National Guard Bureau

Army National Guard

_______________________________________________________

The Army National Guard: A Great Value for America

White Paper

Executive Summary

This white paper describes the Army National Guard (ARNG): a premier community based force of great 

value to the nation. The defense and domestic response needs of the States and the nation are real and demand 

a versatile and capable force. The ARNG continues to provide those capabilities at the right time, the right 

place, and at a comparatively low cost.

The value of any organization or institution can be measured in terms of its effectiveness and efficiency. That 

is, how well are you performing and at what cost? The Army National Guard is an organization dedicated to 

exceptional value and vigilance. The ARNG provides robust capabilities with part-time costs. The ARNG is 

trained to the same standard as the Active Army, while offering civilian skill sets that are unique to the Reserve 

Component. During a time of multiple, simultaneous threats and constrained resources, the nation must provide for multiple missions in a way that guarantees success at the lowest cost possible. The ARNG through its 

unique organizational structure, with military experience and civilian employer relationships, stands as one of 

America’s greatest values. The ARNG has unique multi-faceted competencies with the economical Reserve 

Component cost structure, as shown in Figure 1.1

Background

The essential ARNG value goal is to sustain a battle-hardened force, with civilian and military skills, enhanced 

through preparedness and leadership. For more than 375 years, ARNG Soldiers have continued the proud tradition of serving our nation at home and around the world. Whether responding to floods, wildfires, tornadoes, or hurricanes, or performing global missions for a decade of overseas contingency operations; each mission enhances our value and challenges our capabilities. More than 80% of our ARNG Soldiers joined the military after 9/11/2001 and more than 50% of ARNG Soldiers are combat veterans.2 The ARNG value is intrinsically tied to retaining that level of operational experience by keeping Soldiers trained, ready, and resilient.

The nature of the Citizen Soldier is to have a civilian occupation in addition to a military career. The ARNG 

has significant numbers of Soldiers who work as educators, medical professionals, law enforcement specialists, 

students, and in other civilian sector fields. As of 30 November 2011, the ARNG has 5,186 educators, 4,808 

medical professionals, 4,599 law enforcement officers, and 34,208 students, many who will become eligible for 

officer programs upon graduation. Regarding the full-time support force, the ARNG has 25,314 full-time military technicians. This includes 1,736 non-dual status and 23,578 dual status technicians, 29,736 Active Guard 

Reserves (AGRs) on Title 10 or Title 32 orders (2,106 and 27,630, respectively). A large 

segment of the ARNG is currently serving in 

a “Soldier Citizen” capacity with 33,746 currently mobilized in support of Overseas Contingency Operations, and another 38,314 in 

receipt of alert orders (as of 12 Jan 12).

The ARNG exemplified capability, availabil17 February 2012, Version 1

Army National Guard Directorate, G5: SPZ

Contents:

Background.............................................................1

What the Nation Needs, When Needed..............................2

Unparalleled Array of Mission Capabilities.......................2

High Value Capabilities at a Lower Cost...........................3

Keystone for Depth and Operational Capabilities..............3

Preserving Military Skills.............................................4

Connecting the Military to the People..............................5

Closing Thoughts........................................................5

End Notes ................................................................6

References ................................................................6
2

ity, and depth in July 2005, when the ARNG provided 

seven of the fifteen Army combat brigades fighting in 

Operation Iraqi Freedom. At that peak of active participation, 41% of all Army personnel in Iraq were from the 

ARNG.3 Even with that historically high level of overseas deployments, when Hurricane Katrina struck the 

Gulf Coast in August 2005, the ARNG responded with 

more than 50,000 Guardsmen from the ARNG and Air 

National Guard (ANG). Guardsmen from across the nation answered the call to serve. For additional information about Hurricane Katrina and Homeland Defense, 

see the white paper at

http://www.arng.army.mil/News/publications/Pages/

WhitePapers.aspx

What the Nation Needs, When Needed

ARNG units cycle through the readiness level prescribed 

in the Army’s Force Generation (ARFORGEN) model. 

While preparing for mobilization, a typical ARNG unit 

completes the base requirement of 39 days (12 weekend 

drills and 15 days of annual training) plus any additional 

required training as specified by ARFORGEN requirements as described in the white paper at 

http://www.arng.army.mil/News/publications/Pages/WhitePapers.aspx

When Operations and Maintenance costs are considered along with Personnel costs, the ARNG Soldier 

costs only 31% as much as an Active Army counterpart.4 By relying on a part-time, professionally led 

force, the nation pays for the most productive part of its military. The part-time Soldier is paid only for 

training and on-duty time (drill pay). Weekend drill pay does not include credits for vacations, holidays, or 

non-duty weekends. Drill pay does not include benefits such as full medical care for Soldiers and their 

Families. While Active Army Soldiers are paid 365 days each year, the part-time National Guard Soldier is 

paid for 39 days of duty plus any additional ad hoc assignments or deployments. Drill pay does not include 

housing or subsistence allowances, both tax exempt 

benefits paid to Active Army members. Yet the part-time 

Soldier provides the nation with full-time availability. The 

Citizen Soldier of the Army National Guard is one of the 

nation’s best values at home and abroad (as shown in figures 1, 2, and 3).

