Apart from the establishment of an Ombudsman, the draft Garda Bill published today provides for a reserve force, the exchange of Garda information with agencies outside the State, local policing committees and new accountability measures.
The Minster for Justice, Mr McDowell, said the proposals were "a radical and far-reaching modernisation charter for the Garda Síochána".
A short section in the draft proposes giving the Garda Commissioner power to enter into agreements with law enforcement agencies outside the State with the consent of the Government.
The reservists would have the same powers as full-time gardaí but only while on duty, Mr McDowell said.
They would receive training in some areas of policing but it may only prove appropriate for specialist training to be given to full-time members, Mr McDowell said.
"Nearly every common-law state, of which Ireland is one, has provision in its law for volunteer reservists to assist with the policing function .... I don't think it implies a two-tier approach to policing," the Minister said.
Speaking at the publication of the Heads of Bill last July, Mr McDowell said he did not envisage setting up the reserve in the immediate future.
Today he said: "What is at issue here is the creation of a legal basis for such a move should the Government decide should the Government decide that future circumstances merit it."
Mr McDowell recognised that public confidence in the Garda should be improved. Among the measures to address the issue is a greater focus on human rights in policing.
Gardaí will be obliged to make a new declaration in which they will commit to upholding human rights and a code of ethics for gardaí will be developed.
Policing committees are also proposed at which both locally elected representatives and members of the Oireachtas can help formulate local policing strategies in co-operation with the Garda.
"The Bill will also place a duty on local authorities, in carrying out their functions, to assist were possible in the reduction of crime, and anti-social behaviour in their areas," the Minster said.
The Garda Commissioner will also, for the first time, be obliged to report annually to the Oireachtas Public Accounts Committee.
Further accountability measures include the Minster for Justice's right to set policing objectives and issue directives in relation to "any policing matter". Such directives will be laid before the Oireachtas and an annual policing plan must be made public.
Mr McDowell played down the significance of provisions relating to gardaí speaking to the media. He said gardaí have always been subject to the Official Secrets Act but recognised that disclosures to the media were reasonable provided they do not "have a harmful effect".
But if a garda is found to have divulged "harmful", confidential information; then a fine of up to €75,000 and seven years in prison can be imposed.
The Garda will also be empowered to charge for police services provided at events such as sports events, concerts and for cash deliveries.