Updated December 16, 2020
Defense Primer: Congress’s Constitutional Authority with
Regard to the Armed Forces
Article I, Section 8, Clauses 11-14
sought to delineate the boundaries of each clause relating to
The Congress shall have power *** ;
war powers or identify gaps between them to find specific
powers that are denied to Congress.
To declare War, grant Letters of Marque and Reprisal, and
mak e Rules concerning Captures on Land and Water.
However, the Supreme Court has suggested that Congress
might overstep its bounds into presidential territory if it
To raise and support Armies, but no Appropriation of
were to interfere with the conduct of military operations.
Money to that Use shall be for a longer Term than two
Years.
“Congress has the power not only to raise and
To provide and maintain a Navy.
support and govern armies, but to declare war. It has
therefore the power to provide by law for carrying on
To mak e Rules for the Government and Regulation of the
war. This power necessarily extends to al legislation
land and naval Forces.
essential to the prosecution of war with vigor and
success except such as interferes with the command
The War Powers
of the forces and the conduct of campaigns. That
In Lichter v. United States, 334 U.S. 742 (1948), the
power and duty belong to the President as
Supreme Court discusses the “war powers” of Congress as
commander-in-chief.”
the sum of many interconnected authorities found in the

Constitution. Addressing the constitutionality of the
Ex parte Mil igan, 71 U.S. (4 Wal .) 2, 139 (1866)
Renegotiation Act, an act allowing the government to
(Chase, C.J., concurring).
renegotiate contracts related to war supplies during WWII,
the Court declared that

