecTngpublicservicepayandpensionsdirectedatsecuringastabilisaToninthepublicfinances.
• Witheffectfrom1January2016theratesofthededucTonandthebandsofremuneraTontowhichtheseratesapplyareasfollows:
• AmountofremuneraTonupto€26,083isexemptbutanyexcessover€26,083butnotover€60,000issubjecttoadeducTonof10%andanyamountover€60,000issubjecttoarateofdeducTonof10.5percent.ToillustratethisitshouldbenotedthataGardaearning€63,000perannumisliabletoareducTonof€3,700or5.9%.ItmustbepointedoutthatwhileallpublicservantsareliableforthisdeducTonitisnotacontribuTontotheirpensionsscheme;itissimplyadeducTonfromearnings.TherateofdeducTonwillreducefrom1January2017,whenthesameGardawillsufferadeducTonof€3,440or€260lessthaninthepreviousyearassumingnochangeinearningoverthetwoyears.ThebenefitofthesereducTonsinrateswillbeconsiderablygreaterforGardaíearninglessthanaverageearnings.ItisessenTalthatPRDistakenintoaccountwhenmakingacomparisonwithearningsintheprivatesectorasthisdeducTonappliesonlytocivilandpublicservants.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 23
Allowances• InaddiTontobasicsalaryGardaíarepaidallowances.Therearecurrently54allowances;notall
Gardaíareeligibleforallofthemandmanyaremutuallyexclusive• AllowancesamounttoaverysignificantproporTonofthetotalearningsofGardaí,Sergeantsand
InspectorsbutformasmallerproporTonofthepayofthehigherranks• TheraTonalefortheseallowances,whichwerefirstintroducedintheGardaSíochánaAllowances
Order1924and1926,andthroughsubsequentnegoTaTons,reflectsinparttheuniquenatureoftheworkofAnGardaSíochána
• BoththeConroyCommission(1970)andtheRyanCommijeeofEnquiry(1979)recognisedthisuniqueness.Ithasbeenacceptedthatthejobcannotbedoneproperlywithoutincurringtheseallowancesthatarepaidtomembersintheperformanceofduty.TheallowanceswerenegoTatedoverTmeandweredeemednecessarytotheworkofAnGardaSíochána.IndeedtheConroyCommissionrecognizedtheimportanteffecttheseallowanceshadonmoraleandmoTvaTon.Iconcurwiththeirassessmentoftheimportanceofallowances
• IacceptthatofficialsfromtheDepartmentofJusTce&Equality,andtheDepartmentofFinance,whopresidedovertheiniTalgranTngorsubsequentincreasingoftheseallowances/expensesfortheGardaSíochánathroughtheirownspecificConciliaTonandArbitraTonScheme(referredtoinalaterchapter)duringthefourdecadesofthesenegoTaTons,weresaTsfiedthattheallowanceswereinthefirstinstancewhollynecessary,giventheuniquenatureoftheorganisaTonandtheenvironmentinwhichitoperates.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 24
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 25
TheseallowanceswerelastexaminedbytheHousesoftheOireachtasCommijeeofPublicAccountsinitsReportonPublicSectorAllowancesdatedNovember2012Reference31/CPAS/005.IagreewiththeopinionofOireachtascommijeethat:“Theterm‘allowances’isofitselfasourceofconfusionandmasksseparateanddisTnctgroupsofcompensaTon.TheuseofsingletermtodescribecompletelydifferentpaymentsisbringingtheenTresystemintodisrepute.”ItisasourceofjusTfiableannoyancetothememberofAGSthattheyareohenridiculedbecausetheseallowancesarewidelymisunderstoodormisrepresented.ButthatitmustalsobesaidthatsomeoftheseallowancesdonotserveanyusefulpurposeandshouldbedisconTnued.ClearlythereisaneedtoreformthesystemofallowancesandtoretainonlythosethatserveausefulfuncTon.
Earnings• AccordingtotheCentralStaTsTcsOffice(CSO)theaveragegross
payinAnGardaSíochánainQ2of2016was€68k--thatis4.7%higherthanoneyearearlier.Theaveragepayoverthefourquartersof2015was3.4%higherthanthefourquartersin2008
• FigurederivedfromDPERandgiventomebytheCSOshow
averageannualearningsof€70.7kfor2016and€69.6kfor2015,comparedto€85.8kin2009
• ThefiguresaretakenfromtheCSOEarnings,Hoursand
EmploymentCostsSurvey(EHECS).EHECSreplacedboththefour-yearlyLabourCostsSurveyandallotherCSOshort-termearningsinquiriesfromQ12008
• Thefiguresarecrudeaveragesandincludeallranks
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 26
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 27
ItshouldbenotedthatthefiguresforearningsaregrossamountsbeforededucTonsforPRSI,taxandotherlevies.ThisisparTcularlyrelevanttothepublicsectorsinceMarch2009whenthepensionlevywasintroduced.TheCSOcauTonsthatchangesinthecomposiTonofemployeesinagivensectororgrouphasaneffectontheaveragelevelsofearningsandpaidhoursoverTme.Forexample,iftheproporTonofpart-Tmeemployeesincreaseswithinasectorthenitwouldbeexpectedthattheaverageweeklyearningsandpaidhourswouldfallinthatsectorevenifthehourlypayrateswereunchanged.Also,esTmatedaveragesdonotreflectdifferencesincharacterisTcsofthejobortheemployees,andsinceEHECScollectsaggregatedatafromeachenterpriseitisnotpossibletocorrectforsuchdifferencesusingEHECSdata.TheCSOalsopointsoutthatbecausemanypublicsectoremployeesarepaidonthebasisofincrementalscales,recruitment,parTcularlyatlowerlevels,tothesesectorswouldgenerallyresultinadepressiontoaverageearnings.Theabsenceofrecruitmenthastheoppositeeffect.EarningsareinclusiveofoverTmeandirregularearnings.ThevariabilityofthesecomponentscanimpactontrendsoverTme.ThereducToninemployeenumbersacrossthepublicsectorwillalsoimpactonaverageearnings.ConsideraTontothesefactorsshouldbegivenwheninterpreTngresults.
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 28
1,000.00
1,050.00
1,100.00
1,150.00
1,200.00
1,250.00
1,300.00
1,350.00
1,400.002008Q1
2008Q2
2008Q3
2008Q4
2009Q1
2009Q2
2009Q3
2009Q4
2010Q1
2010Q2
2010Q3
2010Q4
2011Q1
2011Q2
2011Q3
2011Q4
2012Q1
2012Q2
2012Q3
2012Q4
2013Q1
2013Q2
2013Q3
2013Q4
2014Q1
2014Q2
2014Q3
2014Q4
2015Q1
2015Q2
2015Q3
2015Q4
2016Q1
2016Q2
AverageWeeklyEarningsAGS(Euro)
AverageWeeklyEarnings(Euro)
SourceCSO
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 29
24.00
25.00
26.00
27.00
28.00
29.00
30.00
31.00
2008Q1
2008Q2
2008Q3
2008Q4
2009Q1
2009Q2
2009Q3
2009Q4
2010Q1
2010Q2
2010Q3
2010Q4
2011Q1
2011Q2
2011Q3
2011Q4
2012Q1
2012Q2
2012Q3
2012Q4
2013Q1
2013Q2
2013Q3
2013Q4
2014Q1
2014Q2
2014Q3
2014Q4
2015Q1
2015Q2
2015Q3
2015Q4
2016Q1
2016Q2
AverageHourlyEarnings(Euro)
AverageHourlyEarnings(Euro)
SourceCSO
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 30
37.0
38.0
39.0
40.0
41.0
42.0
43.0
44.0
45.0
46.0
2008Q1
2008Q2
2008Q3
2008Q4
2009Q1
2009Q2
2009Q3
2009Q4
2010Q1
2010Q2
2010Q3
2010Q4
2011Q1
2011Q2
2011Q3
2011Q4
2012Q1
2012Q2
2012Q3
2012Q4
2013Q1
2013Q2
2013Q3
2013Q4
2014Q1
2014Q2
2014Q3
2014Q4
2015Q1
2015Q2
2015Q3
2015Q4
2016Q1
2016Q2
AverageWeeklyPaidHours(Hours)
AverageWeeklyPaidHours(Hours)
SourceCSO
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 31
PayrolldataforGardaPayIhaveanalyzedthepayrolldatafor2015,asthisgivesthemostreliablesourceofearningfor2015.ButevenheresomecaveatsmustbemadeininterpreTngthedata.InparTcularitmustbenotedthatforpayrollpurposes2015wasa53-weekyearandthisincreasesthefigurebyabout2%.However,frompayrolldatawecannowseeamoredetailedandaccuratepictureoftheearningsforalltheranksofAnGardaSíochánathanisavailablefromothersources.
