North Dakota National Guard

Oregon National Guard Tennessee National Guard

Ohio National Guard

Texas National Guard

National Guard Homeland Defense White Paper:

September 11, 2001, Hurricane Katrina, and Beyond
National Guard Homeland Defense White Paper: 

September 11, 2001, Hurricane Katrina, and Beyond 

Introduction ___________________________________________________________ 2

Homeland Defense in the Wake of 9-11 _____________________________________ 3

Civil Support in Response to Hurricane Katrina ______________________________ 4

National Special Security Events (NSSEs) ___________________________________ 5

A Strategy for Improved Homeland Defense in the Future______________________ 6

Homeland Defense Initiatives _____________________________________________ 8

Top 10 Essential Homeland Defense Capabilities ____________________________ 11

Understanding Duty Status ______________________________________________ 12

Equipping Policy ______________________________________________________ 16

Closing ______________________________________________________________ 16

Page 1 10/11/2005 
Introduction

“Homeland Defense is job number one – we ‘Guard’ the nation.” 

--LTG H Steven Blum, Chief, National Guard Bureau 

Few words could more succinctly describe the importance of Homeland Defense 

and the National Guard’s role in defending our Homeland. America’s enemies 

continually seek new ways to attack America, so we must be ever adaptive in our 

methods of protection. Natural disasters such as the Tsunami of December 2004 

and Hurricane Katrina in August 2005 seem to test and sometimes thwart our 

plans. 

Historically, the United States military worked to secure the United States by 

maintaining a powerful overseas presence and warfighting capability. The 

September 11, 2001 terror attacks showed a very real and emerging threat to our 

country. Natural disasters such as Katrina test the very fiber of mankind. We 

must extend our capabilities to deter and defeat aggression both at home and 

abroad. We must improve our prevention, detection, response, and recovery 

mechanisms in the face of national or natural disasters. 

In the balance of this paper we lay out how the National Guard responded to 

provide Homeland Defense in the wake of 9-11 and the more recent Katrina 

disaster. We examine how the National Guard is taking the initiative to fill 

capability gaps and improve its Homeland Defense capability. We also discuss 

National Guard mobilization methods as they relate to Homeland Defense and 

some HLD initiatives that predate 9-11, including the establishment of Weapons 

of Mass Destruction-Civil Support Teams (WMD-CSTs). 

Page 2 10/11/2005 
Homeland Defense in the Wake of 9-11

Whenever disaster strikes or threatens, the National Guard represents the most 

significant asset Governors can rapidly mobilize to provide protection, relief, and 

recovery. On September 11, 2001, disaster did indeed strike and the National 

Guard responded. In the immediate aftermath, National Guard Soldiers from the 

115th, 290th, and 200th secured the Pentagon, protected critical infrastructure, 

guarded airports across the nation, and mobilized to defend our Homeland by 

fighting global extremism abroad. 

 a. Critical Infrastructure and Force Protection. Following the September 11, 

2001 terrorist attacks, the National Guard had Soldiers on duty within hours – 

over 3,000 within three days and over 5,000 within ten days. These Soldiers 

provided security at nuclear power plants (supporting the Department of Energy), 

domestic water supplies, bridges, tunnels, border security sites (supporting the 

Treasury and Customs Service Departments), and military bases across the 

nation. Additionally, President George W. Bush authorized a partial mobilization 

of the Reserves on September 15, 2001 for Homeland Defense and Civil Support 

missions. Collectively, these missions were dubbed Operation Noble Eagle. 

One specific Operation Noble Eagle mission involved air defense around major 

metropolitan areas. During the aftermath, the Air National Guard kept two 

fighters flying over New York City and four over Washington, DC 24 hours a day, 

while also flying random patrols over other major cities. Other National Guard 

participants included airlift, intelligence, military police, medical, logistics, 

engineers, search and rescue, and chaplains. 

 b. Airport Security. Following the September 11, 2001 terrorist attacks the 

National Guard, by order of the President, assumed the airport security mission 

and reported for duty across the nation. The National Guard carried this mission 

for eight months, with up to 8,200 Soldiers on duty in Title 32 status, before 

transferring responsibility to the newly established Transportation Security 

Administration. During that time, the National Guard effectively deterred threats 

and restored public confidence in air traffic security. 

 c. Mobilizations. Since September 11, 2001, 206,587 Army National Guard 

Soldiers answered the call, serving some 246,544 tours of duty, providing for our 

defense at home by fighting global extremism at home and abroad.1 The Air 

National Guard provided countless flight hours transporting troops and supplies, 

performing medical evacuations, completing operational sorties, and in many 

cases complementing the troops on the ground with essential communications 

and computer expertise. 