In view of this power ‘
Debates relating to legislation regarded by some as
To raise and support Armies,
interfering with the President’s Commander-in-Chief
. . . and the power granted in the same Article of the
authority are frequently framed in terms of legislative
Constitution ‘to make all Laws which shal be
meddling in military operations, but the line between
necessary and proper for carrying into Execution
regulating the Armed Forces and directing campaigns has
the foregoing Powers,’ . . . the only question
proved elusive.
remaining is whether the Renegotiation Act was a
law ‘necessary and proper for carrying into
Congress has also used its authority to provide for the
Execution’ the war powers of Congress and
organization and regulation of the Armed Forces to
especially its power to support armies.
determine how military personnel are to be organized and
employed. For example, early statutes prescribed in fairly
In a footnote, the Court listed the Preamble, the Necessary
precise terms how military units were to be formed and
and Proper Clause, the provisions authorizing Congress to
commanded.
lay taxes and provide for the common defense, to declare
war, and to provide and maintain a navy, together with the
Examples of Legislation
clause designating the President as Commander-in-Chief of
the Army and Navy, as being “among the many other
The Uniform Code of Military Justice
provisions implementing the Congress and the President
The Uniform Code of Military Justice (UCMJ) is an
with powers to meet the varied demands of war. . . .”
exercise of Congress’s power to raise and support armies
(Art. I, § 8, cl. 12); provide and maintain a Navy (Art. I,
The power “To declare War” has long been construed to
§ 8, cl.13); and to make rules for organizing and
mean not only that Congress can formally take the nation
disciplining their members (Art. I, § 8, cl. 14). Under this
into war, but also that it can authorize the use of the Armed
authority, Congress enacted the UCMJ (Chapter 47 of Title
Forces for military expeditions that may not amount to war.
10, U.S. Code), which is the code of military criminal laws
While a restrictive interpretation of the power “To declare
applicable to all U.S. military members worldwide.
War” is possible, for example, by viewing the Framers’ use
of the verb “to declare” rather than “to make” as an
The President implements the UCMJ through the Manual
indication of an intent to limit Congress’s ability to affect
for Courts-Martial (MCM), which was initially prescribed
the course of a war once it is validly commenced,
Congress’
by Executive Order 12473 (April 13, 1984). The MCM
s other powers over the use of the military would
contains the Rules for Courts-Martial (RCM), the Military
likely fill any resulting void. In practice, courts have not
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Defense Primer: Congress’s Constitutional Authority w ith Regard to the Armed Forces
Rules of Evidence (MRE), and the UCMJ. The MCM
United States” was defined to comprise “all able-bodied
covers almost all aspects of military law. Military courts are
male citizens of the United States and all other able-bodied
not considered Article III courts, but instead are established
males who have . . . declared their intention to become
pursuant to Article I of the Constitution and, as a result, are
citizens of the United States,” between the ages of 18 and
of limited jurisdiction.
45. The act divided the militia into the National Guard and
the Unorganized Militia. Among other things, the act
Servicemembers Civil Relief Act
organized the National Guard, determined its size in
The Servicemembers Civil Relief Act (SCRA), Chapter 50
proportion to the population of the several s tates, required
of Title 50, U.S. Code, is an exercise of Congress’s power
that all enlistments be for “three years in service and three
to raise and support armies (U.S. Const. Art. I, § 8, cl. 12)
years in reserve,” and limited the appointment of officers to
and to declare war (Art. I, § 8, cl. 11). The purpose of the
those who “shall have successfully passed such tests as to
act is to provide for, strengthen, and expedite the national
. . . physical, moral and professional fitness as the President
defense by protecting servicemembers, enabling them to
shall prescribe.” It also authorized the President in certain
“devote their entire energy to the defense needs of the
emergencies to “draft into the military service of the United
Nation.” The SCRA protects servicemembers by
States to serve therein for the period of the war unless
temporarily suspending certain judicial and administrative
sooner discharged, any or all members of the National
proceedings and transactions that may adversely affect their
Guard and National Guard Reserve,” who thereupon should
legal rights during military service. The SCRA does not
“stand discharged from the militia.” The National Guard is
provide forgiveness of all debts or the extinguishment of
now governed by Title 32, U.S. Code.
contractual obligations on behalf of s ervicemembers who
have been called to active duty, nor does it grant absolute
The militia clauses do not constrain Congress in raising and
immunity from civil lawsuits. Instead, it provides for the
supporting a national army under the war powers clauses
suspension of claims and protection from default
previously discussed. In Perpich v. Department of Defense,
judgments. In this way, it seeks to balance the interests of
496 U.S. 334 (1990), the Supreme Court approved the
servicemembers and their creditors, spreading the burden of
system of “dual enlistment,” under which persons enlisted
national military service to a broader portion of the
in state militia (National Guard) units simultaneously enlist
citizenry.
in the National Guard of the United States, and, when caled
to active duty in the federal service, are relieved of their
The Militia
status in the state militia. Consequently, the restricted
Article I, Section 8, Clauses 15 and 16
purposes in the first militia clause have no application to the
federalized National Guard. There is no constitutional
The Congress shall have power *** ;
requirement that state governors hold a veto power over
federal duty training conducted outside the United States, or
To provide for calling forth the Militia to execute the Laws
that a national emergency be declared before such training
of the Union, suppress Insurrections and repel Invasions;
may take place.
To provide for organizing, arming, and disciplining, the
Relevant Statutes
Militia, and for governing such Part of them as may be
employed in the Service of the United States, reserving to
Titles 10 and 32, U.S. Code.
the States respectively, the Appointment of the Officers, and
Title 50, U.S. Code, Chapter 50.
the Authority of training the Militia according to the
discipline prescribed by Congress.

The Supreme Court, in Houston v. Moore, 18 U.S. (5
CRS Products
Wheat.) 1 (1820), stated that the power of Congress over
the militia
CRS Report R41989, Congressional Authority to Limit Military
Operations, by Jennifer K. Elsea, Michael John Garcia, and
being unlimited, except in the two particulars of
Thomas J. Nicola
officering and training them . . . it may be exercised
CRS Report R45283, The Servicemembers Civil Relief Act (SCRA):
to any extent that may be deemed necessary by
Section-by-Section Summary, by Jennifer K. Elsea
Congress. . . . The power of the state government to
CRS Report R46503, Military Courts-Martial Under the Military
legislate on the same subjects, having existed prior
Justice Act of 2016, by Jennifer K. Elsea and Jonathan M.
to the formation of the Constitution, and not having
Gaffney
been prohibited by that instrument, it remains with
the States, subordinate nevertheless to the

paramount law of the General Government.
Jennifer K. Elsea, Legislative Attorney
The National Defense Act of 1916 brought the militia,
which had been an almost purely state institution, under the
IF10535
control of the national government. The term “militia of the


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Defense Primer: Congress’s Constitutional Authority w ith Regard to the Armed Forces


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https://crsreports.congress.gov | IF10535 · VERSION 7 · UPDATED

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