COMMISSION ON THE NATIONAL GUARD AND RESERVES 2521 S. CLARK STREET, SUITE 650 ARLINGTON, VIRGINIA 22202 ARNOLD L. PUNARO March 1, 2007 CHAIRMAN WILLIAM L. BALL, III Senator Carl Levin Chairman LES BROWNLEE Committee on Armed Services RHETT B. DAWSON United States Senate Washington, DC 20510 LARRY K. ECKLES Congressman Ike Skelton PATRICIA L. LEWIS Chairman DAN MCKINNON Committee on Armed Services United States House of Representatives WADE ROWLEY Washington, DC 20515 JAMES E. SHERRARD III Dear Chairman Levin and Chairman Skelton: DONALD L. STOCKTON E. GORDON STUMP As you know, the 13-member, independent Commission on the National Guard and Reserves was established by Congress in the Ronald Reagan J. STANTON THOMPSON National Defense Authorization Act of 2005. Congress chartered the Commission to assess the reserve component of the U.S. military and to recommend changes to ensure that the National Guard and other reserve components are organized, trained, equipped, compensated, and supported to best meet the needs of U.S. national security. The Commission’s final report must be submitted to Congress and the Secretary of Defense no later than January 31, 2008. The John Warner National Defense Authorization Act for Fiscal Year 2007, enacted on October 17, 2006, instructed the Commission to examine 17 proposals aimed primarily at enhancing the status and institutional powers of the National Guard Bureau and its leadership, and improving the resources and capabilities of the National Guard, particularly in regard to homeland missions. Public Law 109-364 further required that the Commission report our findings and recommendations on these matters no later than March 1, 2007. It is that report (attached) which we respectfully submit to you and the members of the Armed Services Committees of the U.S. Senate and the U.S. House of Representatives. PHONE 703.699.2800 FAX 703.699.2846 EMAIL [email protected] ESTABLISHED PURSUANT TO THE RONALD W. REAGAN NATIONAL DEFENSE AUTHORIZATION ACT FOR FISCAL YEAR 2005, PUB. L. NO. 108-375,118 STAT 1880 (2004) The proposals that Congress directed the Commission to study and report on were central components of the National Defense Enhancement and National Guard Empowerment Act, introduced in the House and Senate during the 109th Congress and recently reintroduced in the 110th Congress. The Commission’s views with regard to the 17 provisions can be found in Appendix 1 of our report. The Commission has analyzed the proposals carefully. In the past four months we have held public hearings, taken extensive testimony, consulted top experts on all aspects of the subject matter, and reflected on these measures in depth and within the context of the Commission’s overall charter. We also relied on the work the Commission has had under way since our inception in March 2006. Moreover, we have considered the proposals in light of a comprehensive vision for the National Guard and other reserve components and for how they can best meet U.S. national security requirements in an era of high operational tempo, increased focus on homeland security, and overall military transformation. As our report makes clear, we agree with the proponents of the legislation that significant reforms are necessary to update and improve the status, structure, and activities of the National Guard Bureau and its leadership. The Commission believes that many of the proposals in the legislation have considerable merit and should be considered for adoption in whole or in part. In those cases where we do not recommend a specific provision, we offer alternatives or modifications that we believe better address the underlying problems. In formulating our recommendations, we have been guided by principles aimed at improving U.S. national security capabilities in general, not simply those of the National Guard. Throughout, we view the National Guard as part of a total force of military and civilian agencies, federal, state, and local, working in concert to achieve national objectives, not as a military or political entity that can be viewed in isolation. Our objective was to recommend improvements to the institutions of government, not just to one individual, office, or organization. The conclusions and recommendations in this report address primarily those issues arising from the National Guard Empowerment Act. Our final report, due no later than January 31, 2008, will be more comprehensive with respect to the National Guard and the other reserve components as we address the extensive requirements of our charter. The Commission looks forward to continuing our mission and fulfilling our vital charge of ensuring that the National Guard and Reserves can best meet the needs of U.S. national security now and in the years ahead. We wish to close by thanking the service members of our nation’s reserve forces, who represent the best of America. Their service and sacrifice, and those of their families and employers, will continue to inform and inspire our work. Sincerely, cc: Senator John McCain, Congressman Duncan Hunter CONTENTS Transmittal Letter Executive Summary ................................................................................................................ iii I. Introduction .......................................................................................................................... 1 II. The Context for Our Report................................................................................................. 7 A. The Security Environment and Its Implications for the Reserve Component........... 7 B. The Current State of the National Guard ................................................................. 10 III. Findings, Conclusions, and Recommendations .............................................................. 39 A. The Defense Department’s Role in the Homeland ................................................... 39 B. The Role of States and Their Governors................................................................... 55 C. The National Guard Bureau...................................................................................... 66 D. U.S. Northern Command.......................................................................................... 78 E. Reserve Policy Advice................................................................................................ 83 F. Reserve Component Officer Promotion .................................................................... 89 Appendices.............................................................................................................................. 97 Appendix 1. The Proposals of the 2007 National Defense Authorization Act and National Defense Enhancement and National Guard Empowerment Act..................................................................................... 97 Appendix 2. Commission on the National Guard and Reserves: Authorizing Statutes ................................................................................ 105 Appendix 3. H.R. 5200, The National Defense Enhancement and National Guard Empowerment Act of 2006...................................................................... 111 Appendix 4. S. 2658, The National Defense Enhancement and National Guard Empowerment Act of 2006...................................................................... 117 Appendix 5. The National Guard Bureau Charter ...................................................... 123 Appendix 6. Commissioners of the Commission on the National Guard and Reserves ............................................................................................ 125 Appendix 7. Public Hearing Panels to Date ................................................................ 129 Appendix 8. Individuals Consulted by the Commission on the National Guard and Reserves ............................................................................................ 139 Appendix 9. Acronyms and Abbreviations .................................................................. 149 Appendix 10. CD of March 1, 2007, Report COMMISSION ON THE NATIONAL GUARD AND RESERVES i TABLES AND FIGURES Figure 1. End-Strength Trend (Actual Strengths, FY 1986 – FY 2006) ............................. 11 Figure 2. Reserve Component Force Structure.................................................................. 12 Figure 3. Total Force — 2.4 Million.................................................................................... 13 Figure 4. National Guard Force Structure Contribution ................................................... 14 Figure 5. ARNG Contributions Worldwide (as of FY 2007) ............................................... 15 Figure 6. ANG Contributions Worldwide (as of FY 2007).................................................. 16 Figure 7. National Guard Share of Budget......................................................................... 17 Figure 8. DOD Reserve Contributions in Both Peacetime and Contingency Operations.. 18 Figure 9a. Average Percent Cross-Leveled to Build Deployable Army Guard Unit ............ 21 Figure 9b. Average Number of Army National Guard Units Contributing ............................. Equipment to Fill One Deploying Unit ............................................................... 22 Table 1. Prior Service Recruits as Percentage of Total .................................................... 23 Figure 10. Selected Reserve End-Strength Achievement Rates (FY 1987 – FY 2006)......... 24 Figure 11. Favorability of Reserve Components .................................................................