Additionally, the National Guard provided over 1.7 million days of support to 

civilian authorities responding to over 23,000 incidents. This response included 

providing relief from tornadoes, wildfires, hurricanes, and floods. 

 

1

 Numbers as of 1 September 2005. 

Page 3 10/11/2005 
Civil Support in Response to Hurricane Katrina

As Hurricane Katrina headed toward the Gulf Coast, the Louisiana National 

Guard’s leadership declared a full alert. The Louisiana leadership stood up a 

Joint Operations Center (JOC) and the Louisiana Governor activated the 

National Guard. Within 24 hours of Katrina becoming a Category 3 hurricane 

(winds up to 115 mph), Louisiana activated 2000 Soldiers and Airmen. Within 

48 hours, Louisiana mobilized 4000 Soldiers and Airmen and deployed security 

and medical forces to the Superdome. Based on existing Contingency Plans, 

Louisiana and the National Guard Bureau began Emergency Management 

Assistance Compact (EMAC) coordination with individual states, the New 

Orleans police department, Federal Emergency Management Agency (FEMA), 

and other agencies. Neighboring states of Mississippi, Florida, and Alabama 

braced for the impending storm. The Alabama Governor declared a state of 

emergency and state workers posted evacuation orders along the Mississippi 

coast. Meanwhile on Sunday, August 28 the hurricane grew to a Category 5 

storm with winds up to 160 mph. 

As the storm raged through the last weekend in August, hopes were beginning to 

rise as the winds began to die down and the hurricane was downgraded to 

Category 4 (winds up to 145 mph). Incredibly, two levees broke in New Orleans 

on Monday (one at 9:00 a.m. and another at 2:00 p.m.), August 29, flooding the 

city and wreaking havoc throughout the area. Some of the destruction included 

destroying approximately 350,000 homes and displacing approximately 200,000 

evacuees to shelters (and an estimated 5 times that number to hotels or homes 

of relatives or friends). Shortly after Katrina cleared New Orleans Army National 

Guard helicopters were already in the air over the mostly impassable flooded 

streets performing roof-top rescues and moving critical supplies and personnel 

as National Guard troops from Pennsylvania, Mississippi, Georgia, Florida, and 

Oklahoma began flowing into the flood zone. In a rapidly escalating mobilization, 

the largest stateside deployment in National Guard history, a total of 50,087 

Soldiers and Airmen and 146 Guard rotary-wing aircraft deployed to the impact 

zone, and thousands more provided coordination and logistical support from 

numerous locations. This mobilization surpassed even the 1906 stateside 

deployment for the San Francisco fire and earthquake (approximately 30,000 

troops). Similar to the Earthquake where fire accounted for more devastation 

than the actual earthquake, which triggered the fires, Hurricane Katrina caused a 

surge of wind and waves that breached the levees and the ensuing flood caused 

most of the damage. 

Stories of courage and dedication abound, but a few stand out as representative 

and exemplary. 

• After a year in Iraq, the 256th Brigade Combat Team of the Louisiana 

National Guard came back to the United States to join another fight -- the 

fight against Katrina. According to Army BG John P. Basilica, 256th BCT 

Page 4 10/11/2005 
commander, many of his Soldiers redeployed and joined in recovery 

efforts. 

• Task Force Engineers set up an operations center at Camp Haywood, 

Mississippi, and the task force is helping to rebuild the local community. 

This task force from the Florida Air National Guard 202nd has worked 

nearly around the clock on multiple construction projects to restore power, 

clean and repair schools, and refurbish electrical supplies. 

• When the 131st Quartermaster Battalion, a water purification unit from the 

North Dakota National Guard, arrived at Camp Shelby, Mississippi they 

did not have a water purifying mission (combating bacteria and viruses). 

The soldiers of the 131st Quartermaster Battalion went to the 38th Infantry 

Division Support Commander and asked if they could go out everyday 

until they left and help the citizens of Mississippi. This was the beginning 

of Operation Good Neighbor. The commander proudly said “They 

volunteered to adopt a county and provide assistance and that’s exactly 

what they did.” 

• Aviation crews from the affected states of Louisiana and Mississippi were 

joined by aircraft and dedicated crews from 23 other States.2 These 

crews provided valuable assistance in areas where mobility was severely 

restricted. According to Mississippi Army National Guard Lieutenant 

Colonel Tim Powell “We’re flying 300 missions a day, flying out food and 

water...Aircrews here say they fly 4 to 15 missions per day,” depending on 

the distance of their drops from the Air National Guard Combat Readiness 

Training Center airfield in Gulfport. 

The stories vary, but the constant theme is “call to duty” and the result is a 

courageous response to the call. 