Unparalleled Array of Mission Capabilities

The ARNG is capable of immediate employment in foreign and domestic (national, state and local) missions. As a 

dual-status force, the ARNG can respond to emergency 

demands at any level under the authority of the state governors or at the call of the President to Federal duty. Dual status 

means dual capabilities. A single organization capable of missions in multiple statuses provides more benefits to the nation 

for an already made investment. Initial entry training (IET) and 

professional military education (PME) costs are initially high, 

but over the long term ARNG has low cost capabilities because 

of distributed learning opportunities available to service members.

Fig 3: Operating Force by Component

(numbers in thousands)

Fig 2: FY12 Budget by Component

(dollars in billions)

Fig 1: FY12 Annual Cost per Soldier

(dollars in thousands)
3

The ARNG provides significant military capabilities in response to unexpected emergencies. When natural or 

human-caused disasters strike, an ARNG unit is always nearby. The community based ARNG is present in approximately three thousand locations across the nation including Guam, the Virgin Islands, Puerto Rico, and 

the District of Columbia. Not only are Guardsmen close, but they know their communities intimately. The 

price of this community connection is remarkably low for the varied and ready capabilities provided.

The ARNG has answered the call to 

protect our nation overseas and is 

capable of accomplishing any military 

or recovery mission. The Total Army 

adheres to one standard. Whether a 

unit is in the Active Army, the 

ARNG, or the Army Reserve, the 

standards for evaluating the readiness and performance of people and equipment are the same. Support operations and National Training Center (NTC) rotations assist in better preparing our Soldiers to perform contingency operations with professional readiness. Security cooperation events also support the national defense by 

promoting security and deterring conflict. When deployed to a theater such as Afghanistan or Iraq, the ARNG 

performs at or beyond the same standard as the best units in the Army. 

More than half of ARNG Soldiers 

are combat veterans, making it the 

most experienced, seasoned, and 

trusted ARNG in generations.

High Value Capabilities at a Lower Cost

With the ARNG the nation benefits from a capable military force that is able to carry out both domestic and 

overseas missions with only 11.5% of the total base budget of the Total Army, as shown in Figure 2.5 Yet the 

ARNG makes up 32% of the personnel and maintains about 38% of the operating force, as shown in Figure 3. 

The central reason for the ARNG’s cost-effectiveness is the part-time/full-time force mix. Until called and 

placed in a paid duty status, traditional ARNG members incur minimal cost to the Department of Defense. 

Cost savings attributable to the community-based, part-time nature of the ARNG include fewer pay days per 

year; lower medical costs; lower retirement expenditures; significantly lower training costs beyond initial qualification training; virtually no cost for 

moving Families and household 

goods to new duty stations every 

three or four years; fewer entitlements, such as housing and food 

allowances; and lower base support 

costs in terms of services and facilities including commissaries, base housing, base exchanges, and child care 

facilities. Further, as noted earlier, the men and women of the ARNG have proven themselves repeatedly in 

combat and in domestic response missions. They consistently perform at the professional level that the nation 

expects.

Keystone for Depth and Operational Capabilities

The Army’s 2011 Posture Statement asserts that “The security of the nation can ill afford a reserve force that is 

under-manned, under-equipped or at lower levels of training and readiness.”

According to the 2011 National Guard Posture Statement, the ARNG transformed “more than 2,800 operating 

force units” into modular designs such as brigade combat teams, which are identical to Active Army brigades. 

The world continues to be an unpredictable and dangerous place. While the continuing need for forces for persistent ongoing operations is apparent, a critical need remains to have a deep capability to meet unexpected 

Looking to the future, the Army is aggressively studying what the future role of our reserve 

component should be in an era of persistent conflict when continued deployment is the norm. 

We recently concluded a study that examined how to best retain the capabilities and contributions of the reserve component. One thing is certain across every echelon of this Army; we 

cannot relegate the Army National Guard and Army Reserve back to a strategic reserve. The 

security of the nation can ill afford a reserve force that is under-manned, under-equipped or at 

lower levels of training and readiness.

