1. FOR OFFICIAL USE ONLY
EXPIRATION 30 JUNE 2019
RECOMMENDATIONS FOR ARMY FORCE GENERATION SYNCHRONIZATION
OF NATIONAL GUARD CBRNE ENHANCED RESPONSE
FORCE-PACKAGE (CERF-P) UNITS
A thesis presented to the Faculty of the U.S. Army
Command and General Staff College in partial
fulfillment of the requirements for the
degree
MASTER OF MILITARY ART AND SCIENCE
Homeland Security Studies
by
BRYAN P. BETTEY, MAJOR, NEBRASKA ARMY NATIONAL GUARD
M.S. Troy University, Troy, Alabama, 2003
Fort Leavenworth, Kansas
2009
Distribution authorized to U.S. Government agencies and their contractors.

2. FOR OFFICIAL USE ONLY
ii
REPORT DOCUMENTATION PAGE
Form Approved
OMB No. 0704-0188
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number. PLEASE DO NOT RETURN YOUR FORM TO THE ABOVE ADDRESS.
1. REPORT DATE (DD-MM-YYYY)
12-06-2009
2. REPORT TYPE
Master’s Thesis
3. DATES COVERED (From - To)
AUG 2008 – JUN 2009
4. TITLE AND SUBTITLE
Recommendations for Army Force Generation Synchronization
of National Guard CBRNE Enhanced Response Force-Package
(CERF-P) Units
5a. CONTRACT NUMBER
5b. GRANT NUMBER
5c. PROGRAM ELEMENT NUMBER
6. AUTHOR(S)
Bryan P. Bettey
5d. PROJECT NUMBER
5e. TASK NUMBER
5f. WORK UNIT NUMBER
7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES)
U.S. Army Command and General Staff College
ATTN: ATZL-SWD-GD
Fort Leavenworth, KS 66027-2301
8. PERFORMING ORG REPORT
NUMBER
9. SPONSORING/MONITORING AGENCY NAME(S) AND ADDRESS(ES) 10. SPONSOR/MONITOR’S
ACRONYM(S)
11. SPONSOR/MONITOR’S REPORT
NUMBER(S)
12. DISTRIBUTION/AVAILABILITY STATEMENT
Distribution authorized to U.S. Government agencies and their contractors.
13. SUPPLEMENTARY NOTES
14. ABSTRACT
This thesis examines whether the requirement for Chemical, Biological, Radiological, Nuclear, and High-Yield
Explosives (CBRNE) Enhanced Response Force-Package (CERF-P) units to simultaneously maintain Army Force
Generation (ARFORGEN) wartime training proficiency and first response homeland defense consequence
management skills is sustainable over the long term. The CERF-P is a relatively new consequence management
force in the National Guard. It consists of a set of dual missioned units with a homeland defense-civil support and
wartime mission. The problem identified is that both missions compete for the same training time in an already
time-constrained environment. The methodology used to examine this issue is a modification of the U.S. Army’s
Seven Step Problem-Solving Model. This methodology critically examines potential solutions using multiple
screening and evaluation criteria. Using a rubric based set of benchmarks, courses of action were evaluated for
cost, simplicity, and effectiveness. The results of this analysis demonstrated that either a change in training
management regulation or force structure organization is best suited to solving the problem. The thesis concluded
the best solution is ARFORGEN synchronization of CERF-P units through formal regulation and adoption of
recently published training management doctrine.
15. SUBJECT TERMS
CERF-P, ARFORGEN, National Guard, CBRNE,training management, mass casualty
16. SECURITY CLASSIFICATION OF: 17. LIMITATION
OF ABSTRACT
18. NUMBER
OF PAGES
19a. NAME OF RESPONSIBLE PERSON
a. REPORT b. ABSTRACT c. THIS PAGE 19b. PHONE NUMBER (include area code)
(U) (U) (U) (U) 122
Standard Form 298 (Rev. 8-98)
Prescribed by ANSI Std. Z39.18