National Special Security Events (NSSEs)

In the last four years, the National Guard provided support to many National 

Special Security Events (NSSEs) and other less traditional requirements. 

Examples are listed below: 

 a. 2002 Winter Olympics in Salt Lake City, Utah. In January and February 

2002, less than three months after the September 11 attacks, over 4,000 

National Guard Soldiers led increased security efforts at the 2002 Winter 

Olympics. National Guard and other security forces ensured that no venues 

were shut down and no major security incidents occurred. 

 

2

 Assisting States were GA, WI, DC, TX, FL, OK, TN, NE, WY, CO, AL, AR, KY, NV, CT, SD, NM, 

KS, NC, WA, NY, IN, and OH. 

Page 5 10/11/2005 
 b. G-8 Summit Conference in Savannah Georgia. National Guard forces 

supported the G-8 Summit Conference from 1 to 12 June 2004. At the apex 

4,870 Title 32 National Guard and 2,406 Active Component Title 10 forces 

supported the event. The defense and security missions included support to the 

Federal Bureau of Investigation (FBI), United States Secret Service (USSS), the 

Department of State (DoS), the State of Georgia, several counties along the 

Georgia coast, and the cities of Savannah and Brunswick.

 c. 2004 Democratic National Convention (DNC) in Boston, Massachusetts. 

National Guard forces supported the Democratic National Convention with Title 

10 and Title 32 forces from 23 to 30 July 2004. 1,614 Title 32 National Guard 

and 256 Active Component Title 10 personnel supported the event. 

 d. 2004 Republican National Convention (RNC) in New York City, New York. 

National Guard forces supported the Republican National Convention with Title 

10, Title 32, and State Active Duty (SAD) forces from 23 August to 3 September 

2004. 1,297 Title 32 National Guard, 360 State Active Duty (SAD) National 

Guard, and 307 Active Component Title 10 personnel supported the event. 

 e. Operation Winter Freeze. From November 2004 through January 2005, 

the National Guard and Active Component Title 10 forces, in support of the US 

Customs and Border Protection’s Border Patrol, prevented illegal alien access 

along a 295-mile stretch of the US-Canadian border. The Border Patrol, as lead 

agency, and the National Guard kept suspected terrorists out of the country. The 

National Guard’s primary mission was to detect, deter, and monitor suspicious 

actions using air assets. During the mission, the National Guard exposed three 

terrorist smuggling organizations. 

The command and control construct for the G8 Summit, DNC, RNC, and 

Operation Winter Freeze represent landmark achievements. For the first time in 

our nation’s history, the National Guard attained unity of command for all military 

forces operating in support of a major event. In each case, from one Joint Force 

Headquarters, a single National Guard officer commanded Guard units from 

multiple States operating under Title 32 authority, as well as Active Component 

Army/Navy/Air Force/Marine Corps Title 10 forces in a joint, 

intergovernmental/interagency environment. 

A Strategy for Improved Homeland Defense in the Future

The National Guard’s response to Homeland Defense since 9-11 and more 

recently from Hurricane Katrina has been tremendous. However, capability and 

synchronization gaps between local first responders and follow-on state and 

Federal forces exist and expose the need for a new Homeland Defense National 

Strategy. In June 2005, the Department of Defense published the Strategy for 

Homeland Defense and Civil Support followed shortly in August by Joint 

Publication 3-26 Homeland Security. These documents emphasize the construct 

of “Lead, Support, and Enable” by: executing missions to prevent and repel 

Page 6 10/11/2005 
attacks; working with civil authorities as part of a national response to attack or 

disaster; and sharing expertise with domestic and international partners. This 

broad Homeland Security direction on Homeland Defense and Civil Support 

(HLD/CS) focuses reliance upon National Guard capabilities within an active, 

layered defense strategy for the United States.

In accordance with Department of Defense Strategy, the National Guard 

Homeland Defense and Civil Support missions are focused in four areas: 

 a. Integrating force protection and responsive critical infrastructure protection 

by conducting collaborative interagency vulnerability assessments and providing 

reaction forces to protect against and mitigate the effects of attacks against key 

assets and elements of the defense industrial base. 

 b. Preparing for and mitigating the effects of multiple simultaneous chemical, 

biological, radiological/nuclear, and high-yield explosive (CBRNE) events by 

providing CBRNE detection, assessment, casualty extraction, decontamination 

and medical triage capabilities from geographically distributed locations. 

 c. Providing through the Joint CONUS Communications Support Enterprise 

(JCCSE) vital National Guard information technology capabilities required to 

support inter-agency information sharing and other critical HLD/HLS mission 

requirements to the state/local level, and to the incident site. 

 d. Supporting prompt and coordinated Federal HLD and Civil Support 

missions and Emergency Preparedness planning activities by providing 

situational awareness of National Guard activities to Federal authorities as well 

as Joint Force command and control within each state and conducting 

comprehensive HLD training and exercises. 

