The confidential internal document has been obtained by the Sunday Independent
It highlights the need for more public health staff and greater expertise to facilitate an effective roll-out.
It expresses doubts about the readiness of IT infrastructure needed to retain key personal and population data on the vaccine.
The report, which was prepared for HSE chief clinical officer Dr Colm Henry in October, says there is insufficient resources at all levels to tackle the virus over the next six to 18 months.