AllRanksAveragePayforallmemberswas
€63,450in2015
12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 32
*Ifnewrecruitsandthosewhowerepaidarrearsin2015areincludedtheaverageforGardaíis€62,911andifallthosewhoearnedlessthat€40k(thesemostlikelydidnotworkafullyear,forsomereason)arealsoincludedtheaverageis€60,278(1)Thesefigureswillincreasebyabout€4,000in2017asaaresultoftheacceptanceofLabourCourtRecommendaion
GardaRankOnlyDistribu?onofEarningsofGardaí2015
(excludingnewrecruits)
• TenpercentofGardaíearnedmorethan€74,000• OnequarterofGardaíearnedmorethan€66,300• HalfofGardaíearnedmorethan€62,350• OnequarterofGardaíearnedlessthan€59,300• TenpercentofGardaíearnedlessthan€54,000butsomeoftheseappearnottohavebeenpaidforafullyear
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SergeantsOnlyDistribu?onofEarningsofSergeants
• TenpercentofSergeantsearnedmorethan€84,700• OnequarterofSergeantsearnedmorethan€77,000• HalfofallSergeantsearnedmorethan€71,000• OnequarterofallSergeantsearnedlessthan€67,300• Tenpercentofsergeantsearnedlessthan€63,000butsomeoftheseappearnottohavebeenpaidforafullyear
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GardaRank:SalaryandAllowancesAnalysis(2015Oujurn)
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ExpenditureCategory GardaRankSalaries €443,907,441UnsocialAllowance €97,400,560FixedAllowance €56,060,362ExpenseAllowance €7,030,745GardaOverTme €40,491,214PRSI €52,609,191
Salaries
UnsocialAllowance
FixedAllowance
ExpenseAllowance
GardaOverTme
PRSI
SergeantRank:SalaryandAllowancesAnalysis(2015Oujurn)
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ExpenditureCategory SergeantRankSalaries €94,660,987.00UnsocialAllowance €19,848,265.00FixedAllowance €11,161,408.00ExpenseAllowance €1,340,175.00GardaOverTme €12,108,528.00PRSI €6,842,655.00
Salaries
UnsocialAllowance
FixedAllowance
ExpenseAllowance
GardaOverTme
PRSI
InspectorRank:SalaryandAllowancesAnalysis(2015Outturn)
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ExpenditureCategory InspectorRank
Salaries €14,769,361UnsocialAllowance €2,776,087FixedAllowance €1,717,844ExpenseAllowance €316,621GardaOverTme €4,006,857PRSI €625,333
Salaries
UnsocialAllowance
FixedAllowance
ExpenseAllowance
GardaOverTme
PRSI
Sample Garda Earnings Garda“A”:HighOverTmeEarnerRecruited1998withtotalearningsof€75,085.58BASIC SALARY €44,545.97 OVERTIME X 1.5 €9,486.40 SUNDAY ALLOWANCE €5,043.00 RENT €4,220.39 NIGHT DUTY ROSTERED €3,438.90 NON-PUBLIC DUTY X 2 €2,337.00 PUBLIC HOLIDAY ALLOWANCE €1,680.96 NON-PUBLIC DUTY X 1.5 €1,145.45 NIGHT DUTY 6-8 ROSTERED €823.08 ANNUAL PREMIUM PAYMENT €820.39 NIGHT DUTY NON-ROSTERED €353.62 SATURDAY ROSTERED €264.18 OVERTIME X 2 €246.00 UNIFORM ALLOWANCE G/S (N/T) €139.39 BOOT ALLOWANCE (N/T) €93.28 UNIFORM ALLOWANCE G/S (T) €88.51 NON PUBLIC DUTY NIGHT DUTY 8-8 €87.13 NIGHT DUTY 6-8 NON-ROST. €64.89 SATURDAY NON-ROSTERED €62.16 BOOT ALLOWANCE (T) €58.83 NON PUBLIC DUTY SATURDAY ALL €45.06 NON-PUBLIC DUTY 6-8 €40.99 TOTALGROSSPAY €75,085.58
BASICSALARY
OVERTIMEX1.5
SUNDAYALLOWANCE
RENT
NIGHTDUTYROSTERED
NON-PUBLICDUTYX2
PUBLICHOLIDAYALLOWANCE
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Sample Garda Earnings Garda“B”:Workinginacountryarearecruitedin2009withtotalearningsof€56,697.48
BASIC SALARY €39,304.80 RENT €4,220.39 NIGHT DUTY ROSTERED €4,065.12 SUNDAY ALLOWANCE €3,239.40 OVERTIME X 1.5 €1,828.10 PUBLIC HOLIDAY ALLOWANCE €1,460.72 ANNUAL PREMIUM PAYMENT €786.14 SATURDAY ROSTERED €388.50 OVERTIME X 2 €356.27 NIGHT DUTY 6-8 ROSTERED €322.12 NIGHT DUTY NON-ROSTERED €175.89 NON-PUBLIC DUTY X 2 €142.51 UNIFORM ALLOWANCE G/S (N/T) €139.39 BOOT ALLOWANCE (N/T) €93.28 UNIFORM ALLOWANCE G/S (T) €88.51 BOOT ALLOWANCE (T) €58.83 NIGHT DUTY 6-8 NON-ROST. €27.51 Total €56,697.48
BASICSALARY
RENT
NIGHTDUTYROSTERED
SUNDAYALLOWANCE
OVERTIMEX1.5
PUBLICHOLIDAYALLOWANCEANNUALPREMIUMPAYMENTSATURDAYROSTERED
OVERTIMEX2
NIGHTDUTY6-8ROSTEREDNIGHTDUTYNON-ROSTERED
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Sample Garda Earnings Garda“C”:Averageearnerinatownrecruitedin1999withtotalearningsof€63,029.74
BASIC SALARY €42,800.15 SUNDAY ALLOWANCE €4,522.28 RENT €4,220.39 NIGHT DUTY ROSTERED €4,111.64 OVERTIME X 1.5 €2,319.28 PUBLIC HOLIDAY ALLOWANCE €1,413.23 ANNUAL PREMIUM PAYMENT €758.88 PREM PAYMENTS - INJURY ON DUTY €645.62 NIGHT DUTY 6-8 ROSTERED €465.98 ILLNESS/OIB PRSI/USC PAY €407.30 NON-PUBLIC DUTY X 1.5 €354.54 SATURDAY ROSTERED €264.18 UNIFORM ALLOWANCE G/S (N/T) €139.39 OVERTIME X 2 €118.18 NIGHT DUTY NON-ROSTERED €98.48 BOOT ALLOWANCE (N/T) €93.28 UNIFORM ALLOWANCE G/S (T) €88.51 NON-PUBLIC DUTY X 2 €78.79 BOOT ALLOWANCE (T) €58.83 NON PUBLIC DUTY NIGHT DUTY 8-8 €29.54 NIGHT DUTY 6-8 NON-ROST. €19.69 NON PUBLIC DUTY SATURDAY ALL €15.02 NON-PUBLIC DUTY 6-8 €6.56
TOTAL €63,029.74
BASICSALARY
SUNDAYALLOWANCE
RENT
NIGHTDUTYROSTERED
OVERTIMEX1.5
PUBLICHOLIDAYALLOWANCE
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ThereisnoobviousevidencethatAGSearningshavefallenoutoflinesignificantlyWithotherpublicsectoremployees.
GardaPensions
• InaddiTontoannualremuneraTon,membersofAnGardaSíochánaaccrue
pensionrightseachyear.Whileitisdifficulttoplaceaprecisevalueonthesebenefits,anyreviewofremuneraTonmustincludeconsideraTonofthemastheyareahighlyvaluedcomponentoftotalremuneraTonandformaverysignificantproporTonoftotalpayrollcost.
• TherearecurrentlythreeschemesinoperaTon.Thefirsttwoareoperatedunder
theTheGardaSíochánaSuperannuaTonSchemeandapplytoallmemberswhowereajestedbefore1January2013.ThestatutorytermsandcondiTonsoftheschemesaresetoutintheGardaSíochánaPensionsOrders,1925to1981,andagreementsundertheGardaSíochánaConciliaTonandArbitraTonScheme.
• Therearenotrustees.Thereisnofund.• Expenditureundertheschemesismetfromcurrentrevenueandisauditedbythe
ComptrollerandAuditorGeneral.
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UpunTl2008,pensionswereincreasedinlinewithpayincreasesandfromthesameeffecTvedateasthatapplyingtoservingmembersoftheGardaSíochána.Since1January2011pensionsmaybesubjecttothePublicServicePensionReducTon(PSPR).ThePublicServicePensionReducTon(PSPR)wasintroducedon1January2011undertheFinancialEmergencyMeasuresinthePublicInterestAct2010(“FEMPI2010”).Inallcases,thePSPRhasbeenlimitedtoensurethattherateofpensiondoesnotfallbelow€32,500perannum.ThetermsandcondiTonsofPSPRhavebeenrevisedperiodically,mostrecentlyunderthechangestothePublicServicePensionReducTon(PSPR)whichhavebeenlegislatedaspartoftheFinancialEmergencyMeasuresinthePublicInterestAct2015(“FEMPI2015”).MostnoTceableisthe“graceperiod”forpensionawards,whichhasbeenextendedto1April2019.DuringthegraceperiodnewreTrementpensionsareawardedbyreferencetohighersalariesthanthereTreesactuallyearned(beingthesalariespaidjustbeforethepublicservicepaycutsofJanuary2010).
Mainprovisions• MembershipofthemainpensionschemeiscompulsoryforallmembersajestedtotheForcebefore1January2013andmembershipcommencesfromdateof
ajestaTon.• Theschemeisacontributoryone.PeriodicdeducTonsaremadefrompensionableremuneraTonduringpensionableservicewiththeforceunTlthedateof
discharge.AdeducTonof1.75%ofbasicpay,rentallowanceandpensionableUnsocialHoursAllowancesismadefromtheweeklysalaryofservingmembers.ContribuTonArrangementsformembersrecruitedaher5April,1995RevisedcontribuToncondiTonsapplytomemberswhowererecruitedaher5April,1995andwhopayClassA(P.R.S.I.)contribuTonsandareinreceiptofahigherrateofpay.ThecontribuTonfrompayisattherateof1.5%oftherelevantpayplus3.5%oftherelevantpay(reducedbytwicetherateofSocialWelfareOldAgePension).SuperannuaTonbenefits-whenco-ordinatedwithSocialWelfareenTtlements-ofthesemembersarecomparabletoexisTngmembers.ContribuTonstotheSchemeareapprovedbytheRevenueCommissionersforthepurposesofTaxRelief
• ThemainbenefitspayableundertheschemearepensionandreTrement/deathgratuity.PensionandReTrementgratuitypaymentsaredeterminedby:
• totalreckonableservice(maximum=40years)and• .pensionableremuneraTononlastdayofreckonableservice
Pensionandgratuityarepayableforeachyear(andporTonofayear)ofreckonableserviceatthefollowingrates:Pension:1/80thofreckonableremuneraTon,Gratuity:3/80thsofreckonableremuneraTon.