Page 7 10/11/2005 
Homeland Defense Initiatives

Responding to studies performed by the Defense Science Board and other 

analysts, the National Guard examined the emerging threats and searched for 

capability gaps to overcome. Geographical distribution, community integration, 

and other traditional National Guard strengths make it an effective and costefficient force for many Homeland Defense (HLD) requirements. The HLD 

requirements do not demand dedicated Homeland Defense force structure – 

rather, they require enhanced capabilities to existing warfight force structure. 

The National Guard is a full spectrum force which balances expeditionary 

warfight support with Homeland Defense. Training and preparation for the 

overseas warfighting mission provides National Guard forces with the vast 

majority of the preparation required for HLD. The HLD requirements do not focus 

solely on material solutions; they also identify needed cultural changes – 

specifically regarding coordination and unity of effort across multiple agencies 

and intergovernmental seams. Future success in defending our Homeland and 

responding to natural disasters depends on our success in implementing these 

HLD requirements. The emphasis will be on prevention, pre-event deterrence, 

and responding within the first 96 hours after a major incident. 

Focusing on prevention, an operational window up to 96 hours, and mission 

areas of Critical Infrastructure Protection (CIP) and Consequence Management 

(CM), the National Guard identified four HLD roles it can support, in addition to its 

warfighting responsibilities: (1) Critical Infrastructure Protection, (2) Chemical, 

Biological, Radiological/Nuclear, and high-yield Explosive (CBRNE) Response, 

(3) Prompt Coordinated Federal Response, and (4) HLD Training. Seeking to fill 

capability gaps within these mission areas, the National Guard developed the 

following HLD initiatives: 

 a. Joint Force Headquarters – State (JFHQ-State). JFHQ-State is a joint 

operations capable command and control entity in each State. It is integrated 

into national consequence management and contingency planning structures. 

The JFHQs provide command and control as a subordinate headquarters for 

national level response efforts during a natural disaster or emergency. JFHQs 

provide situational awareness (common operating picture) information to national 

level headquarters before and during any contingency operation and Joint 

Reception, Staging, and Onward Movement, and Integration (JRSOI) for all 

inbound military forces. Recent Federal legislative changes provide Governors 

the ability to field a Joint Task Force – State (JTF-State) that can assume tactical 

control of all military units (State NG, other NG forces, AC, and Reserves) 

ordered to respond to a contingency operation or disaster. The JTF-State 

commander can be a dual-hatted commander of both Title 32 and Title 10 forces 

(as in the 2004 G8 Summit and Democratic and Republican National 

Conventions). In addition, the JTF-State can act as a subordinate Command and 

Control headquarters for US Northern Command if required. 

Page 8 10/11/2005 
 b. Joint Force Headquarters Joint Operations Centers (JFHQ JOC). This is a 

network composed of the NGB Joint Operations Center (NGB JOC), stood up in 

December 2003, and a Joint Operations Center in each of the States, Territories, 

and the District of Columbia. The JFHQ JOC serves as the primary entity for 

coordinating, facilitating, and synchronizing efforts in support of their states, and 

information requirements of NGB and customers at the Federal level for natural 

disasters, National Special Security Events (NSSEs), exercises, and domestic 

activities. Each JFHQ JOC has redundant connectivity: DoD architecture of 

NIPR and SIPR; a High Frequency (HF) network with classified and unclassified 

voice and data information; and commercial systems. The network provides DoD 

and interagency connectivity and situational awareness for deliberate planning 

and for emerging and on-going contingency operations in any state or territory. 

The network is the primary mechanism to convey State/local Common Operating 

Picture (COP) to the Federal military level and helps Federal agencies anticipate 

support requirements prior to a Federal response. 

 c. National Guard Chemical, Biological, Radiological/Nuclear, and high-yield 

Explosive (CBRNE) Enhanced Response Force Package (NG CERFP). The 

National Guard developed and fielded 12 NG CERFP teams to provide a regional 

response capability to meet HLD requirements throughout the Nation. Each NG 

CERFP is designed to rapidly (<96 hours) provide the capability to locate and 

extract victims from a CBRNE incident site and perform mass patient/casualty 

decontamination and medical triage and stabilization. The NG CERFP augments 

the capabilities of the CSTs. NG CERFP teams are task organized from existing 

units. The incremental training and equipment for this capability is specialized, 

compatible with the first responders, and interoperable with the incident 

command system. This is accomplished with negligible impact on the National 

Guard’s ability to provide trained and ready forces for other missions. 

 d. Full Spectrum Integrated Vulnerability Assessment (FSIVA) Team. 