3. FOR OFFICIAL USE ONLY
iii
MASTER OF MILITARY ART AND SCIENCE
THESIS APPROVAL PAGE
Name of Candidate: Major Bryan P. Bettey
Thesis Title: Recommendations for Army Force Generation Synchronization of National
Guard CBRNE Enhanced Response Force-Package (CERF-P) Units
Approved by:
, Thesis Committee Chair
LTC Michael R. Anderson, M.S.M.E.
, Member
Gary B. Cordes, M.B.A.
, Member
Jack D. Kem, Ph.D.
Accepted this 12th day of June 2009 by:
, Director, Graduate Degree Programs
Robert F. Baumann, Ph.D.
The opinions and conclusions expressed herein are those of the student author and do not
necessarily represent the views of the U.S. Army Command and General Staff College or
any other governmental agency. (References to this study should include the foregoing
statement.)

4. FOR OFFICIAL USE ONLY
iv
CERTIFICATION FOR MMAS DISTRIBUTION STATEMENT
1. Certification Date: 12 June 2009
2. Thesis Author: Bryan P. Bettey
3. Thesis Title: Recommendations for Army Force Generation Synchronization of National
Guard CBRNE Enhanced Response Force-Package (CERF-P) Units
4. Thesis Committee Members: LTC Michael R. Anderson
Signatures: Mr. Gary B. Cordes
Dr. Jack D. Kem
5. Distribution Statement: See distribution statements A-X on reverse, then circle appropriate
distribution statement letter code below:
A B C D E F X
If your thesis does not fit into any of the above categories or is classified, you must coordinate
with the classified section at CARL.
6. Justification: Justification is required for any distribution other than described in Distribution
Statement A. All or part of a thesis may justify distribution limitation. See limitation justification
statements 1-10 on reverse, then list, below, the statement(s) that applies (apply) to your thesis
and corresponding chapters/sections and pages. Follow sample format shown below:
EXAMPLE
Limitation Justification Statement / Chapter/Section / Page(s)
Software Documentation (8) / Chapter 3 / 12
Critical Technology (3) / Section 4 / 31
Administrative Operational Use (7) / Chapter 2 / 13-32
Fill in limitation justification for your thesis below:
Limitation Justification Statement / Chapter/Section / Page(s)
Administrative/Operational Use / 1 / 1-2, 4, 11-12
Administrative/Operational Use / 2 / 31, 35, 40
Administrative/Operational Use / 4 / 61-62
/ /
7. MMAS Thesis Author's Signature:

5. FOR OFFICIAL USE ONLY
v
ABSTRACT
RECOMMENDATIONS FOR ARMY FORCE GENERATION SYNCHRONIZATION
OF NATIONAL GUARD CBRNE ENHANCED RESPONSE FORCE-PACKAGE
(CERF-P) UNITS, by Major Bryan P. Bettey, 122 pages.
This thesis examines whether the requirement for Chemical, Biological, Radiological,
Nuclear, and High-Yield Explosives (CBRNE) Enhanced Response Force-Package
(CERF-P) units to simultaneously maintain Army Force Generation (ARFORGEN)
wartime training proficiency and first response homeland defense consequence
management skills is sustainable over the long term. The CERF-P is a relatively new
consequence management force in the National Guard. It consists of a set of dual
missioned units with a homeland defense-civil support and wartime mission. The
problem identified is that both missions compete for the same training time in an already
time-constrained environment. The methodology used to examine this issue is a
modification of the U.S. Army’s Seven Step Problem-Solving Model. This methodology
critically examines potential solutions using multiple screening and evaluation criteria.
Using a rubric based set of benchmarks, courses of action were evaluated for cost,
simplicity, and effectiveness. The results of this analysis demonstrated that either a
change in training management regulation or force structure organization is best suited to
solving the problem. The thesis concluded the best solution is ARFORGEN
synchronization of CERF-P units through formal regulation and adoption of recently
published training management doctrine.

