I don't think Burkett made them up himself because the doc's used some non TANG lingo. Wouldn't Burkett at least be able to use the correct wording since he was a Lt. Col? Someone, ever so clever, drafted up the documents and passed them on to Burkett is my guess. However, I think Burkett is the designated scape goat and is going to take the bullet on this.
Burkett wasn't TANG. He was Army National Guard. Ain't the same, and he wouldn't have known the Air National Guard lingo.