Who is in charge here?

The American Congress is willing (if tentatively) to allow American troops to be armed in (some) Domestic venues.

But America's Top Military Command is reluctant to allow his troops to "Carry", citing concerns about safety and gun-handling competence on the part of domestic troops.

WTF?  Who is in charge here?

And if the Army can't train troops to be responsible firearms handlers, what does that say about their leadership?