A review of the Jobstown water charges protest has found that garda intelligence should have been aware of an increased risk of public disorder in the run up to the event.
The report says no overview was taken within the gardai at the level of disquiet over the installation of water meters.
A review of how gardai handled the event in 2014 , which saw Joan Burton and her advisor trapped in a car, says from a basic policing perspective, it was a "qualified success".
No one was physically harmed and no complains were made against the gardai.
However, the event lacked strategic direction and tactical options do not appear to have been explored.
The review is recommending the publication of a draft policy on public order incident command as a matter of urgency.
It also says that robust structures should be put in place to monitor levels of public order.
The report also questions the success of the subsequent garda investigation as a group of protesters were acquitted and a teenager had his conviction overturned.