• Thepensionpayable(otherthanaSpecialPension)is40/80ths(0.5)ofpensionableremuneraTonandgratuityis120/80ths(1.5)TmespensionableremuneraTon.ApprovedserviceaherthetwenTethyearofserviceisdoubledforpensionpurposes.Accordingly,amemberwith30yearsapprovedservicehasfulfilledtheservicerequirementtobeawardedmaximumsuperannuaTonbenefits:-30yearsactualservice=20+20(10yearsdoubled)==>40yearsreckonableserviceDeathGratuity(payableonlywheredeathoccurspriortoreTrement),themember'slegalpersonalrepresentaTvereceivesaminimumof1year'spensionableremuneraTonoruptoamaximumof1.5years'pensionableremuneraTon.InordertobeeligibleforsuperannuaTonbenefits(otherthanDeathGratuity)themembermusthaveatleast2yearsapprovedservice.ReTrementonpensionrequiresthatthememberajaintheageof50yearsandhaveatleast30yearsapprovedservice.NewentrantsappointedtoAnGardaSíochánaaher1April,2004cannotreTreonpensionunTlajaining55yearsofage.
• ThePublicServiceSuperannuaTon(MiscellaneousProvisions)Act,2004providedthatnewentrantsappointedtoAnGardaSíochánaaher1April,2004cannotreTreonpensionunTlajaining55yearsofageandmayreTreatalaterdateupto60yearsofagesubjecttotheGardaCommissionerbeingsaTsfiedastohealthandcapabilityrequirements.
• ThereTrementageformembersofAnGardaSíochánawasextendedfromage57toage60witheffectfrom22December,2006.
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TheGardaSíochánaSpouses'&Children'sContributoryPensionScheme
• TheGardaSíochánaSpouses'&Children'sContributoryPensionSchemecameintoforceinrespectofmembersreTringfrom23July,1968.Thisschemeprovidesapensionforthespouseand/ordependentchildrenofamemberwhodiesinserviceorhavingqualifiedforapensionorpreservedpension.
• TheSchemeisgivenstatutoryeffectbyvirtueoftheGardaSíochánaPensionsOrder,1981andmembershipoftheSchemeiscompulsoryformalemembersappointedonoraher1January,1972andforallmembersappointedfrom1July,1984.
• TheSchemeisacontributoryone.
• AdeducTonof1.5%ofbasicpay,rentallowanceandpensionableUnsocialHoursAllowancesismadefromthesalaryofservingmembers.Normally,theschemerequirescontribuTonsinrespectof40years.ContribuTonsoutstandingatreTrement/deatharedeductedfromgratuiTesattherateof1%ofbasicpayinrespectofeachoutstandingyearandpartthereof.OutstandingcontribuTonsarealsodeductedfromgratuiTesinrespectofpensionableallowancesattherateof1%inrespectofservicepriorto1March,1985(1/1/94inthecaseofUnsocialHoursAllowances).InthecaseofallowanceswherenoperiodicdeducTonsweremade,deducTonshavetobemadefromgratuiTesforservicesince1March1985also,attherateof1.50%.
• ThecosttotheExchequeroftheSuperannuaTonbenefitsforsurvivingdependentsofformermembersoftheGardaSíochánaismeteachyearoutofcurrentrevenue.ContribuTonstotheSchemeareapprovedbytheRevenueCommissionersforthepurposesofTaxRelief.
• TheschemeisadefinedbenefitschemeforthepurposesofthePensionsAct,1990.
• Aspouse'scontributorypensionisnormallyhalfthelatemember'spensionenTtlement.
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SinglePublicServicePensionScheme
• ThethirdschemeappliestoallmembersoAnGardaSíochánarecruitedaher1January2013whomustbecomeamemberoftheSinglePublicServicePensionScheme.
• TheSchemeprovidesapensionandreTrementlumpsumbasedoncareeraveragepensionableremuneraTon.ThereisafacilityforearlyreTrementfromage55onacostneutral(actuariallyreduced)basis.ThereisalsoafacilityforearlyreTrementonmedicalgrounds,subjecttocertaincondiTons.AdeathinservicebenefitoftwiceannualpensionableremuneraTonisalsoprovided.ThepensionisindexaTonlinkedtoCPIincreases.
• AccrualandPaymentofbenefits• Membersaccrue(i.e.buildupoverTme)referableamounts(i.e.moneyamounts)forpensionandlumpsumforeachyearofworkorpartthereof
basedonpensionableremuneraTonatthatTme.• Pension:Accrualrateof0.58%ofpensionableremuneraTonuptoaceilingof3.74XStatePensionContributory(SPC)(currently€45,000)PLUS
(whereapplicable)1.25%ofpensionableremuneraTonabovethatlevel.• Lumpsum:Accrualrateof3.75%ofpensionableremuneraTon.• ReferableamountsareadjustedannuallybyreferencetoincreasesinCPIandaggregatedreferableamountsconTnuetobeup-ratedunTl
reTrement.• Accruedandup-ratedreferableamountsoveracompletecareerareaddedtogethertoproducethepensionandlumpsumvaluesonreTrement.• Membersreceiveanannualbenefitstatementshowingpension/lumpsumamountsaccruedtodate.oFollowingreTrement,pensionisincreasedin
linewith• risesinCPI;ifCPIfalls,thepensionisnotreduced.
Member’slegalpersonalrepresentaTvewillreceiveacapitalsum(equaltotwiceannualpensionable• remuneraTon)shouldthememberdieinservice.
Pensionsarepayabletoaspouseorcivilpartnerandtoeligiblechildren,asdefinedintheScheme,ina• caseofdeath(beforeoraherreTrement).
SchememembersordinarilypayfullsocialinsurancecontribuTonsandareeligibletoreceiveaStatePensionContributory(SPC)(subjecttopayingsufficientPRSIcontribuTonsandothercriteriathatmayapplyfromTmetoTme),inaddiTontooccupaTonalpension.Consequently,theSPCistakenintoaccountwhencalculaTngpensionsunder
• theScheme.ThisisknownasintegraTon.
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TheValueofGardaPensionsaspartofTotalRemuneraTon
NeithertheDepartmentsofJusTceandEqualitynorDPERwereabletoprovidemewithesTmatesofthevalueoftheSuperannuaTonSchemestomembersofAGS.• Itisdifficulttoplaceavalueonthesebenefits.Ihave,however,madesomeesTmatesof
theirvaluebasedonthecostofthosepaymentsin2015• In2015thecostoftheSuperannuaTonschemewas€311m,ofwhich€36mwascontributed
bythe12,800acTvemembersofthescheme.Thisrepresentslessthan12%ofthecost.IfallmembershadtopaythefullcosttheywouldhavehadtocontributeanaddiTonal€275mor€21.5keach.Tofundthisinaher-taxincometheywouldhavetohavebeenpaidanaddiTonal€40kapproximately.ThisisequivalenttoanaddiTonal80%ofpayapproximately.ThiswouldbringtotalremuneraTonoftheaverageGardatotheequivalentofinexcessof€100kbeforetax
• Ontheotherhand,anotherwayofesTmaTngthevalueistoaskwhatcontribuTonwouldberequiredofapersonaged20whowishestofundapensionof€25kpayableatage50.AccordingtothePensionsAuthorityCalculatorthatpersonwouldberequiredtopayintheorderof€30kperannum,or50%ofearningseachyear,toachievethatgoal.ThevalueofthesuperannuaTonschemeisthereforeverysubstanTal,andisunderstandablyimportanttothosewhobenefitfromit
• IrealisethattheseesTmatesareroughandready,andamoreaccuratevaluaTonshouldbeconductedonthevalueofthesebenefits.IamconfidentthatthePSPCwilldosuchanexercise.
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THEHISTORYANDFUTUREREQUIREMENTSOFPAYDETERMINATIONINAGS12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 49
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FrommyfamiliarisaTonmeeTngswithGardaí,SergeantsandInspectors,andSuperintendentsandChiefSuperintendents,itwouldappearthattheydonotbelievethatthefullextentoftheirduTesandresponsibiliTesistakenintoaccountindeterminingtheirpay.TheyfeelthatbecauseofmanynewfactorsandincreasingworkloadtheirbasicpayscaleisnotreflecTveoftherealjobtheyperform.SergeantsaddiTonallyfeelthattheextrarecentstatutoryresponsibiliTesarenotrecognisedintheirremuneraTon.ThesefeelingandbeliefswerereinforcedbythewrijenandoralsubmissionsoftherepresentaTvesofallfourAssociaTons.ThereislijleconfidenceamongstmembersofAGSthatImetinthewayinwhichtheirpayisdetermined,butneitheristheremuchknowledgeabouthowitisdetermined.ThisisunderstandableasupunTlnowthereisnoobviousevidencethatanyorallofthefactorsthatshouldbetakenintoaccountareinfacttakenintoaccountorgivendueweightinsefngtheirbasicpayscales.ItisunnecessaryformetoretellthestoryofpaydeterminaToninitsearlyhistory;itiswellrecountedintheworksIhavereferencedinAppendix3.HoweverIdowishtopointoutwhatIconsidertobeunsaTfacoryaspectsofthetwomoreimportantrecentexercises,theConroyandRyanreports.
