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.