6. FOR OFFICIAL USE ONLY
vi
ACKNOWLEDGMENTS
This work has been a noteworthy challenge and it would not have come to fruition
without the significant efforts of many people. I would like to thank first and foremost
my wife, Laura, without whom I could never have finished this work. Her support and
love along with that of my children sustained me through the most difficult times.
I would never have had the chance to start this work were it not for my state
offering me the opportunity to attend this college. For this honor, I would like to thank
my leadership for offering me this opportunity: MG Timothy Kadavy, BG David
Petersen, COL Thomas Schuurmans, COL Judd Lyons, and LTC Chad Stevens.
My instructors and mentors at this fine institution helped me every step of the
way. Heartfelt thanks to LTC Mike Anderson, Dr. Jack Kem, Gary Cordes, Col Graeme
Finney, and Orville Cupp. I would like to single out my small group advisor, Dr. Thomas
Ward for his steadfast encouragement and timely counseling to not give up. His door was
always open and his advice was always on target. His assistance in organizing this work,
particularly the methodology, was instrumental to my success.
I could not complete this acknowledgement without taking a moment to pass a
nod to the fine noncommissioned officers I have served with, who have always been the
voice of common sense and reason; you are the sole reason I am where I am today.
Thanks.

7. FOR OFFICIAL USE ONLY
vii
TABLE OF CONTENTS
Page
MASTER OF MILITARY ART AND SCIENCE THESIS APPROVAL PAGE ............ iii!
CERTIFICATION FOR MMAS DISTRIBUTION STATEMENT ................................. iv!
ABSTRACT.........................................................................................................................v!
ACKNOWLEDGMENTS ................................................................................................. vi!
TABLE OF CONTENTS.................................................................................................. vii!
ACRONYMS..................................................................................................................... xi!
ILLUSTRATIONS .......................................................................................................... xiii!
TABLES .......................................................................................................................... xiv!
CHAPTER 1 INTRODUCTION.........................................................................................1!
Introduction..................................................................................................................... 1!
Example CBRNE Incident.............................................................................................. 2!
Overview of the CBRNE Enhanced Response Force-Package ...................................... 4!
Tiered Response.............................................................................................................. 7!
Title 10, Title 32, and State Active Duty...................................................................... 10!
Army Force Generation ................................................................................................ 12!
Mission-Essential Task Lists .................................................................................... 14!
CBRNE Enhanced Response Force-Package Mission ................................................. 15!
Composition.................................................................................................................. 16!
Command and Control Team.................................................................................... 17!
Search and Extraction Element................................................................................. 18!
Decontamination Element......................................................................................... 18!
Medical Element ....................................................................................................... 18!
Disposition.................................................................................................................... 19!
Thesis Question............................................................................................................. 20!
Background................................................................................................................... 20!
Organization.................................................................................................................. 21!
Primary Research Question .......................................................................................... 23!
Secondary Research Questions..................................................................................... 23!
Significance .................................................................................................................. 23!
Assumptions.................................................................................................................. 24!
Limitations.................................................................................................................... 25!
Conclusion .................................................................................................................... 25!

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CHAPTER 2 LITERATURE REVIEW............................................................................27!
Introduction................................................................................................................... 27!
Literature Overview...................................................................................................... 28!
History of the CBRNE Enhanced Response Force-Package........................................ 29!
Chemical/Biological Incident Response Force......................................................... 29!
Department of Defense ............................................................................................. 30!
National Guard Bureau ............................................................................................. 31!
Weapons of Mass Destruction-Civil Support Teams................................................ 31!
11 September 2001 ................................................................................................... 32!
Hart-Rudman Report................................................................................................. 33!
Transformation of the National Guard...................................................................... 34!
CBRNE Enhanced Response Force-Package ........................................................... 36!
Future ........................................................................................................................ 38!
Conclusion .................................................................................................................... 40!
CHAPTER 3 METHODOLOGY ......................................................................................42!
Introduction................................................................................................................... 42!
The Army Seven Step Problem-Solving Model ........................................................... 43!
Step 1: Identify the Problem......................................................................................... 44!
Thesis Questions ....................................................................................................... 45!
Primary Research Question....................................................................................45!
Secondary Research Questions..............................................................................45!
Step 2: Gather Information ........................................................................................... 46!
Step 3: Develop Criteria ............................................................................................... 47!
Screening Criteria ..................................................................................................... 47!
Evaluation Criteria.................................................................................................... 48!
Cost ........................................................................................................................49!
Simplicity...............................................................................................................50!
Effectiveness..........................................................................................................51!
Step 4: Generate Possible Options................................................................................ 52!
Step 5: Analyze Possible Solutions .............................................................................. 53!
Step 6: Compare Possible Solutions............................................................................. 53!
Step 7: Make and Implement the Decision................................................................... 55!
Conclusion .................................................................................................................... 55!
CHAPTER 4 ANALYSIS .................................................................................................57!
Introduction................................................................................................................... 57!
Step 4: Generate Options.............................................................................................. 58!
Course of Action Development ................................................................................ 58!
Current Process......................................................................................................58!
Analysis of CBRNE Enhanced Response Force-Package Doctrine,
Organization, Training, Material, Leadership, Personnel, and Facilities
Recommendations..................................................................................................59!