ConroyReport
• TheConroyreporthavinglookedatotherformulaoptedforthe“rateforthejob”:
• 288.IthasalsobeensubmiOedtousthatastheduGesandcondiGonsofserviceofaGardaarenotcomparablewiththoseofanyothergrouporoccupaGon,theproperprincipletobeappliedisthe"rateforthejob".
• 289.The"rateforthejob"involves(a)theconsideraGonoftheworkcontentofthejob;(b)theconsideraGonofthecondiGonsunderwhichtheworkiscarriedout;and(c)theconsideraGonofthepayscalesinotheremployments.ItalsoinvolvestheassessmentinmoneyofthevalueofthejobofaGardabearinginmindallthecondiGonsofemployment.
• 290.Weareofopinionthatthebestprimaryprincipletoadoptisthe"rateforthejob".• 291.AmongthefactorswhichwehaveconsideredinapplyingthisprinciplearetheeducaGonalrequirementsatentry,
training,perquisites,reGrementandsuperannuaGonrights,theinconveniencesanddisabiliGesaOachedtothejob(suchasinabilitytotakeupspareGmeemployment),long,irregularanduncertainhoursofwork,week-endandbankholidaywork,liabilitytotransferandstrictdisciplinaryregulaGons,producGvity,thespecialposiGonofaGarda,andthefactthathisworkis"suigeneris".
• 319.OurrecommendaGonsarebasedonalltherelevantfactorsmakinguptheworkcontentofthejobofaGardaandonhisvaluetothecommunity.
• 320.InmakinganassessmentofwhatshouldbethebasicpayofaGardawealsoboreinmindthatacompellingcasehasbeenmadethattheduGesandcondiGonsofserviceofapolicemanareunique,andhavebeenrecognisedasbeingsoinallothermajorinvesGgaGonsofpoliceworkandpay.
• 322.Weaccepttheargumentthatpoliceworkhasbecomemoreonerous,complexanddemandinganddemandsahighereducaGonalstandard.ThesefactorsshouldberecognisedbyappropriatepayandbyimprovementsincondiGonsofservice.
• Conroyrejectedtheuseofthe“WillinkFormula”because• 284.NomathemaGcalorlogicalbasishasbeengivenforthedeterminaGonofthepercentageincreasesof45%and25%.In
theabsenceofanysaGsfactoryreasonforfixingthesepercentageincreases,wedonotaccepttheWillinkFormulaasasuitableformulaforapplicaGoninIrishcondiGons.
• ButthenConroyrecommendsratesofpaywithoutanyobjecTveanalyTcal,mathemaTcalorlogicalassessmentofthefactorsthatshouldbetakenintoaccount.
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TheRyanReport• TheRyanreportadoptedthesameapproach:• 3.95HavingweighedalltheseconsideraGons,andcarefully
assessedalltheargumentsputforwardinthewriOensubmissionsandattheoralhearings,werecommendthatthebasicpayforthoseranksoftheGardaSíochánacomingwithinourtermsofreferenceshouldbeassetout'inTable3.3below.
• BothoftheseapproachesrelysolelyonthepersonalviewsoftheauthorsofthereportandgivenoguidanceastotherelaTveimportancetheyplacedonthevariousfactorsthattheytookintoaccount.Thishasthedangerofbeingarbitraryandopaque.Whileinthepastemployeesmayhavebeenpreparedtoaccepttheopinionofjudgesorotherrespectedmembersoftribunalsasfair,thisisnolongerthecaseandwhatisneedednowisanopenandtransparentsysteminwhichtherepresentaTvesofemployeesarefullyinvolved.
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BasicprinciplesthatshouldapplytothesystemofpaydeterminaTonforAGS
NBTheseelevenprincipleswerecirculatedasaworkingdocumenttoallparGcipantsduringthecourseofourmeeGngsanddiscussedinsomedetailastheyapplytothePSPC.
1. ItshouldbeopenandtransparentTheproceedingsanddocumentsshouldbeopentotheparTcipantsandthepublic
2. ItshouldbebasedonfactualevidenceWhereevidenceuseditshouldbeverifiableandverified
3. Itshouldbesystema?cThereshouldbeanagreedsystemofevaluaTng/assessingtheworkofmembersoftheforce.Thisreviewshouldagreetheframeworkandmethodologytobeused.
4. Itshouldbeasobjec?veaspossibleThedegreeofjudgment/discreTonshouldbenarrowed.Itshouldnotbereliantonthegoodwillorprejudiceofthepersonmakingthedecision.TheChairshouldbeindependentandacceptabletoallsides.
5. Itshouldbeequallybindingornotbindingonbothsides.Iftheoutcomeoftheprocessistobebindingononesideitshouldbebindingontheother.
6. ItshouldbefairandseentobefairtomembersofAnGardaSíochánaandtothepublic..Abalanceshouldbestruckbetweentherequirementtoremuneratethemembersoftheforceandthetaxpayers’abilityordesiretofundsame.
7. Itshouldbesubjecttofixedperiodicopera?onandreviewThereviewofremuneraTonshouldbeconducted,say,everyfiveyearsandareviewoftheoperaTonofthesystemevery20years,i.e.aherfourcycles.
8. Ifnecessary,itshouldbestatutorilybased.Forexample,thesystemmayprovidethatiftheofficialsidedoesnotimplementabindingdecision,thenaresoluTonoftheOireachtasmayberequired.
9. ItshouldaffordtheGardaRepresenta?veAssocia?onsandtheofficialsidemaximumpossibleinvolvementinthedesignandimplementa?onoftheprocess.ThiswillbeachievedthroughworkingthroughthisReview
10. ItshouldbeacceptabletoandexplicitlyacceptedbytheGardaAssocia?onsandtheOfficialside.OncethisReviewiscompletedtheMinisterforJusTceandMinisterforPublicExpenditureshouldindicatetheiracceptanceoftheseprinciplesandtheAssociaTonsshouldballottheirmembersontheproposals.OnlyifallparTesunambiguouslyacceptthenewsystemshoulditbeimplemented.
11. ItshouldbespecificallydesignedforAnGardaSíochánaanddealexclusivelywithGardapay.
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ConciliaTonandArbitraTon• GardaíhavehadamechanismfornegoTaTngandimprovingtheirpayand
condiTonsofemploymentsimilartocivilservants,namelyaConciliaTonandArbitraTonschemethatisstatutorilybasedandwhichwasrevisedbyagreementinMarch2004andbroughtintolinewithsimilarschemesinotherpartsofthepublicservice.
• ThatConciliaTonandArbitraTonschemewasthenegoTaTngmechanismestablishedforthepurposeofenablingtheMinisterforJusTce&Equality,theMinisterforPublicExpenditureandReform,andtheCommissionerofAnGardaSíochánaontheonehand,andtheRepresentaTveAssociaTonsontheotherhand,toprovidemeansacceptabletotheGovernmentandtheseGardaRepresentaTveAssociaTonsforthedeterminaTonofclaims,includingpayandallowancesandproposalsrelaTngtocondiTonsofServiceofmembersoftherankstheyrepresent.ThisschemehaditsshortcomingsanditsperceivedindependencewasquesToned.However,itshouldbepointedoutthatmostofitsdecisionswerebyagreementandbothsideswereeffecTvelyboundbythesedecisionsandthatitbroughtmanybenefitsandimprovementsinallowancesformemberoftheforce.
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AfurtherpurposeoftheC&Aschemewastosecureco-operaTonbetweentheState,asemployer,andthemembers,asemployees,forthebejerdischargeofthefuncTonsofAnGardaSíochána.Intheviewofmanagement,thishastheaddedeffectofpreservingindustrialharmony,maintainingconfidenceintheGardaindustrialrelaTonsmachineryandensuringthatanyvariaToninthetermsoftheseagreementsrequiredthattheybere-negoTatedwiththerepresentaTveassociaTon,inlinewithbestpracTce.ItisonlyfairtopointouthoweverthatinrecentyearstherepresentaTveassociaTonshavelostconfidenceinthisprocessandithasbecomeredundantandirrelevant.ThereareofcourseotherchannelsofcommunicaTonbetweenGardamanagementandmemberandtheseareinprocessofbeingdevelopedunderthecurrentHRplan.