National Guard FSIVA teams execute the pre-planning needed to educate 

civilian agencies on basic force protection and emergency response; to develop 

relationships among first responders, owners of critical infrastructure, and 

National Guard planners in the States and Territories; and the District of 

Columbia, and to deploy traditional National Guard forces in a timely fashion to 

assist in the protection of the Nation’s critical infrastructure, including vital 

elements of the Defense Industrial Base. Currently, six “pilot” teams staffed by 14 

specially trained NG personnel do vulnerability assessments. The National 

Guard worked with the Office of the Assistant Secretary of Defense for Homeland 

Defense (OASD/HD), the Defense Threat Reduction Agency (DTRA), and the 

Defense Program Office – Mission Assurance (DPO-MA) to establish FSIVA 

program policies and standards. 

 e. National Guard Reaction Forces (NGRF). Each State, Territory, and the 

District of Columbia has or is currently training a battalion size reaction force that 

can respond with an initial 75- to 125-person element within 4 to 8 hours and up 

Page 9 10/11/2005 
to an additional 375-person force within 24 to 36 hours. An NGRF is task 

organized from existing units and can provide Critical Infrastructure Protection 

(CIP), site security, and security and support during CBRNE contingency 

operations. The NGRF uses the Quick Reaction Force / Ready Reaction Force 

(QRF/RRF) pamphlet for guidance on doctrine and procedures. 

 f. Joint CONUS Communications Support Environment (JCCSE). The 

National Guard successfully established a JCCSE nationwide. Each JFHQ 

established Homeland Security Information Network (HSIN) linkages. The HSIN 

is an unsecured collection of Department of Homeland Security systems 

designed to facilitate information sharing and collaboration. This network helps 

identify and assess current and future threats to the Homeland, issue timely 

warnings, and take preventive and protective actions. Each JFHQ also 

established a Joint Force Joint Operations Center (JF JOC) with secure and nonsecure, real-time operational network linkages in addition to secure Video 

Teleconference capabilities. These critical communications capabilities provide 

real time operational connectivity and are essential to providing a common 

operating picture to local, state, and Federal agencies. 

 g. Weapons of Mass Destruction-Civil Support Teams (WMD-CSTs) include 

22 Army and Air National Guard Active Guard Reserve (AGR) personnel 

organized, trained, and equipped to enter contaminated areas and identify 

contaminants within a short period of time. The first 10 WMD-CSTs were 

established in 1998, prior to the 9-11 terrorist attacks; however, 9-11 highlighted 

the critical need for these specialized assets. They have extensive reach-back 

communications capability to facilitate off-site evaluation and support from 

various laboratories. At the request of civil authorities, CSTs rapidly deploy to a 

suspected or actual incident site. Once on site, the CSTs assess the effects of a 

WMD incident and advise the local authorities on managing the effects of the 

attack in order to minimize the impact. Civil Support Teams are equipped with a 

mobile laboratory capable of providing identification of chemical or biological 

materials. A sophisticated communications suite offers linking and redundant 

communications capabilities from the incident site with local, state, Federal 

agencies, and with military headquarters. To date, the National Guard has 

fielded 32 CSTs and will have a total of 55 teams by FY07. With their 

certification, every State, Puerto Rico, Guam, the Virgin Islands, and the District 

of Columbia will have a CST. California, due to its geographic size and 

population, will maintain 2 CSTs. Congressional restrictions currently prohibit 

overseas deployment of WMD-CSTs; however, the National Guard is working to 

change legislation to allow CSTs to support military operations overseas.3

 

3

 Although Katrina did not involve the intentional use of WMD, the effects were similar and the 

WMD teams responded in a variety of ways including providing mobile communications and 

establishing essential services. 

Page 10 10/11/2005 
The joint and interagency response to Hurricane Katrina proved and solidified the 

concepts of the JFHQs, the JFHQ JOC, and several other Homeland Defense 

initiatives. 

h. Aviation Security & Support (S&S) Battalions. As part of the Army’s overall 

aviation transformation, the Army National Guard has been able to convert and 

grow some valuable dual-purpose aviation structure that will be readily available 

and responsive to Homeland Security/Defense needs, in addition to their normal 

Army operational missions. The ARNG officially activated six of these 24-aircraft 

S&S Battalions on 1 October 2005 and placed them in readily responsive 

locations across 44 States. Although currently equipped with older Vietnam era 

OH-58 scout helicopters, the Army will soon reequip these units with the new 

Light Utility Helicopter (LUH) currently in the selection and procurement process. 

