Flag Precedence Within CBP
A Historical Perspective
Flags serve as powerful symbols of identity, tradition, and unity. Whether displayed in military formations, government institutions, or agency ceremonies, their placement and order of precedence follow established rules and long-standing customs. Within U.S. Customs and Border Protection (CBP), the order in which organizational flags are displayed has been a topic of discussion for years, particularly regarding the flags of its three uniformed components:
While official guidance exists for military flag precedence, CBP’s internal flag hierarchy has evolved over time. Understanding the historical background of flag precedence in the military provides valuable insight into how CBP and other government agencies approach this tradition.
Understanding Flag Precedence: Military Standards
The U.S. Armed Forces follow a structured system for flag precedence, which is generally determined by:
In a joint military color guard, flags are displayed in the following order:
- What the flag represents (e.g., country, state, department, agency, organization).
- The date of establishment of the organization the flag represents.
In a joint military color guard, flags are displayed in the following order:
- United States Flag – Represents the nation and takes precedence over all others.
- U.S. Army – Established June 14, 1775.
- U.S. Marine Corps – Established November 10, 1775.
- U.S. Navy – Established October 13, 1775.
- U.S. Air Force – Established September 18, 1947.
- U.S. Space Force – Established December 20, 2019.
- U.S. Coast Guard – Traces its origins to the Revenue Cutter Service (August 4, 1790) but officially became the U.S. Coast Guard in 1915.
Why the Marine Corps Flag Takes Precedence Over the Navy Flag
Although the U.S. Navy was established 28 days before the U.S. Marine Corps, historical precedent dictates that the Marine Corps flag is displayed ahead of the Navy flag. The reasoning behind this tradition is tied to the temporary disbandment of both services following the Revolutionary War:
This structured approach to flag precedence has influenced other government agencies, including CBP, in determining how their own organizational flags are displayed.
Although the U.S. Navy was established 28 days before the U.S. Marine Corps, historical precedent dictates that the Marine Corps flag is displayed ahead of the Navy flag. The reasoning behind this tradition is tied to the temporary disbandment of both services following the Revolutionary War:
- After the war, both the Navy and Marine Corps were disbanded in 1783.
- The Navy was reconstituted in 1794 and initially recognized 1794 as its founding year.
- The Marine Corps was reconstituted in 1798 but continued to recognize 1775 as its official establishment date.
- In 1972, Chief of Naval Operations Admiral Elmo Zumwalt authorized the Navy to officially reclaim its 1775 founding date. However, by this point, the established order of precedence—placing the Marine Corps flag ahead of the Navy—remained unchanged and continues to be observed today.
This structured approach to flag precedence has influenced other government agencies, including CBP, in determining how their own organizational flags are displayed.
CBP’s Flag Precedence: A Historical Look
Within CBP, several components have their own official flags, with the three uniformed offices—USBP, OFO, and AMO—being the most prominent.
Early Practices (2003–2016)
From 2003 to 2016, the USBP flag was commonly displayed first in CBP color guards. While no official CBP policydictated this order, it became a widely followed practice. Several factors contributed to this tradition:
A notable historical document regarding the USBP flag’s design comes from a December 9, 1997 letter written by Thomas L. Wacher, CPA/ELC, Secretary to the Chiefs Association. In it, he recorded a decision made by Chief Patrol Agent Harold R. Kruhm, stating:
“Chief Kruhm said the decision on the Border Patrol flag is green with 22 stars. (21 for the Sectors and one for the Academy). Thanks to all that took the time to vote. This will have to be approved by DOJ and then we can purchase the flags for Sectors and Stations.”
During this period, CBP color guards typically presented flags in the following order:
Although widely practiced, this precedence was not formally documented in CBP policy.
The 2016 OFO Memorandum on Flag Precedence
In December 2016, the Executive Assistant Commissioner of the Office of Field Operations, Todd C. Owen, issued an official memorandum that formally established CBP’s flag precedence based on organizational lineage:
The OFO memorandum set precedence based on the earliest date of establishment. However, some details in this document were historically inaccurate—specifically, it listed the USBP’s creation date as May 25, 1924, whereas the official legislative record (Public Law 68-153, page 240) confirms May 28, 1924 as the correct date.
This memorandum did not require other CBP components to follow this guidance, and CBP has no universal enforcement mechanism for flag precedence. As a result, different CBP offices and events may follow different flag orders.
Early Practices (2003–2016)
From 2003 to 2016, the USBP flag was commonly displayed first in CBP color guards. While no official CBP policydictated this order, it became a widely followed practice. Several factors contributed to this tradition:
- The USBP flag predates the OFO and AMO flags, with its design finalized on June 11, 1999.
- The USBP flag was developed with the approval of the U.S. Army Institute of Heraldry, adding to its historical legitimacy.
- USBP maintained a distinct organizational identity, whereas OFO emerged from the merger of legacy U.S. Customs and Immigration Inspection functions.
A notable historical document regarding the USBP flag’s design comes from a December 9, 1997 letter written by Thomas L. Wacher, CPA/ELC, Secretary to the Chiefs Association. In it, he recorded a decision made by Chief Patrol Agent Harold R. Kruhm, stating:
“Chief Kruhm said the decision on the Border Patrol flag is green with 22 stars. (21 for the Sectors and one for the Academy). Thanks to all that took the time to vote. This will have to be approved by DOJ and then we can purchase the flags for Sectors and Stations.”
During this period, CBP color guards typically presented flags in the following order:
- United States Flag
- U.S. Border Patrol (USBP) Flag
- Office of Field Operations (OFO) Flag
- Air & Marine Operations (AMO) Flag
Although widely practiced, this precedence was not formally documented in CBP policy.
The 2016 OFO Memorandum on Flag Precedence
In December 2016, the Executive Assistant Commissioner of the Office of Field Operations, Todd C. Owen, issued an official memorandum that formally established CBP’s flag precedence based on organizational lineage:
- Office of Field Operations (OFO) – Traces its origins to the U.S. Customs Service (July 31, 1789).
- U.S. Border Patrol (USBP) – Established with the passage of Public Law 68-153 on May 28, 1924.
- Air & Marine Operations (AMO) – Formally established January 17, 2006.
The OFO memorandum set precedence based on the earliest date of establishment. However, some details in this document were historically inaccurate—specifically, it listed the USBP’s creation date as May 25, 1924, whereas the official legislative record (Public Law 68-153, page 240) confirms May 28, 1924 as the correct date.
This memorandum did not require other CBP components to follow this guidance, and CBP has no universal enforcement mechanism for flag precedence. As a result, different CBP offices and events may follow different flag orders.
A Tradition of Honor, Regardless of Precedence
While flag precedence plays an important role in ceremonial traditions, it does not define the strength or significance of an organization. Throughout its history, the U.S. Border Patrol has maintained a proud legacy of service and dedication—one that extends beyond the placement of a flag in a formation.
Whether displayed first, last, or in alphabetical order, the USBP flag remains a powerful symbol of the Border Patrol’s rich history, tradition, and culture. More than a symbol, the Border Patrol’s impact is measured by the dedication of its personnel, its traditions, and its commitment to national security.
Honor First!
While flag precedence plays an important role in ceremonial traditions, it does not define the strength or significance of an organization. Throughout its history, the U.S. Border Patrol has maintained a proud legacy of service and dedication—one that extends beyond the placement of a flag in a formation.
Whether displayed first, last, or in alphabetical order, the USBP flag remains a powerful symbol of the Border Patrol’s rich history, tradition, and culture. More than a symbol, the Border Patrol’s impact is measured by the dedication of its personnel, its traditions, and its commitment to national security.
Honor First!
