Opinion ID: 3035703
Heading Depth: 2
Heading Rank: 4

Heading: Other Statutes Regulating Military Reserves

Text: Doe argues that his involuntary enlistment extension violates 10 U.S.C. § 12407(a). Doe’s postulate relies upon a strained interpretation that discounts the statutory scheme regulating the federal and state National Guard. [8] Doe signed a dual enlistment contract, under which he enlisted in the California Army National Guard and as a Reserve of the Army with membership in the National Guard I may be required to perform active duty or active duty for training without my consent (other than as provided in item 8 of this document) as follows: (1) In time of national emergency declared by the President of the United States, I may be ordered to active duty (other than for training) for not more than 24 months. Enlistment Doc. § C(10). The Statement of Understanding of Reserve Obligation and Responsibilities that accompanies the enlistment document similarly states, “I may at any time be ordered to active duty involuntarily as a member of a unit in the event of a war or national emergency declared by Congress or the President of the United States . . . .” DOE v. RUMSFELD 571 of the United States. Enlistment Doc. § E(17). As set forth in Johnson v. Powell, Congress established the “dual enlistment” system in 1933 to avoid limitations on federal service found in the Militia Clause of Article I of the Constitution by organizing a separate reserve of federal soldiers under Congress’ broader power to raise and support armies. 414 F.2d 1060, 1063 (5th Cir. 1969); see also Act of June 15, 1933, 48 Stat. 153 & 155-56, §§ 1 & 58 (1933). Congress incorporated the National Guard of the United States as a reserve component of the military, subject to activation “in time of war or national emergency and at such other times as the national security may require.” 10 U.S.C. § 10102. As such, the National Guard of the United States may be “ordered to active duty and retained as long as so needed” at times when Congress determines that “more units and organization are needed for the national security than are in the regular components of the ground and air forces.” 10 U.S.C. § 10103; see also 10 U.S.C. §§ 12301, 12302, and 12304 (setting forth the specific circumstances in which the National Guard of the United States can be ordered into action). In contrast to these statutes that apply to the National Guard of the United States, 10 U.S.C § 12407(a) restricts the extension of enlistments of soldiers in the National Guard of a State: Whenever the President calls the National Guard of a State into Federal service, he may specify in the call the period of the service. Members and units called shall serve inside or outside the territory of the United States during the term specified, unless sooner relieved by the President. However, no member of the National Guard may be kept in Federal service beyond the term of his commission or enlistment. In light of this language it would be improper for a President to extend, for “Federal” service, the enlistment of a member of the National Guard of a State. 572 DOE v. RUMSFELD [9] Despite this distinct statutory scheme, Doe argues that the reference to “National Guard” in the third sentence of § 12407(a) applies to both the National Guard of a State and the National Guard of the United States. Accordingly, Doe asserts that his extension, regardless of his membership in the National Guard of the United States, is a violation of 10 U.S.C. § 12407(a). This interpretation is unconvincing and inconsistent with case law. When interpreting a statute, a court is “guided not by a single sentence or member of a sentence, but [should look] to the provisions of the whole law, and to its object and policy.” John Hancock Mut. Life Ins. Co. v. Harris Trust & Sav. Bank, 510 U.S. 86, 94-95 (1993) (internal quotation omitted). Furthermore, “where possible, provisions of a statute should be read so as not to create a conflict.” La. Pub. Serv. Comm’n v. F.C.C., 476 U.S. 355, 370 (1986). Doe’s interpretation violates both of these statutory construction principles. The first sentence of § 12407(a) grants the President power to call the “National Guard of a State into Federal service.” (Emphasis added.) This sentence limits the scope of § 12407(a) to the National Guard of a State. Consequently, when the third sentence uses the phrase “National Guard,” it is exclusively referring to the “National Guard of a State.” Furthermore, Doe’s interpretation would implicitly repeal portions of 10 U.S.C. § 12305 that expressly allow enlistment extensions for members of the National Guard of the United States. Therefore, because “repeals by implication are not favored,” Doe’s interpretation and argument must be rejected. See Cook County v. United States ex rel. Chandler, 538 U.S. 119, 121 (2003) (internal citations omitted).
§§ 302 and 303. [10] Doe argues that his enlistment extension violates 10 U.S.C. § 12103 and 32 U.S.C. §§ 302 and 303. Doe’s arguDOE v. RUMSFELD 573 ments are not well-founded. 32 U.S.C. §§ 302 and 303 explicitly govern the State National Guard and not the National Guard of the United States. See 32 U.S.C. § 101(3)-(5) (“Army National Guard means that part of the organized militia of the several States and Territories . . . .”). Thus, because Doe’s extension involved his enlistment in the National Guard of the United States, 32 U.S.C. §§ 302 and 303 are simply inapplicable. [11] 10 U.S.C. § 12103 is also inapplicable, but for different reasons. Section 12103 provides that reserve enlistments of members of the National Guard of the United States are extended until six months after the “end of a war or emergency” declared by Congress. Pursuant to this language, Doe asserts this is the only way an enlistment can be extended. Doe’s argument is not persuasive. [12] Section 12103 identifies certain circumstances where an act of Congress automatically extends the enlistment of a member of the National Guard of the United States. There is nothing in the language of the statute to indicate this is the exclusive manner in which an enlistment can be involuntarily extended. Moreover, to implicitly read into the statute this exclusivity, thereby creating a direct conflict with 10 U.S.C. § 12305, is contrary to established case law. See, e.g., La. Pub. Serv. Comm’n, 476 U.S. at 370 (identifying the principle that when interpreting statutory schemes, the court should, where possible, read the provisions of the statute so as not to create a conflict with other statutes). [13] Even if we were to accept Doe’s assertion and read § 12305(a) to be in conflict with 10 U.S.C. § 12103 and 32 U.S.C. §§ 302 and 303, we still could not construe these sections to override the provisions of § 12305. Section 12305(a) plainly states the President’s authority as identified in the section applies “[n]otwithstanding any other provision of law.” Thus, even if we found § 12305 to be in conflict with the stat574 DOE v. RUMSFELD utes identified by Doe, which we do not, those conflicting terms would be expressly revoked.