The Homeland Defense and Civil Support capabilities of the six S&S Battalions 

will be further complemented by the ARNG’s four 15-aircraft Generating Force 

Air Ambulance companies, which will also be reequipped with the new LUH. The 

core nucleus for the S&S Battalions is achieved by the amalgamation and 

retention of the ARNG’s Counter-Drug expertise from the highly successful and 

experienced Reconnaissance and Interdiction Detachments (RAID). 

Top 10 Essential Homeland Defense Capabilities

Homeland Defense is mission one for the National Guard. Governors count on 

the National Guard to be the first military responder and call on Guard assets at 

their disposal within the first hour(s) of an event. The National Guard must be 

able to support the Governors’ requirements on an immediate basis, and respond 

with the right capabilities, to the right location, at the right time. To meet the 

Governors’ requirements, the National Guard established the following list of 10 

essential capabilities each State, Territory, and the District of Columbia must 

maintain at all times. 

 1. Aviation 

 2. Engineering 

 3. Civil Support Teams 

 4. Security 

 5. Medical 

 6. Transportation 

 7. Maintenance 

 8. Logistics 

 9. Joint Force Headquarters (C4ISR, RSOI) 

 10. Communications 

Many states do not possess all of these essential capabilities in their force 

structure. States are encouraged to use Emergency Management Assistance 

Compacts (EMACs) as an essential force multiplier. EMACs enhance a 

Governor’s response capabilities by providing access to regional forces. Even 

Page 11 10/11/2005 
with EMACs, however, some states may not have all essential capabilities. The 

National Guard needs to rebalance forces to ensure each State, Territory, and 

the District of Columbia can field necessary capabilities. 

Maintaining essential capabilities across the National Guard, amid on-going 

overseas operations, AC/RC rebalance, modularity conversions, and National 

Strategy adjustments, is an evolving task. Nevertheless, the National Guard 

attempts to synchronize all of these activities to ensure at least 50% of a given 

state’s National Guard is always available for state missions, and HLD 

operations. 

Understanding Duty Status

The current terror threat and the impending menace of a natural disaster operate 

across an integrated, seamless global sphere. Many events trigger responses 

across multiple jurisdictions and different levels of government. The National 

Guard is exceptionally suited for its Homeland Defense role. Its geographically 

dispersed forces with links to local communities and its ties to state and local 

governments allow for rapid and integrated responses. Because of its unique 

dual constitutional authority, the National Guard serves to bridge that “zone of 

ambiguity” across State and Federal government boundaries. The National 

Guard is the only United States military force that operates across both State and 

Federal responses, leveraging State Active Duty (SAD), Full Time National 

Guard Duty (Title 32), and Active Duty (Title 10). While State Active Duty, Title 

32, and Title 10 are different statuses and roles, they provide mutually supporting 

capability. Recent legislation partially eliminated mutual exclusivity with regards 

to Chain of Command allowing specially designated National Guard officers to 

command forces in both Title 10 and 32 statuses. 

 a. State Active Duty (SAD). The Governor can activate National Guard 

personnel to “State Active Duty” in response to natural or man-made disasters or 

Homeland Defense missions. State Active Duty is based on State statute and 

policy as well as State funds, and the Soldiers and Airmen remain under the 

command and control of the Governor. A key aspect of this duty status is that 

the Posse Comitatus Act (PCA) does not apply. 

 b. Title 32 Full-Time National Guard Duty. “Full-time National Guard duty” 

means training or other duty, other than inactive duty, performed by a member of 

the National Guard. Title 32 allows the Governor, with the approval of the 

President or the Secretary of Defense, to order a member to duty for operational 

HLD activities IAW the following sections of United States Code (USC): 

 1) 32 USC 502(f). This statute allows members of the National Guard to 

be ordered to full-time National Guard duty to perform operational activities. It 

was used for the Airport Security mission after 9/11 as described in page 3 of this 

white paper and also for Hurricane Katrina and Rita response efforts. 

Page 12 10/11/2005 
 (2) 32 USC § 901. (1) The term ‘Homeland Defense activity’ means an 

activity undertaken for the military protection of the territory or domestic 

population of the United States, or of infrastructure or other assets of the United 

States determined by the Secretary of Defense as being critical to national 

security, from a threat or aggression against the United States. 

 (3) 32 USC § 902. Homeland Defense activities: funds. (a) The Secretary 

of Defense may provide funds to a Governor to employ National Guard units or 

members to conduct homeland defense activities that the Secretary determines 

to be necessary and appropriate for participation by the National Guard units or 

members. 