AssessmentofCurrentArrangements
• Inthesensethatthereisany‘system’ofindustrialrelaTonsitcanbedescribedasanarchical,inthatitisdisorderedandiswithoutdefinedrulesofengagement.ItisnotworkingandbothsidesaredissaTsfiedwithit.NeitherisitmeeTngthepublic’sneedforadependablenaTonalpoliceandsecurityservice.Furthermore,itdoesnotmeettherequirementsofthe“Eurocop”decision.EuropeanConfederaTonofPolice(EuroCOP)–v-IrelandComplaintNo.83/2012
• Iamthereforerecommendinganewsystemthataddressesallthe
shortcomingsinthepresentsystemandwhich,inmyview,representsfairbalanceoftherightsandobligaTonsofalltheinterestedparTes
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RECOMMENDATIONSONNEGOTIATIONSTRUCTURES
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AFundamentalConfusion• Inmyview,thesourceofmanyofthedifficulTesthathave
arisenintheindustrialrelaTonsinAGSderivefromalackofclaritybetweenthreedifferentprocesses:– Informing– ConsulTng– NegoTaTng
• ThisconfusionisnotuniquetoAGSandinmyexperienceiscommoninmanytradiTonalunionisedemploymentsinIreland.ItleadstoamismatchinexpectaTons,forexamplewhenonepartytoadiscussionunderstandsthatthemajerisforconsultaTononlyandtheotherbelievesittobeamajerfornegoTaTonandagreement
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ClarificaTonofProcesses• ItisoftheutmostimportancethattheAssociaTonsandAGSmanagementclarifythat:
• InformaTonexchangeisnotconsultaTonornegoTaTon
• ConsultaTonisaprocessinwhichmanagementinformsemployeesofimpendingchangesandseeksemployees’views,butmanagementthendecidesthemajer
• NegoTaTonoccurswhenonesideproposesachangeandbothsidesthroughdiscussionreachagreement
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SeparateChannels
• ItwillbeimportantforthefuturethatbothAGSmanagementandtheAssociaTonsareclearastowhichprocessestheyareengaginginatanyoneTme.Forexample,itshouldbeclearthatmanagementpoliciessuchastheCommissioners’recent“ModernisaTonandRenewalProgramme2016-2021”shouldbeamajerforconsultaTonnotnegoTaTon
• ThatisnottosaythattheremaybemajersarisingfromitthatrequirenegoTaTon,butthosenegoTaTonswouldneedtobeinaseparateforumandclearlydelineatedinadvance
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TheIndustrialRelaTonsSysteminIreland• HistoricallyinIrelandoursystemofindustrialrelaTonsisbasedonanapproach
thatisdesignedtoencouragecollecTvebargainingasthebestwayofsefngpayandcondiTonsofemployment.ItisalsobasedontheassumpTonthatfreeandindependenttradeunionsfundedbytheirmembershipshould,inreturnforminimumstandardsofgovernance,haveimmunityfromlegalresponsibilityforthefinancialdamagetheycausetotheiremployerintheconductofstrikesinpursuanceofimprovementsinpayandcondiTonsofemployment.
• ThismodelwasdesignedprincipallyfortheprivatesectorandallowscapitalandlabourtoengageinacTviTesthatdamagetheeconomicinterestsoftheotherinthehopeofgainingalonger-termadvantage.Inotherwords,workersarefreetopeacefullywithdrawtheirlabourthroughconcertedacTonandforegotheiropportunitytoworkandearnwagesintheexpectaTonthattheiremployerwillsejlethedisputeratherincurthelossofproducTonandprofitthatastrikenecessarilyinvolves.
• Workersaccepthoweverthatitisnotintheirinteresttoinflictsomuchdamageastoputtheiremployeroutofbusinesspermanently.Neitherthetradeunionoritsmemberscanbeheldlegallyliableforthedamagecausedtotheemployer’sbusinessbutneitheristheemployerliablefortheincomelostbytheemployeewhileonstrike.ThisisthebalancethatisacceptedasfairinmostdemocraTcsocieTesanditisenshrinedingoodlabourstandardsworldwide.
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NormalisingIndustrialRelaTons• Myapproachinthisreportistobringthestructuresand
mechanismsinAGSintolinewithmodernnormsandbestpracTceinsofarastheyareappropriate,butnofurther
• InparTcular,ImustrecognisethattheuniquenatureofpoliceworkrequiresspecialfeaturesthatmustbeaccommodatedintheAGSindustrialrelaTonssystem
• IdonotbelievethethecriminallawhasaroletoplayinindustrialrelaTonsotherthaninthepreservaTonofpublicorder
• TheuseofthedisciplinarycodeissimilarlyinappropriateinAGSindustrialrelaTonsissuesaspeerpressuremayexposeindividualmembersofAGStoimpossiblepressuretoparTcipateinformsofindustrialacTonsorstrikesinwhichtheymightotherwisenotwishtoengage
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NormalizingTradeUnionStatus• IrecommendthatmembersofAGSshouldhavetherighttojoinindependent
tradeunionsandthatthoseunionsshouldhavetherighttobargaincollecTvelywiththeiremployer
• ThecurrentGardaRepresentaTveAssociaTonandtheAssociaTonofGarda
SergeantsandInspectorsare,inmyview,notproperlyconsTtutedorgoverned,astheiracTonsoverrecentmonthshaveclearlydemonstrated.PartofthereasonforthisisthattheyarenottradeunionsunderIrishlawandarenotthereforeboundbyanyoftheminimalgovernancemeasuresrequiredoftradeunionsthatoperateinIreland
• Forexample,theirballoTngpracTcesandproceduresforcallingstrikesare
unclear,andappearchaoTctooutsideobservers.IrecommendthereforethattheGRAandAGSIshouldimmediatelyplantobecomeregisteredtradeunions,withconsTtuTonsandrulebooksbasedonbestpracTceinIrishtradeunionism.IrecommendthattheyseektheadviceofICTUinachievingthisend
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NormalizingTradeUnionStatus(2)• ThesenewunionsshouldbefundedenTrelyfrommembers’
subscripTonsonly,andallsubsidiesfrompublicfundsincashorinkindshouldceaseimmediatelyotherthanthenormalestablishedpracTceforreasonableTmeoffforunionduTesasapplythroughoutthecivilandpublicservice
• TheLabourAffairsDivisionoftheDepartmentofJobs,Enterprise
andInnovaTonprovidedmeon2December2016withadocumentthatusefullyoutlinedthepracTcallegislaTveconsideraTonstoallowaccesstotheWRCandLabourCourtandfortheGRAandAGSItobecometradeunions.IunderstandthattheGovernmenthasgivenacommitmentthatthesechangeswillbeputinplacebyend2017
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NormalizingManagementRepresentaToninNegoTaTon
• IalsoconsideritunsaTsfactorythatindirectnegoTaTons,themanagementofAGSseemtotakeabackseatwhiletheDepartmentofJusTcemakestherunning.TheGardaCommissioneristheAccounTngOfficeranditwouldthereforebemoreappropriatethatthenegoTaTonofpayandcondiTonsofemploymentshouldbeentrustedtothemanagementofAGSacTng,ofcourse,withtheapprovaloftheDepartmentsofJusTceandPublicExpenditure--asappliestomanyotherareasofthepublicservice.
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NormalizingIndustrialRelaTonsinAGS
• IhaveconsideredcarefullyhowmuchofthenormalmodelofindusrialrelaTonscouldorshouldapplytoournaTonalpoliceserviceandmyrecommendaTonsarebasedontheconclusionthatmemberofAGSshouldenjoy,asfarasisappropriate,thesamerightsasallotherworkers.
• TheLabourAffairsDivisionoftheDepartmentofJobs,EnterpriseandInnovaTonhaspreparedthelistofemploymentrightslegislaTonthatisincludedatAppendix2.IrecommendthatmembersofAGSshouldhaveaccesstothisprotecTvelegislaTonincludingtheUnfairDismissalsAct1977,andtheOrganisaTonofWorkingTimeAct1997.
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ChecksandBalances• Howeveritmustberecognisedthatthechecksand
balancesthatapplyinaprivatesectoremploymentdonotapplyinthesamewayinthepoliceforce.WhenandifmembersofAGSwithdrawtheirlabour,theyforegopayfortheduraTonofthatwithdrawalbuttheemployerdoesnotlosethe‘output’;itisthemembersofthepublicwhosuffertheloss.Indeedtheemployersavesthewagesthatwouldotherwisebepaid.InthecaseofamonopolynaTonalpoliceforcethereisnoquesTonoftheemployergoingoutofbusinessbecauseofthedamagecausedbyastrike.Thenormalchecksandbalancedonotpertain.SomeaccommodaTonofthesefactorsmustthereforebebuiltintothesystemtomakeitappropriateforournaTonalpoliceforce.
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StrikesandIndustrialAcTon• Strikesshouldnothappeninthepoliceforce,especiallyasthisisa
monopolyserviceandthenaTonalsecurityserviceispartofthepoliceservice
• ThecurrentindustrialrelaTonssystemisclearlynotachievingthe
objecTveofavoidingstrikesinthepoliceservice.ItwasunTlrecentlyunderstoodorassumedthatas‘adisciplinedforce’themembersofAGScouldnotlegallygoonstrikeandwouldobeythelawinthatregard
• Recenteventshaveproventhiswrong.Forexample,aballotofmembers
oftheGRAindicatedthat95.3%ofitsmembersexpressedawillingnesstotakepartinindusrialacTon.ItisclearthatthevastmajorityofmembersofAGSisindeedpreparedtotakeindustrialacToninpursuitofimprovedtermsandcondiTonsofemployment.ThemembersofAGSIinfactengagedinindustrialacTonontwoFridaysinrecentweeks.InmyjudgmentthisisanunsaTsfactorystateofaffairsintheconductofindustrialrelaToninAGSandmustnotbeallowedtoconTnue
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ANewNegoTaTonProcessandAgreement
• IamthereforerecommendingthatinfuturepayandcondiTonsofemploymentshouldbedeterminedthroughcollecTvebargainingbetweenindependenttradeunionsrepresenTngtheinterestsofmembersofAGSontheonehandandthemanagementofAGSontheother.InAppendix1IhavesetoutaprocedureagreementthatincludesaccesstotheWorkplaceRelaTonsCommissionandtheLabourCourtwhendirectnegoTaTonsarenotsuccessful.ThatprocedureprovidesthatalldisputescanberesolvedinafairmannerwithoutrecoursetoindustrialacTonofanykindbyeitherside.IrecommendthatthisagreementberegisteredwiththeLabourCourtandthatallparTesagreetobeboundbyitsprovisions
• IfallparTesadheretothisagreementtherewillbenostrikesor“withdrawaloflabour”
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AlternaTveSancTons• However,havingregardtothecultureofAGS,andgiventherecentacTonsof
twooftherepresentaTvebodiesandthepossibilitythatindividualor‘unofficial’groupsmighttakemajerintotheirownhands,itismyconsideredviewthattheMinisterresponsibleforAGSonbehalfofallciTzensmustputinplaceanaddiTonalmeasuretoensureasfarapossiblethatstrikesdonottakeplace.WeknowfromhistorythatjailingtradeunionofficialsorleadersofanykindisnotpoliTcallyacceptabletothemajorityofciTzensandpoliTciansandthatsancTonswillsimplynotbeappliedifthereisanydiscreTonintheapplicaTonofthosesancTonstomembersofAGS.This,Isuggest,isapoliTcalrealityandtopretendotherwiseisnaïveandfoolish.