2011 Army Posture Statement

By the end of FY09, the ARNG completed the most comprehensive force structure change in its 

history. This five-year effort saw more than 2,800 operating force units transform into modular 

designs while deploying 43,225 Soldiers to combat and support operations in Iraq, Afghanistan, 

and Kuwait. With this transformation, ARNG brigade combat teams are identical to Active Component Army brigades so they are compatible regardless of the mission. The ARNG continues to 

grow and adapt to fulfill all levels of the federal and state missions in support of Homeland Security and Homeland Defense.

2011 National Guard Posture Statement

...the Department must continue to ensure availability of a capable and operationally ready Reserve Component. As contingency funding decreases, affordability is a concern and will require 

additional work. In a resource constrained future environment, additional resources as well as 

adjustments to the Reserve Component may be necessary to enhance operational readiness.

Comprehensive Review of the Future Role of the Reserve Component
4

challenges that demand capabilities for Full Spectrum Operations (FSO). The Army National Guard today 

is comprised of 104 brigades. This includes 28 brigade combat teams (BCTs), 62 multi-functional brigades, 

and 14 functional brigades across the 50 states, 3 territories, and the District of Columbia.. This breadth of 

capabilities provides the Army and the nation with critical operational and strategic depth. As the Army 

transforms, the ARNG must make adjustments to force structure as well.

The Comprehensive Review of the Future Role of the Reserve Component, Volume I, Executive Summary and Main Report, prepared by the Office of the Vice Chairman of the Joint Chiefs of Staff and the 

Office of Assistant Secretary of Defense for Reserve Affairs, describes the Reserve Component as 

“irreplaceable” and “cost-effective.”

The Commission on the National Guard and Reserves makes additional recommendations for sustaining 

the operational force as an integrated element of the total force. The Commission observes that “At the 

core of these [needed] changes is the explicit recognition of the 

evolution of the reserve components from a purely strategic force, 

with lengthy mobilization times designed to meet Cold War 

threats from large nation-states, to an operational force. This operational reserve must be readily available for emergencies at home and abroad, and more fully integrated 

with the active component. Simultaneously, this force must retain required strategic elements and capabilities.” In order to continue to fill this operational role, we must maintain a reasonable OPTEMPO for our 

maneuver units. The Commission concludes that the nation has “no reasonable alternative to the nation’s 

continued increased reliance on reserve components as part of its operational force for missions at home 

and abroad.”

In May 2010 the Secretary of the Army and 

Army Chief of Staff commissioned “The 

Independent Panel Review of Reserve 

Component Employment in an Era of Persistent Conflict,” commonly called the 

“Reimer Study,” to conduct an independent review and make recommendations for employing the Army’s 

Reserve Component in the future.6 Their report asserts: “The RC has been continually mobilized and employed in support of Army operations to such a great extent that today’s RC Soldiers and units have gained 

a level of experience and readiness that is arguably higher than at any time in our nation’s history.”

Preserving Military Skills

ARNG units, the composite amalgamations of Soldiers, are irreplaceable 

repositories of military skills and talent. Without the Reserve Components, the military skills, talent, and experience of the nation would be 

dramatically reduced. Only a small percentage of America’s young men 

and women choose to make a full-time career in the military; commensurately, only a small percentage of American Families bear the military burden. The measureable investment 

in training and the incalculable value of combat experience would rapidly dwindle were it not for the opportunities provided by part-time service in the Army’s Reserve Components. A strong argument can be 

made that a larger Reserve Component would be even more effective in fortifying the nation with an adequate reservoir of trained and capable Soldiers, enlisted and officer. As individuals and units enter the 

Train phase of the ARFORGEN cycle, the legacy plan is for Soldiers to “train as they fight” with a continued investment in IET, PME, and functional training. These investments can only be preserved with continuous training support. ARNG monitors a comprehensive database of exercises and participated in an 

impressive list of training events in calendar year 2011 including Mission Spring, a CONUS exercise in October, Saber Strike, in Latvia during November, and Ulchi Freedom Guardian, an exercise planned for 

Seoul, Korea, in December. These exercises are designed to provide a wealth of varied training opportunities.

More than 488,000 ARNG Soldier mobilizations 

have been recorded since 9/11.

National Guard Bureau, ARNG Directorate

The review of investment in the RC 

is not only about dollars; it is also 

about Soldier and unit readiness.

(Reimer Report)

The Army of the 21st century will require a versatile mix of tailorable and adaptable organizations – both Active Component and Reserve Component –

interdependently operating on a rotational cycle.