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Doctrine ............................................................................................................ 60!
Organization and Personnel.............................................................................. 60!
Training............................................................................................................. 61!
Courses of Action ..................................................................................................... 62!
Course of Action 1-The Status Quo.......................................................................62!
Facts.................................................................................................................. 63!
Assumptions...................................................................................................... 63!
Course of Action 2-The CBRNE Consequence Management Force Model .........64!
Facts.................................................................................................................. 65!
Assumptions...................................................................................................... 66!
Course of Action 3-The Civil Support Team Model .............................................66!
Facts.................................................................................................................. 67!
Assumptions...................................................................................................... 67!
Course of Action 4-The Synergistic Hybrid Model...............................................67!
Facts.................................................................................................................. 69!
Assumptions...................................................................................................... 69!
Step 5: Analyze Possible Solutions .............................................................................. 69!
Course of Action Screening...................................................................................... 70!
Course of Action 1-The Status Quo.......................................................................70!
Course of Action 2-The CBRNE Consequence Management Force Model .........71!
Course of Action 3-The Civil Support Team Model .............................................71!
Course of Action 4-The Synergistic Hybrid Model...............................................72!
Discarded Courses of Action .................................................................................... 72!
Course of Action Evaluation..................................................................................... 73!
Course of Action 1-The Status Quo.......................................................................74!
Strengths ........................................................................................................... 74!
Weaknesses....................................................................................................... 74!
Course of Action 2-The CBRNE Consequence Management Force Model .........75!
Strengths ........................................................................................................... 75!
Weaknesses....................................................................................................... 76!
Course of Action 3-The Civil Support Team Model .............................................76!
Strengths ........................................................................................................... 76!
Weaknesses....................................................................................................... 77!
Step 6: Compare Possible Solutions............................................................................. 77!
Course of Action Comparison Analysis ................................................................... 77!
Course of Action Comparison Summary.................................................................. 78!
Conclusion .................................................................................................................... 79!
CHAPTER 5 CONCLUSIONS AND RECOMMENDATIONS......................................81!
Introduction................................................................................................................... 81!
Research Conclusions................................................................................................... 82!
Thesis Recommendations ............................................................................................. 82!
1st: Course of Action 2-The CBRNE Consequence Management
Force Model.............................................................................................................. 83!
2nd: Course of Action 3-The Civil Support Team Model ........................................ 85!

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3rd: Course of Action 1-The Status Quo .................................................................. 87!
Conclusion .................................................................................................................... 89!
GLOSSARY ......................................................................................................................91!
APPENDIX A MAN-DAY ANALYSIS...........................................................................95!
Presidential Decision Directives................................................................................... 98!
National Security Presidential Directives..................................................................... 98!
Homeland Security Presidential Directives .................................................................. 98!
Strategy......................................................................................................................... 98!
Legislation .................................................................................................................... 98!
Department of Defense................................................................................................. 99!
REFERENCE LIST .........................................................................................................100!
Books, Periodicals, and Articles................................................................................. 100!
Government Documents ............................................................................................. 100!
Unpublished Materials................................................................................................ 104!
Other Sources.............................................................................................................. 104!
INITIAL DISTRIBUTION LIST ....................................................................................106!

