Paper letters of recommendation are not accepted at USCGA. Any LORs must be submitted electronically via their portal.
Only after you submit the 4 REQUIRED letters of recommendation (Guidance counselor, English teacher, Math teacher, coach/PE teacher) can you add 2 more additional OPTIONAL people. Keep in mind since they are optional, your record may be reviewed before they are even viewed and may play no part at all in your application for appointment.
LORs are expected to be from people who know you. You say you have only spoken to your guidance counselor twice--how many times have you spoken to your two senators and US representative?