(Reimer Report)
5

Connecting the Military to the People

As fewer young Americans choose full-time military careers, the ARNG performs an essential role in maintaining the trust and respect historically afforded our military. Today, after a decade of conflict, nearly everyone in America knows a current or former member of the ARNG or Army Reserve. The presence of 

local community units drawing its members from the same local community preserves the tradition of the 

Citizen Soldier and connects civilians to their military in a way that cannot be duplicated by the Active 

Army (as illustrated in the above Footprint chart). Compared to the World War II era, however, community and Family participation is lower. During World War II, the military participation ratio (military membership as a percentage of U.S. population) was about 12 percent and first-hand knowledge about the military was widespread; as of 2004, less than one percent of the U.S. population has a Family member in the 

military and myths and stereotypes about the military tend to proliferate (Segal & Segal, 2004). The skills 

brought to bear during a natural disaster or attack on the homeland help to solidify the community relationship as members are seen in “action” by the populace.

Closing Thoughts

As of December 14, 2011, 37,964 ARNG Soldiers are mobilized in support of overseas missions and domestic operations. The overseas deployments are to Iraq, Afghanistan, the Balkans, Guantanamo Bay, Djibouti (Horn of Africa), the Sinai, and other locations across the globe; the domestic operations include 

counterdrug, southwest border, and state active duty. Based on an Active Army operating force of 

~351,000, an ARNG operating force of ~308,000 (based on an authorized operating force of 313.3K), and 

an Army Reserve operating force of ~150,000, the ARNG is providing approximately 38 percent of the 

Army’s operating force. The National Guard also provides “smart power” approaches to our overseas operations with programs such as the State Partnership Program and Agribusiness Development Teams. National Guard Soldiers possess a unique blend of civilian and military skills, enabling them to conduct varied 
6

missions with exceptional effectiveness. Since 9/11, the ARNG has had 487,856 Soldier mobilizations with many 

Soldiers deploying more than once. More than fifty percent of ARNG Soldiers are combat veterans and more than 

eighty percent joined the Army National Guard after 9/11. The ARNG is a full partner in providing trained, 

equipped combat resources and enabling units for the overseas fight. The nation’s need for experienced forces for 

combat rotations, ongoing contingencies, and stability operations continues unabated. That need is best served by 

a training, equipping, and high value readiness strategy. A strategy of continued readiness ensures the cost effective 

use of defense assets, contributing to the Army’s sustainability, and providing the nation with unrivaled defense 

capabilities. The value of the ARNG has been shaped on the anvils of the past and hardened by the demands of 

the 21st century.

End Notes

References

Comprehensive Review of the Future Role of the Reserve Components [Office of the Vice Chairman of the Joint Chiefs of 

Staff and Office of Assistant Secretary of Defense for Reserve Affairs], 5 April 2011.

Segal, D. R., & Segal, M. W. (2004). America’s military population: Retrieved from http://www.deomi.org/contribute/

DiversityMgmt/documents/AmericasMilitaryPopulation2004.pdf

The Independent Panel Review of Reserve Component Employment in an Era of Persistent Conflict [Reimer Report], 2 November 2010.

Transforming the National Guard and Reserves into a 21st-Century Operational Force [Commission on National Guard and 

Reserves, Final Report], 31 January 2008.

1. The numbers in figures 1, 2, and 3 have been assembled from information in the budget justification books publicly available at the Assistant 

Secretary of the Army (Financial Management & Comptroller (ASAFMC) website: 

http://asafm.army.mil/offices/BU/BudgetMat.aspx?OfficeCode=1200

2. As of EOM December 2011: 181,384 of 359,410 or 50.5% of the ARNG have deployment experience; 289,076 of 359,410 or 80.4% of the 

ARNG have joined since 9/11. Source of data: TAPDB-G and DFAS.

3. This chart is based on both Operations & Maintenance (O&M) and Personnel & Administration (P&A). The ARNG Cost Factor Handbook 

considers a “burdened” per capita Active Army Soldier cost at $145,707.50, with the ARNG Soldier at $45,264.70 or 31%. MILCON and 

procurement are not included on either the Active Army or ARNG calculations.

4. The 31% is derived from the $145.7K and $45.3K “burdened” rate we total for AC and ARNG members. Source: ARNG Program Analysis & Evaluation Division (PA&E) Cost Factor Handbook, As of POM 2013--2017.

5. The ARNG does not have a procurement appropriation and it receives equipment from the $119.7B Active Component budget line. The FY12 

budget for ARNG ($16.7B) was derived from Operation and Maintenance, Army National Guard (OMNG) and National Guard Personnel,

Army (NGPA), Base, Overseas Contingency Operations (OCO), and military constructions (MILCON) combined.

6. This panel consisted of LTG (R) Robert C. Schultz, former Director of the Army National Guard; James R. Helmly, LTG (R), former Chief of 

the Army Reserve; and Dennis J. Reimer, General (R), former Chief of Staff of the Army.

ARNG White Paper Disclaimer:

This white paper is factual as noted in the end notes and references. Any views implied or expressed in this white paper are the 

responsibility of the team of Army National Guard authors. This white paper does not constitute policy or represent the official

positions of the Army National Guard.