The Provisional IRA has often been characterized as a hierarchical terrorist group, particularly by proponents of the ‘new’ terrorist concept’. However, this does not adequately describe the reality of decision-making within the Provisional IRA. From the very beginning, important operational choices were made by PIRA volunteers at local level, without significant input from the senior leaders of the group. Despite a series of organizational reforms that were designed to reign in local volunteers, the leadership of the Provisional IRA was often unable to exercise effective command and control over rank-and-file members of the group.