• IamthereforesuggesTngthatanautomaTcsancTonshouldbeappliedtoanymemberofAGSwhoengagesinindustrialacTon.Thiswouldofcourseinclude‘blueflu’andanyothermeasuredesignedtoputpressureonmanagementofAGSortheGovernment.ThequesTonastotheappropriatesancTonisadifficultone.ItisunlikelymembersofAGSwouldenforceanydiscreTonarypenalTesagainsttheirowncolleagues,anditwouldbefollytoenactoramendyetanotherlawthatwillnotbeimplemented.
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LossofPensionAccrual• Oneoftheuniquefeaturesofthe‘contract’underwhichGardaíare
employedisaveryvaluablepensionscheme;itisevenmorefavourablethantheCivilService.Itrecognisesthespecialanduniquenatureofpoliceworkanditis,inmyview,thereforeappropriatethatanymemberofAGSwhoengagesinindustrialacTonshouldsufferanautomaTcreducToninhis/herpensionenTtlement.
• IrecommendthereforethatthetermsofthestatutorySuperannuaTonScheme(s)beamendedtoprovidethatamemberwhoengagesinindustrialacTonshouldbeineligibletoaccruepensionrightsforaperiodoffiveyearsfromthedateonwhichthememberengagesinthatacTon.Astheprovisionsoftheschemearebasedonastatutoryinstrument,IdonotbelievethiswouldrequireprimarylegislaTon.
• IrecommendthattheMinisterforJus?ceandEqualitymakethisamendmentimmediately.
• DepartmentofJusGceandEqualityraisedlegalconcernsaboutthisproposal,butdidnotaccedetomyrequesttoverifythatthisamendmentcanbemadethroughsecondarylegislaGon.TheDepartmentalsoraisedthequesGonofproporGonality,butofferednoalternaGve.
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AlternaTves• IrecognisethatthepotenTallossofpensionaccrualisanunprecedentedmeasure
andthatIexpectitwillberesistedbythemembersofAGS• HoweverIconsiderthatitisareasonablemeasureinthecontextthatGardaíwill
havefullnegoTaTngrightsandaccesstotheLabourCourttoresolveanydifferencestheyhavewiththeiremployer
• DuringthecourseofmyreviewIaskedallparTcipantstosuggestanyalternaTveeffecTvemeansofensuringthatstrikesorotherformsofindustrialacTonwouldnottakeplace.ImadeitclearthatIwoulddropthisproposalifanyeffecTvealternaTvewasputonthetablebutnosuggesTonsthatIconsideredeffecTvewereputforward
• IconsideredaproposalmadeonbehalfoftheCommissionerthatthe“ambiguityshouldbeaddressedthroughlegislaTvechangetocopperfastentheprohibiTonontakingindustrialacTonbyGardaMembers”.Inmyviewtheproblemisnotambiguitybut,asrecenteventshaveclearlyshown,thereisadisinclinaTontoimplementthelaw
• TheunusualmeasurethatIamproposingshould,inmyview,bepartandparceloftheuniquenessofAGSonly,andneednotapplytoanyotheremployment
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SuperintendentsandChiefSuperintendents
• TheroleofSuperintendentsandChiefSuperintendentsisofcriTcalimportancetothemanagementofthepoliceservice.TheirremuneraTonhasbeenreducedinlinewithallothersofsimilarlevel.ItisessenTalthatitberestoredonanequitablebasis.IhaveshowninthetablespreviouslywhatIesTmatetheirsalarieswouldbefollowingtheapplicaTonoftheLabourCourtrecommendaTonamountstothosesalaries.IunderstandthatnodecisionhasbeenmadeonthisyetbutIrecommendthattherepresentaTveassociaTonbeinvitedimmediatelytonegoTatetheconsequenTalincreasesduetothemarisingfromtheincreasestotheotherranks
• TheserankshavetheirownrepresentaTveassociaTons,theyaresmallinmembershipandIdonotseeanyneedforthemtochangetheirstatustothatoftradeunions.HoweverIdorecommendthattheyincludeintheirrulesandconsTtuTonaprovisionthattheycannotengageinindustrialacTonorstrikes.TheseassociaTonsshouldalsomirrorthedisputeresoluTonmechanismagreementthatwillbeavailabletotheotherranksandofcoursehaveaccesstotheWRCandlabourCourtfortheresoluTonoftheirdisputes.
• TheirfutureremuneraTonshouldbesubjecttoreviewbythePSPC
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WorkEvaluaTon• ItshouldbeagreedthatthedeterminaTonofthebasicpayandmaincondiTonsof
employmentwouldbereferredatregularintervalsintoaspecialexpertevaluaTonsystemthatwouldtakeaccountoftheuniqueandspecialnatureofpolicework.Thiswouldsit,sayeverythreeorfiveyears,anddoarootandbranchevaluaToninanopenandtransparentway.
• IhadhopedthattheframeworkforsuchevaluaTonwouldbeagreedaspartofmyreview,thatis,thecriteriaandfactorsthatshouldbetakenintoaccountwouldbespelledoutasclearlyascanbeagreedinthecurrentreview.Forexample,thedangerthatmembersfacemustbeacknowledgedindeterminingpayandwewouldsetouttheparametersthatshouldbeexplicitlyreferencedinconsideringthisfactori.e.numberandseverityofinjuriessufferedbymembersinthecourseofduty.Wewouldmakesimilarpointersfortheotherfactorsthatwefeeloughttobetakenintoaccount.ThatframeworkwouldthenformthebasisfortheregularanalyTcalreviewofpolicepaytobeundertakenbythepaydeterminingbody.
• However,ithasnotbeenpossibletoachievethatgoal.
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ASugges?onforaWayForward
TheworkofmembersofAnGardaSíochánaisuniqueandthereisnosinglecomparablejob.
ThisReviewhasajemptedtosetoutexplicitlyallthefactorsthatshouldbetakenintoconsideraTonindeterminingGardapayandtoagreeontheweightthatshouldbeajachedtothosefactors.Ithasnotbeenpossibletoachievethisgoal,norintheevolvingcircumstancesisitnecessary.TheGRAhasreferredmetoitsrecentsubmissiontothead-hochearingoftheLabourCourtinwhichitsetoutroleajributesthatareindicaTveofthefactorstheunderlietheuniquenessofGardaduTesandresonsibiliTes.IhaveexaminedthoseindetailandIenTrelyendorsethem.ItisalsomyopinionthatthePSPCshouldhavenodifficultyingivinganundertakingtototheAsssociaTonsthatallthosefactorswillbegivendueweightinmakinganyrecommnedaionontheremuneraTonofAGS.IthereforerecommendthattheAssocia?onsjoinwithallotherpublicsectorrepresenta?vebodiesinreferringtheircasefor‘restora?on’andsubsequentevalua?ontothePSPC.
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StructuresandMechanismsforResolvingDisputes
• ThereisaneedforaninternalmechanismthroughwhichindividualmembersorgroupscanraiseissuesofconcernandhavethemdealtwithexpediTouslyandfairly.Thiswillrequirestructuresandresourcestobeestablished.Forexample,localrepresentaTvesandHR/Localmanagementshouldbeappointeedtodealwiththeissuesraised.
• Thereshouldbeastagedprocedureforhandlinggrievances.• ThereshouldbeaninternalsystemforindependentlyadjudicaTngonissuesthat
cannotberesolvedlocally.Thismustbechairedbyanagreedindependentpersonwhowillgivedecisions/recommendaTons/judgmentsinashortspaceofTme,saywithinoneweekofhearingthecase.
• AtthenextlevelthereshouldbeaccesstotheWorkplaceRelaTonsCommission.ItisenvisagedthatonlyasmallproporTonofcaseswouldreachthisstage.TheoutcomesfromtheWRCwouldgenerallynotbebindingandanyunresolvedissueswouldbereferredtotheLabourCourtforafullhearing.TheparTesattheLabourCourtandWRCwouldbeAnGardaSíochánaandtherelevantAssociaTon(s).12December2016 HaddingtonRoadAgreementAGSReviewHorganStrand 77
StructuresandMechanisms(contd.)• Itisrecognisedthatgiventhenatureofpoliceserviceitisnotappropriatethatthe
AssociaTonsshouldhavethesamefacilitytostrikeasordinaryworkersinnon-essenTalservices.Itissuggestedthatinthelightofthesenewprocedures,theAssociaTonsagreetovoluntarilyundertakethroughacollecTveagreementnottoengageinanyformofindustrialacTonorstrike.ThiswillbegovernedbyanagreementregisteredintheLabourCourt.
• Thisproposalalsoassumesthattherewillbeanunderstandingthatthe‘statusquopost’willapplytochange.Thismeansthatwherethereisachangeprocesssuchas‘ModernisaTon’thenfollowinganappropriateperiodofconsultaTonthechangeswillbeimplemented,andworkedcooperaTvely,whileanydisputeisprocessedthroughthesystem.ThiswillrequireasignificantchangeinbehavioronbothmanagementandAssociaTonsandofcourseonthepartofmembersofAGS.