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ACRONYMS
AC Active Component
AGR Active Guard Reserve
ANG Air National Guard
AR Army Regulation
ARFORGEN Army Force Generation
ARNG Army National Guard
C2 Command and Control
CBRNE Chemical, Biological, Radiological, Nuclear, or High-Yield Explosive
CBIRF Chemical/Biological Incident Response Force
CCMRF Chemical, Biological, Radiological, Nuclear, or High-Yield Explosive
Consequence Management Response Force
CERF-P Chemical, Biological, Radiological, Nuclear, or High-Yield Explosive
Enhanced Response Force-Package
CMETL Core Mission-Essential Task List
COA Course Of Action
CTAC Center for Army Tactics
DA Department of the Army
DECON Decontamination
DGDP Directorate of Graduate Degree Programs
DJMO Directorate of Joint and Multinational Operations
DMETL Directed Mission-Essential Task List
DOD Department of Defense
DOTMLPF Doctrine, Organization, Training, Material, Leadership, Personnel, and
Facilities

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DTRA Defense Threat Reduction Agency
FM Field Manual
GDP Graduate Degree Programs
IAW In Accordance With
JMD Joint Manning Document
JMETL Joint Mission-Essential Task List
MDMP Military Decision Making Process
METL Mission-Essential Task List
MTOE Modified Table of Organization and Equipment
NBC Nuclear, Biological, Chemical
NG National Guard
NGB National Guard Bureau
S&E Search and Extraction
TAG The Adjutant General
TDA Table of Distribution and Allowances
TY Training Year
WMD-CST Weapons of Mass Destruction-Civil Support Team

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ILLUSTRATIONS
Page
Figure 1.!States with a CBRNE Enhanced Response Force-Package versus Federal
Emergency Management Agency Regions as of 2008.........................................6!
Figure 2.!Tiered Response....................................................................................................8!
Figure 3.!Command and Control of National Guard Forces by Duty Status. ....................11!
Figure 4.!Operational Readiness Cycle..............................................................................13!
Figure 5.!Civil Support Team, CBRNE Enhanced Response Force-Package, and Joint
Force Headquarters Task Organization ..............................................................17!
Figure 6.!Operational Reach of the Nation’s CBRNE Enhanced Response
Force-Packages...................................................................................................19!
Figure 7.!Domestic Response Force Relationships............................................................40!
Figure 8.!The Seven Step Problem-Solving Model............................................................43!

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TABLES
Page
Table 1.! Comparison of Department of Defense CBRNE Response Forces....................38!
Table 2.! Evaluation Criterion Rubric: Cost ......................................................................50!
Table 3.! Evaluation Criterion Rubric: Simplicity.............................................................51!
Table 4.! Evaluation Criterion Rubric: Effectiveness........................................................52!
Table 5.! Evaluation Criteria Rubric Summary .................................................................54!
Table 6.! Example Course of Action Comparison Table...................................................54!
Table 7.! Course of Action 1 Army Force Generation Training Management Plan..........63!
Table 8.! Course of Action 2 Army Force Generation Training Management Plan..........65!
Table 9.! Course of Action 3 Training Management Plan.................................................66!
Table 10.! Course of Action 4 Army Force Generation Training Management Plan ........68!
Table 11.! Evaluation Criteria Benchmarks .......................................................................73!
Table 12.! Course of Action Comparison Analysis............................................................78!
Table 13.! Course of Action Comparison Summary..........................................................79!
Table 14.! Course of Action 2 Army Force Generation Training Management Plan ........84!
Table 15.! Recommendation 1: Course of Action 2-The CBRNE Consequence
Management Force Model ................................................................................85!
Table 16.! Course of Action 3 Training Management Plan ...............................................86!
Table 17.! Recommendation 2: Course of Action 3-The Civil Support Team Model.......87!
Table 18.! Course of Action 1 Army Force Generation Model Training
Management Plan..............................................................................................88!
Table 19.! Recommendation 3: Course of Action 1-The Status Quo.................................89!