A new report examining An Garda Síochána's progress in implementing change has expressed concern over its ability to do so.
The Policing Authority has published its final report in relation to the 'Changing Policing in Ireland' document, which looked at Garda modernisation and renewal.
It found that "pockets of the Garda Síochána have demonstrated a real appetite for change", with significant levels of personal commitment and drive.
One example it gave is the establishment of a risk management office and the embedding of a risk management process across the organisation.
But the Policing Authority warned: "The absence of a strategic vision for the organisation in key areas has bedevilled the implementation of change.
"There is still no settled view articulated as to what the expanded Garda Síochána workforce will look like, how it will be recruited, trained, organised and how best it can be effective for the community.
"The Garda Síochána needs to articulate what will be the outcomes of change for the policing service provided in addition to the outputs and milestones of a project process."
It also found issue with some efforts to date, in that they have "failed to acknowledge the current state of readiness and ability of the organisation to undertake a change process."
It also said planning has proceeded "absent of sufficient consideration" of the organisation's capacity.
"Insufficient attention has been and continues to be given to the key enablers of change" - specifically Human Resources, ICT, accommodation, training and finance.
It added that these areas need to become "the first and main focus of the change effort itself".
"A continued failure to tackle capacity in these areas will inhibit the success of any planned change."
The report said that overall planning had been "siloed", which resulted in an inability to assess the overall resource demand, identify interdependencies and prioritise.
"Governance has been siloed with no single coherent view available to the commissioner of the quantum of work being undertaken and the progress being made for the organisation as opposed to within an individual project lifecycle.
"There has been insufficient focus on outcomes, with outputs and milestones being regarded as ends in themselves".
It also found that change has not ‘landed’ at the front line.
"The rich data provided in the culture audit evidenced a scepticism toward the modernisation and renewal programme and can inform future change efforts", it said.
In response to the report, Justice Minister Charlie Flanagan said: "Through its quarterly reports, the Policing Authority has provided a very valuable, evidence-based assessment of progress on Garda reform since 2016.
"This series of reports, and the learnings made as a result, will provide a very significant resource to everyone involved in the implementation of the recommendations of the report of the Commission on the Future of Policing in Ireland."
"I was particularly struck by the authority's observation that insufficient attention has been and continues to be given to the key enables of change such as the organisation's HR, ICT, training and finance functions and their recommendation that these enablers need to become the first and main focus of the change effort itself.
"It is essential that this learning is taken into the implementation of the Commission's report in order to drive the reform process and ensure the vision of the commission is realised."
Minister Flanagan outlined: "Capital funding of €92m has been provided in 2019 which will facilitate investment of €65m in ICT in order to provide leading edge technology, €17m in the Garda Building Programme and €10m for the transport fleet.
"Also €10m has been provided to support both the ongoing Justice and Policing Transformation Programmes - and funding will be provided directly to An Garda Síochána to support the implementation of A Policing Service for the Future."
He added: "The implementation plan for the commission's recommendations is ambitious but realistic.
"It contains agreed timelines for delivery of actions and identifies a whole of Government approach to policing reform with support from senior leadership across key Government Departments, including the Departments of the Taoiseach and Public Expenditure & Reform, my own department and the Garda Commissioner.
"I am confident that it will deliver on the vision articulated by the Commission of the Future of Policing in Ireland."