 The key in this instance is that Federal Law provides the Governor with 

the ability to place a soldier in a full-time duty status under the command and 

control of the State but directly funded with Federal dollars. Even though this duty 

status is authorized by Federal statute, this section is a statutory exception to the 

Posse Comitatus Act; the Governor may use the Guard in a law enforcement 

capacity; and the chain of command rests within the State. 

 c. Title 10 Active Duty. “Active duty” means full-time duty in the active military 

service of the United States. Title 10 allows the President to “federalize” National 

Guard forces by ordering them to active duty in their reserve component status or 

by calling them into Federal service in their militia status IAW the following USC 

sections: 

 (1) 10 USC § 12301(d) – Voluntary Order to Active Duty. At any time, a 

member of the National Guard may be ordered to active duty voluntarily with his 

or her consent and the consent of the Governor. 

 (2) 10 USC § 12302 – Partial Mobilization. In time of national 

emergency declared by the President, the Secretary concerned may order any 

unit and any member to active duty for not more than 24 consecutive months. 

 (3) 10 USC § 12304 – Presidential Reserve Call Up. When the 

President determines that it is necessary to augment the active forces for any 

operational mission, he may authorize the Secretary of Defense to order any unit 

and any member to active duty for not more than 270 days. 

 (4) 10 USC § 331 – Federal Aid for State Governments. Whenever an 

insurrection occurs in any State against its government, the President may, upon 

the request of its legislature or of its governor, if the legislature cannot be 

convened, call into Federal service such of the militia of the other States, in the 

number requested by that State, and use such of the armed forces, as he 

considers necessary to suppress the insurrection. This section is a statutory 

exception to the Posse Comitatus Act. 

Page 13 10/11/2005 
 (5) 10 USC § 332 – Use of Militia and Armed Forces to Enforce 

Federal Authority. Whenever the President considers that unlawful 

obstructions, combinations, or assemblages, or rebellion against the authority of 

the United States, make it impracticable to enforce the laws of the United States 

in any State or Territory by the ordinary course of judicial proceedings, he may 

call into Federal service such of the militia of any State, and use such of the 

armed forces, as he considers necessary to enforce those laws or to suppress 

the rebellion. This section is a statutory exception to the Posse Comitatus Act. 

 (6) 10 USC § 333 – Interference with State and Federal law. The 

President, by using the militia or the armed forces, or both, or by any other 

means, shall take such measures as he considers necessary to suppress, in a 

State, any insurrection, domestic violence, unlawful combination, or conspiracy, if 

it – 

 (a) so hinders the execution of the laws of that State, and of the United 

States within the State, that any part or class of its people is deprived of a right, 

privilege, immunity, or protection named in the Constitution and secured by law, 

and the constituted authorities of that State are unable, fail, or refuse to protect 

that right, privilege, or immunity, or to give that protection; or 

 (b) opposes or obstructs the execution of the laws of the United States 

or impedes the course of justice under those laws. In any situation covered by 

clause (1), the State shall be considered to have denied the equal protection of 

the laws secured by the Constitution.

 This section is a statutory exception to the Posse Comitatus Act. 

 (7) 10 USC §12406 – Air and Army National Guard. Air and Army 

National Guard call into Federal service in case of invasion, rebellion or inability 

to execute Federal law with active forces. 

Table 1 summarizes the differing characteristics of SAD, Full Time National 

Guard Duty (FTNGD, Title 32), and Active Duty (Title 10). Table 2 summarizes 

the major mobilizations throughout the history of the National Guard. 

Table 1. National Guard Duty Status Matrix 

State Active Duty FTNGD (Title 32) Active Duty (Title 10) 

Command & control State 

Governor 

State 

Governor1

Federal 

President2

Who performs duty The militia the Federallyrecognized militia (i.e., 

the National Guard)3

AC4, RC and National 

Guard of US3

Where duty performed CONUS IAW state 

law 

CONUS Worldwide 

Pay IAW state law Federal pay & 

allowances 

Federal pay & 

allowances 

Page 14 10/11/2005 
Federal 

reimbursement 

IAW Stafford Act5

 or 

Coop Agreement6

N/A personnel costs 

paid by Federal funds 

N/A personnel costs 

paid by Federal funds 

Tort immunity IAW state law FTCA7 FTCA7

PCA8 application No No Yes 

USERRA9 No, IAW state law Yes Yes 

SSCRA10 No, IAW state law No Yes 

1

 32 USC §502(f)(1) 

2

 Under Presidential Reserve Call-up (10 USC § 12304), partial mobilization (10 USC § 12302), 

or full mobilization (10 USC § 12301(a)) 

3

 10 USC §§ 3062(c) and 8062(c) 

4

 Active Component 

5

 Stafford Act (42 USC § 5121) for disaster-related activities 

6

 Cooperative agreement if to perform an authorized National Guard function 

7

 Federal Tort Claims Act (28 USC §§ 2671-2680) [US represents and pays judgments if any] 