• AsaminimumanyagreementwouldhavetoencompasstheprinciplessetoutintheCodeofPrac?ceonDisputeProcedures(includinginEssen?alServices)S.I.No.1of1992
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DisputeResoluTonAgreementInAppendixOneIhavedrahedaDisputeResoluTonAgreementthathasthefollowingfeatures:• IthasstagesandTmelinesthroughwhichdisputescanbeescalated• Itprovidesthatmostdisputeswillberesolvedinternally• ItprovidesforaccesstotheWorkplaceRelaTonsCommissionand
theLabourCourt• Itprovidesthatalldisputesareresolvedwithoutrecoursetoany
formofindustrialacTonorstrikeinlinewiththe1992CodeofpracTceondisputesinessenTalservices
IamrecommendingthatwiththeassistanceoftheAdvisoryServiceoftheWRCtheparTesshouldfinaliseandsignthisagreementwithanyagreedamendmentsbyendofFebruary2017.
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RECOMMENDATIONSONPAYANDALLOWANCES
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Allowances• IunderstandthattheLabourCourthasrecommendedthat
certainoutstandingmajersinrelaTonstoallowancesshouldbereferredbacktoitoverthecomingmonths.
• TheDepartmentofJusTceandEqualityhadaskedmetorecommendcertainchangesinallowancesaspartofthisreview.IsawmeritintheirsuggesTonsandIwaspreparedtomakesomerecommendaTons.HoweverIthinkitisimportantthatforthesakeofconsistency,thetaskofreformingallowancesshouldnowbelehtotheLabourCourtandIthereforerecommendthattheparTesprocessalloutstandingissuesofallowancesthrougheitherthead-hocprovisionsorthroughthenewDisputeResoluTonAgreementthatIamrecommending.
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RemuneraTon• Mytermsofreferencerequiremetoreview“theremuneraTonand
condiTonsofservice”ofAGS.• IntheearlymonthsofthisreviewIwasworkingtowardsmaking
somesubstanTverecommendaTons.TheofficialsideinsistedthroughoutthatthetermsofreferenceprecludedmefrommakinganyrecommendaTonoutsidetheresourcescurrentlyavailabletoAGS.Thisambiguityorfudgeinthetermsofreference,asoriginallydrahedaspartofHaddingtonRoadagreementterms,mademytaskunnecessarilydifficult.
• Intheevent,theNovemberhearingandsubsequentrecommendaTonsfromtheLabourCourthaverenderedthisaspectofmyreportredundant,andIamnotthereforemakinganyfurtherrecommendaTonforimprovementsinremuneraTonorcondiTonsofemploymentinthisreport.
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PublicSectorPayCommission• SubsequenttomyappointmenttheGovernment,on19July2016,
approvedtheestablishmentofaPublicSectorPayCommission.• ThePublicServicePayCommissionwillbeadvisoryinnatureand
willprovideaniniTalreportinthesecondquarterof2017.TheMinisterstressedthattheGovernmentwillretaintheabilitytonegoTatedirectlywithitsemployeesinrespectofpay.TheCommissionwillnotduplicatetheworkoftheState’sexisTngindustrialrelaTonsbodies:theWorkplaceRelaTonsCommissionandtheLabourCourt.Itsrolewillbetoprovideevidence-basedobjecTveanalysisonpaymajerstoassistDepartmentofPublicExpenditureandReformofficialsindischargingtheirnegoTaTonfuncTononbehalfofGovernment.
• TheCommissionhasnowbeenestablishedandhasbegunitswork.
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TheWorkofthePSPC• ThePublicServicePayCommissionisexpectedtodeliveritsiniTalreport
inQ22017.ThisreportwillprovideinputsonhowtheunwindingofFEMPIlegislaToncanbebestmanagedinthecontextofthenaTonalfinances.ItwillalsohaveregardtoanyparTcularlabour-marketchallengestheCommissionidenTfiesandtoothercondiTonsofserviceofpublicservantsincludingtenureandpension.ItisimportantthatthefourGardaRepresentaTveAssociaTonsareaccommodatedonanequalbasiswithallotherpublicsectorunionsandassociaTonsandIrecommendthattheyparTcipatefullyinhisprocess.
• TheMinisterhasstatedthatthatoncethisreportisavailable,theGovernmentintendstoiniTatenegoTaTonsonasuccessorCollecTveAgreementaheadofBudget2018consideraTons.ThesenegoTaTonswilldealwiththefullrangeofissuesincludingproducTvity,reformandtheissueofaffordableincreasesinpay.SimilarlyIrecommendthefourGardaAssociaTonsshouldbeaccommodatedonanequalbasiswithallothertradeunionsandrepresentaTveAssociaTons.
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IsthePSPCtherightbodytoadviseonGardaRemuneraTon?
• IhavediscussedthisquesTonwithalltheparTcipantsatlengthduringthecourseofmyreview.
• IhavecomparedthetermsofreferenceandmethodologyofthePSPCagainsttheprinciplessetoutearlierinthisreportandinourdiscussions.
• AnalternaTvewouldbetoestablishaseparateandspecialbodytodeterminepayinAGSashasrecentlybeenestablishedfortheUKPoliceforce.ThiswassoughtbyTheGRAandiniTallyIsawmeritinthisproposal.
• HoweverasIhaveconcludedthatthePSPCsubstanTallymeetstherequirementsforaproperobjecTveandanalyTcalassessmentoftheremuneraTonofAGS(assetoutearlierinthisreport)Ihavechangedmyviewforthereasonsoutlinedbelow.
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TheReasonswhyPSPCistherightbodytoadviseonGardaRemuneraTon
ThePSPCwillprovideanobjecTveanalysisontheappropriatepaylevelsforofficeholders’payandpensions.HavingregardtoitstermsofreferenceIassumethatwhenreachingitsfindingsonremuneraToninAGStheCommissionwillhaveregard,amongstotherfactors,to:(a)TheuniquenatureoftheworkofAGS(b)ThesuperannuaTonandotherbenefitsandsecurityoftenure,whereitappliestoAGS(c)PaycomparisonstakingaccountofallrelevantcharacterisTcsincludingtheuniqueaspectsofpolicework(e)EvidenceonrecruitmentandretenTonwithinAGS(f)AnyotherrelevantmajersincludingimpactonnaTonalcompeTTvenessandsustainablenaTonalfinancesandequityconsideraTonsInprogressingitswork,thePSPCwilluTliseandanalyseexisTngdatasetsandreports,aspreparedandpublishedbyexisTngstateandotheragenciesasappropriate.ThePSPCmayalsoundertakeorcommissionaddiTonalresearchordatagatheringwherefurtherinformaTonisrequiredtocomprehensivelyprogressitstermsofreference.Itmayalsoemploysectoralexperts,includingexpertsonpolicework.ThePSPCwillinviterelevantstakeholderstomakesubmissionstotheCommissiontofurtherassistitsconsideraTonsandthiswillincluderepresentaTvesofGardaí,Sergeants,Inspectors,SuperintendentsandChiefSuperintendents.• ThePSPCmustpublishitsfindingsandtheevidenceonwhichthesearebased• ThePSPCwillnottaketheplaceofdirectnegoTaTonsbetweenGovernmentandemployee
representaTves• InmyviewthishasthepotenTaltoavoidtheshortcomingsofpreviousflawed‘benchmarking’reports
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RecommendaTononPSPC• MyrecommendaTonthereforeisthatthefourAssociaTons
shouldcooperatewiththePSPCinanevaluaTonofremuneraToninAGSassoonasthePSPCcanreasonablyaccommodatesuchaninvesTgaTonandthattheoutcomeofthatreportshouldinformsubsequentnegoTaTonsbetweenthemanagementofAGSandtheAssociaTonsifnecessarythroughthedisputeresoluTonmechanismsthatIamrecommendingelsewhereinthisreport.
• However,itisonlyfairtosaythatifthePSPCdoesnotcarryoutitsexaminaTonoftheremuneraTonintheopenandtransparentwaythatisenvisagedforitthenthefourAssociaTonsshouldreviewtheircommitmenttoconTnuingtocooperateinitsdeliberaTons.
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SUMMARY&CONCLUSIONS
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RecommendaTonsnotInterdependent
IammakinganumberofrecommendaTonbasedonmyanalysisandreview.TheyarenotallinterdependentandtheirimplementaTonshouldnotbedelayedsimplybecauseallorsomearenotagreedbyall.ForexampletheGRAandAGSIneedtodecideindependentlyiftheywillbecomeTradeUnions,buttheiraccesstotheWRCandLabourCourtshouldnotbecondiTonalonthatdecision.ThisisimportantasotherwiseIfearthatrefusalordelayinanyonerecommendaTonmaydelaytheimplementaTonofothers.
