We have a Honor Guard that does the community flag ceremonies -- 1st High School Football game, 1st High School Basketball Game, Little League Opening day, Vetern's Day Ceremony, and we recently did the flag raising at the new firestation. We use 4 Webelos because you need the strentgh to hold the flags for a period of time. We do add a Wolf and a Bear for the sides, that we rotate. This gives a complete picture of the Cub Scout program. We're a small pack so there's not much of a disadvantage of doing this. We usually have to recruit members for our Guard. By the time everyone crosses over, they have helped in at least 1 Public Color Guard. But in a larger Pack, this would seriously limit oppotunities for the boys.
However, for Pack meetings we rotate througth the Dens (Webelos - Wolves), so every group can get their lead a flag ceremony requirement. At the end of the year picnic (Tiger Graduation)the Tigers get their first chance to do the ceremony at the park and they are always so excited.