8

 Posse Comitatus Act (18 USC § 1385) [SAD & T32 Guard not considered part of active military] 

9

 Uniformed Services Employment and Reemployment Rights Act (38 USC §§ 4301-4333) 10 Soldiers and Sailors Civil Relief Act (50 USC App. §§ 500-548, 560-591) 

Table 2. National Guard Calls to Duty4

Date(s) Participation Status 

Revolutionary War 1775 -1781 164,000 Volunteers 

War of 1812 1812 489,173 Volunteers 

Mexican War 1846-1848 73,000 Volunteers 

Civil War (Union 

Army) 

1861-1865 1,933,779 Volunteers and Federal Forces 

Spanish-American 

War 

1898 165,000 National Guard (term formalized 

in 1903 with Militia Act) 

San Francisco 

Earthquake and Fire 

1906 30,000 National Guard 

World War I 1917-1919 379,000 National Guard on Federal 

Service 

World War II 1941-1945 300,000 Army National Guard and Army 

Air Forces on Federal Service 

Korean War 1951-1953 183,000 Army and Air National Guard on 

Federal Service 

Vietnam War 1965-1973 7,040 ARNG; 

10,676 ANG 

Army and Air National Guard on 

Federal Service 

Gulf War I (Desert 

Storm and Desert 

Shield) 

1991 398 ARNG 

units; 12,404 

ANG 

Army and Air National Guard on 

Federal Service 

Operations Noble 

Eagle, Enduring 

Freedom, and Iraqi 

Freedom 

2003 - present 210,000 ARNG 

and ANG 

Army and Air National Guard on 

Federal Service 

Katrina Hurricane and 

Flood 

2005 50,087 ARNG 

and ANG 

Army and Air National Guard on 

Title 32 Status 

 

4

 Numbers from 2004 National Guard Almanac and National Guard Bureau records. 

Page 15 10/11/2005 
Equipping Policy

The National Guard is a full spectrum force. Trucks, trailers, water purification 

units, small arms, radios, generators, cargo helicopters, bulldozers, scoop 

loaders, and medical tools are examples of National Guard equipment for both 

domestic and overseas missions. Many National Guard combat vehicles are 

equipped with NBC survival capabilities, and can be useful in potential “dirty” 

attacks. However, the Army National Guard (ARNG) lacks the essential 

equipment needed to operate effectively following a CBRNE incident. More 

specifically, the ARNG needs personal protective equipment (PPE), non-lethal 

systems, and communications equipment that interfaces with first responders. 

The National Guard’s challenge is to provide the best equipment for its Soldiers 

in overseas theaters without jeopardizing its mandate to protect the citizens at 

home. According to LTG Blum, “Communications equipment, tactical vehicles 

and trucks and engineer equipment are the Army Guard’s highest equipment 

priorities.” 

Closing

“The world changed on September 11, 2001. We learned that a threat that 

gathers on the other side of the earth can strike our own cities and kill our own 

citizens. It’s an important lesson; one we can never forget. Oceans no longer 

protect America from the dangers of this world. We’re protected by daily vigilance 

at home. And we will be protected by resolute and decisive action against threats 

abroad.” 

 President George W. Bush 

 September 17, 2002 

“Many of the men and women of the Coast Guard, the Federal Emergency 

Management Agency, the United States military, the National Guard, Homeland 

Security, and state and local governments performed skillfully under the worst 

conditions. Yet the system, at every level of government, was not wellcoordinated and was overwhelmed in the first few days. 

“It is now clear that a challenge on this scale requires greater Federal authority 

and a broader role for the armed forces – the institution of our government most 

capable of massive logistical operations on a moment’s notice. 

 President George W. Bush 

 September 16, 2005 

Defense of our homeland is our nation’s number one priority. The Global War on 

Terrorism (GWOT) necessitates a range of policy, organizational, and force 

Page 16 10/11/2005 
changes to address challenges to our homeland, specifically irregular and 

asymmetric challenges. The National Guard has primary and supporting roles in 

addressing Homeland Defense challenges from the heartland of the U.S. to 

foreign shores. Mutually supporting, capabilities in one environment must extend 

to support the other – this is the requirement for a full spectrum force and the 

essence of Homeland Defense and security. For 369 years, defense of our 

homeland, both here and abroad, has been the National Guard’s focus – and as 

the nation’s militia force, that focus will never change. 

“Always Ready - Always There” 

--LTG H Steven Blum, Chief, National Guard Bureau 

Point of Contact for this action is COL John D. Renaud, (703) 607-9127, Army 

National Guard, G5, Chief, Strategic Plans and Policy. 

Page 17 10/11/2005