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KeyFindings• RemuneraTonofAGSiscomposedofthreeelements:
– BasicPay,whichpost-LRCrecentrecommendaTonwillrangefrom€30k-50katGardarank
– Allowances&OverTmewhichwilladdafurther30percent– PensionenTtlement--asubstanTalandsignificantbenefit
• ThustotalcompensaTonofaverageAGSmemberisineffectinregionof€100k
• IRsystemiseffecTvelybroken:GRA/AGSInotappropriatelyconsTtutedorgoverned
• AGSmanagementnotsufficientlyengagedinIR
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InSummary...KEYRECOMMENDATIONS
• IndustrialrelaTonsshouldbe‘normalised’• GRA&AGSIshouldbecometradeunions• ManagementofAGSshouldbegivenresponsibilityforIR• AGSandrepresentaTveassociaTonsshouldconcludedisputeresoluTon
agreement• AllshouldhaveaccesstoprotecTveemploymentlaw,includingtherightto
availoftheprocessesofWRCandLabourCourt• AllparTesshouldagree:nostrikesorotherindustrialacTon• AnymemberofAGSwhoengagesinstrikes/industrialacTonshouldbe
ineligibleforpensionaccrualforfiveyears• AllparTesshouldengagewithPSPCinallitsrelevantwork,including
‘restoraTon’andotherevaluaTons• RecentLabourCourtrecommendaTonshavepre-emptedanysubstanTve
findingsonpayorallowances
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APPENDIX1:DRAFTDISPUTERESOLUTIONAGREEMENTANDACCESSTOWRC&LABOURCOURT
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DranAgreementforDisputeResolu?onandAccesstoWRCandLabourCourt
ThisagreementisbetweenAnGardaSíochána(AGS)ontheonehandandtheGardaRepresentaTveAssociaTonand/orTheAssociaTonofGardaSergeantsandInspectorsand/orTheSuperintendentsAssocaionand/orTheChiefSuperintendentsAssociaTonontheotherhand.ThepurposeofthisagreementistoprovidefortheAssociaTonsandtheirmembertoresolvegrievancesrelatedtotheiremploymentinAGSandtohaveaccesstotheWorkplaceRelaTonsCommissionandtheLabourCourtfortheresoluTonofgrievancesItisagreedthattheallgrievancesrelaTngtoremuneraTonandmaincondiTonsofemploymentmaybeprocessedthroughthisagreementandtotheWRCandLabourCourtGrievanceProcessItisrecognizedthatitisgoodpracTcethatallgrievancesshouldberesolvedattheearliestpossiblestageofthisprocedureandthatonlyunresolvedissuesshouldbeescalatedthroughitsvariousstages.StageOneThemember(s)shouldraisethegrievancewithhis/herimmediatesupervisore.g.SergeantorInspectorandshouldspecificallyreferencethisprocedurewhendoingso.Ifthemajerisnotresolvedwithinsevendays(orlongerbyagreement)thenthemajershouldbeescalatedtoStageTwo.StageTwoThemembershouldcontacttheaccreditedrepresentaTveofhis/herAssociaTonwhoshouldimmediatelyraisethemajerinwriTngwiththeaccreditedlocalHRrepresentaTvedesignatedtodealwithgrievances.AmeeTngshouldbeheldwithsevendaysofreceiptofthewrijennoTficaTonwithaviewtoresolvingthemajer.Ifthemajerremainsunresolved14daysahertheiniTalmeeTngthen(unlessitisspecificallyotherwiseagreedinwriTng)themajershouldbereferredtoStageThree.StageThreeThemajershallbeheardbytheCentralGrievanceCouncilestablishedtohearallcasesunresolvedatStageTwo.TheCouncilshallconsistofasingleChairpersonagreedbytheAGSandtheAssociaTons.TheCouncilwillhearthecasewithintwoweeksofthecasehavingbeenreferredtoitandshallissueanonbindingrecommendaTononthemajerwithinthreeworkingdaysofthehearing.WheretheparTesagreeinadvancetobeboundbythedecisionoftheCouncilthenthedecisionoftheCouncilwillbebindingonthepartyorparTesthathaveagreedtobeboundbythedecision.Inthecaseofanon-bindingdecisionoradecisionthatisnotbindingononeofheparTesthenthemajermaybereferredtotheWorkplaceRelaTonsCommissionunderanyoftheprovisionsoftheWRCasmaybeagreedandappropriate.ThisstageshallbeStageFour
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DrahAgreement(ConTnued)StageFourTheprovisionsandtheWRCshallapplytotheprocessingofclaimsattheWRC.ThedocumentaTonandprocessingoftheclaimattheinternalstagesshallbemadeknowntotheWRC,includinganyrecommendaTonoftheCentralGrievanceCouncil.IfthemajerisunresolvedattheWRCinmaybereferredtotheLabourcourtinaccordancewiththenormalprovisionsforreferralofcasestotheCourt.ThisshallbeStageFive.StageFiveAfullhearingoftheLabourCourtwilltakeplaceinaccordancewiththenormalprocedureoftheCourt.AllparTeswillco-operatefullyinensuringthatthecaseisheardattheearliestdateofferedbytheLabourCourt.WherebothparTesagreeinadvancetoaccepttheRecommendaTonoftheLabourCourtthentheCourtwillbeaskedtomakeabindingrecommendaTon.BothparTesrecognizethattheLabourCourtisaCourtof“LastResort”andthereforeathisstageeveryeffortwillbemadebybothparTestoensurethattheissueisresolvedonthetermsrecommendedbytheLabourCourt.WhereoneoftheparTescannotaccepttheRecommendaTonoftheLabourCourtthenthefollowingprovisions(adaptedformtheCodeofPracTceonEssenTalServices)willapply.TheLabourCourtrecommendaTonshallbeimplementedonthebasisthatanindependentreviewwouldtakeplaceatfive-yearlyintervalstoexaminewhetherthememberscoveredbytherecommendaTonhavebeenplacedatanydisadvantageasaresultoftheimplementaTonoftherecommendaTonandifsotoadvise,havingregardtoallaspectsofthesituaTon,includingeconomicandfinancialconsideraTons,onthechangesnecessarytoredresstheposiTon.AppointmentofAssocia?onandHRRepresenta?vesForthepurposeofensuringexpediTousimplementaTonofthisagreementtheAssociaTonsandAGSwillappointasufficientnumber[tobeagreed]ofaccreditedrepresentaTvesatlocallevelsothatgrievancesmayberesolvedattheearliestpossiblestages.TheseposiTonswillnotbefullTmebutmemberswillbereleasedfromotherduTestoprocessallgrievancesintheTmelimitssetoutabove.AllaccreditedrepresentaTvewillbegivenappropriatetraininginthehandlingofgrievances,suchtrainingwillincludesomejointtraining.
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APPENDIX2:EMPLOYMENTRIGHTSLEGISLATION
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Name of Act Excluded or IncludedMinimum Notice and Terms of Employment Act 1973
Section 3(1)(e) EXCLUDES members of the Garda Síochána
Protection of Employment Act 1977 Section 7(2)(b) EXCLUDES a person employed by or under the State
Unfair Dismissals Act 1977 (as amended) A member of the Garda Síochána is EXCLUDED from the protection of the Act under section 2(1)(e)
Payment of Wages Act 1991 Definition of "employee" INCLUDES a member of the Garda
Síochána or the Defence Forces;
Terms of Employment (Information) Act 1994 Definition of "employee" INCLUDES a member of the Garda
Síochána or the Defence Forces)
Protection of Young Persons (Employment) Act 1996 Definition of “employee” INCLUDES a member of the Garda
Síochána or the Defence Forces
Organisation of Working Time Act 1997 Garda Síochána EXCLUDED under section 3(1) of the Act
CoverageofGardaSíochánainEmploymentRightslegisla?on(1)
Protection of Employees (Part-Time Work) Act 2001 Garda Síochána not specifically referred to in definition of “employee” but definition covers ‘‘…a person holding office under, or in the service of, the State (including a civil servant within the meaning of the Civil Service Regulation Act, 1956) shall be deemed to be an employee employed by the State or Government, as the case may be...”
Protection of Employees (Fixed-Term Work) Act 2003 Garda Síochána not specifically referred to in definition of “employee” but definition covers ‘‘……a person holding office under, or in the service of, the State (including a civil servant within the meaning of the Civil Service Regulation Act, 1956) shall be deemed to be an employee employed by the State or Government, as the case may be….” Section 17 (b) of the Fixed-Term Act specifically excludes trainee members of the Garda Síochána – which would appear to imply that members of the Garda Síochána who have completed their training are INCLUDED. (However, section 17 (a) of the Fixed-Term Act EXCLUDES the Defence Forces).
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CoverageofGardaSíochánainEmploymentRightslegisla?on(2)
Protection of Employees (Temporary Agency Work) Act 2012 Garda Síochána not specifically referred to in definition of “employee” but definition covers “ a person holding office under, or in the service of, the State (including a civil servant within the meaning of the Civil Service Regulation Act 1956) shall be deemed to be an employee employed under a contract of employment by the State or Government, as the case may be, and….”
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CoverageofGardaSíochánainEmploymentRightslegisla?on(3)
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APPENDIX3SELECTEDREFERENCES
SelectedReferences
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SeamusBreathnach TheIrishPoliceFromEarliestTimestothePresentDayAnvilBooks1974LiamMcNiffeAHistoryoftheGardaSíochánaWol�oundPress1997ConorBrady GuardiansofthePeaceGillandMacmillan1974CaptainDenisJ.O’KellyM.A.,P.C.SalutetotheGardai1922-1958TheParksidePress1958?GeraldW.Reynolds&AnthonyJudgeTheNightthePoliceWentonStrikeWeidenfeldandNicolson1968VickyConway,PolicingTwenGethCenturyIreland:AHistoryofAnGardaSíochána.RoutledgeW.J.L.Ryanetal.ReportofGardaSíochánaCommiOeeofInquiryStaToneryOfficeDublinPrl8016April1979JudgeJohnC.Conroyetal.CommissionontheGardaSíochánaReportonRemuneraGonandCondiGonsofServiceTheStaToneryofficeDublinPrl.No.933January1970WalshGardaTrainingCommiOeeReportonProbaGonerTraining.TheStaToneryOfficeDublinPl.4740December1985GardaSMIImplementaTonSteeringGroupFinalReportTheStaToneryOfficeDublinPrn.3883February,2004RobertK.OlsonGardaInspectorateReportChangingPolicinginIrelandNovember2015SirPatrickSheehyReportofInquiryintoPoliceResponsibiliGes&RewardsHMSOLondonJune1993HousesoftheOireachtasCommijeeofPublicAccountsinitsReportonPublicSectorAllowancesdatedNovember2012Reference31/CPAS/005