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ANC Public Memo Final

ANC Public Memo Final

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Published by: apareene on Jul 27, 2010
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MEMORANDUMJuly 27, 2010To:Subcommittee on Contracting Oversight Members and StafFr:Subcommittee Majority Staff Re:Mismanagement of Contracts at Arlington National Cemetery
On July 29, 2010, the Subcommittee on Contracting Oversight will hold a hearingentitled, “Mismanagement of Contracts at Arlington National Cemetery.”This memorandum examines in detail the contracts awarded to plan, design, andimplement a new automated burial management system, known as the Total CemeteryManagement System (TCMS), at Arlington National Cemetery. The memorandum is based on areview of more than 5,300 pages of documents submitted by the U.S. Army, includingunredacted supplementary materials prepared by the Army Inspector General as part of their inspection and investigation of Arlington National Cemetery, materials submitted bywhistleblowers, and the Subcommittee’s interviews of current and former government officialsinvolved in management and oversight of the Cemetery.The documents and information obtained by the Subcommittee show that a series of errors and improper actions wasted millions of dollars and delayed implementation of afunctioning system by years. The acquisition process was so poorly managed by the Cemetery,Army contracting and budget officials, and the contractors that, today, more than a decade after the Army began development of TCMS, Arlington National Cemetery still does not have anautomated system that can accurately track graves and manage burial operations at the Cemetery.The Subcommittee has also learned that the problems with graves at Arlington may be far more extensive than previously acknowledged. The Subcommittee has obtained informationsuggesting that 4,900 to 6,600 graves may be unmarked, improperly marked, or mislabeled onthe Cemetery’s maps.
The first military service member was buried at Arlington National Cemetery (ANC or the Cemetery) in May 1864. Today, more than 330,000 individuals have been laid to rest at theCemetery, including service members from every major conflict and war. The Cemeteryconducts approximately 6,400 funerals a year, an average of 27 to 30 funerals per day.
Arlington National Cemetery is one of two national cemeteries managed by the U.S.Army. Under the National Cemeteries Act of 1973, the control of all other national cemeterieswas transferred to the Department of Veterans Affairs. Today, the Department of VeteransAffairs operates 131 national cemeteries.
U.S. Department of the Army Office of Inspector General,
 Report of Investigation
(June9, 2010) (Case 10-04).1
On July 16, 2009, the online magazine Salon.com published the first of a series of articlesregarding mismanagement at Arlington National Cemetery. In August 2009, in response toSalon’s investigation and additional concerns raised by whistleblowers, the Secretary of theArmy directed the Army Inspector General to review the operation, management, andeffectiveness of leadership of the Cemetery. In November 2009, the Secretary of the Armydirected the Army Inspector General to include an assessment of the Cemetery’s compliancewith information technology and contracting regulations, and to investigate allegations relatingto hostile work environment, inappropriate hiring practices, and improper burials at theCemetery.In June 2010, the U.S. Army Inspector General released a report finding major flaws inthe operation of Arlington National Cemetery. The Army Inspector General found hundreds of mistakes associated with graves at Arlington National Cemetery, including unmarked or improperly marked graves, incorrect information in the Cemetery’s records about whether graveswere occupied, and mishandling of cremated remains, including multiple occasions where urnsof cremated remains were found in the Cemetery’s landfill.The Army Inspector General found that the failure to implement an effective automatedsystem to manage burials at the Cemetery contributed to these mistakes. The Army Inspector General also found that the contracts awarded to acquire components of the proposed system for the Cemetery failed to comply with applicable federal, Defense, and Army regulations.
More than ten years ago, the Army began the development of a new system to automatethe management of burial operations at Arlington National Cemetery. Documents andinformation obtained by the Subcommittee show that a series of improper actions and errors havewasted millions of dollars and delayed implementation of a functioning system by years.From the beginning, the acquisition process was plagued with problems. Cemetery andArmy officials decided to create a new system instead of using or modifying the system alreadyused by the Department of Veterans Affairs. This was followed by a series of contracts todevelop TCMS components which were marked by cost overruns and poor performance. Today,Arlington National Cemetery still does not have a system that can accurately track graves andmanage burial operations.
A.Decision To Create a New System
From 1999 to 2003, Arlington National Cemetery used a modified version of the BurialOperations Support System (BOSS), the automated burial operations management tooldeveloped and used by the Department of Veterans Affairs, to schedule funerals, manage burialsand inurnments, and order headstones.
BOSS was developed in the mid-1990s by governmentemployees at the Department of Veterans Affairs. It cost $1.2 million and took approximately 2
Pub. L. 93-43, “National Cemeteries Act”(June 18, 1973); U.S. Department of theArmy,
 Report of Investigative Findings and Recommendations Pursuant to Army Regulation 15-6, Arlington National Cemetery Gravesite Accountability
(Oct. 8, 2009).2
years to implement. By 2004, the Department of Veterans Affairs had completed an additional$1.2 million effort to automate burial records for the approximately 2.2 million individuals inVeterans Affairs cemeteries.
In 2003, Cemetery and Army officials moved forward with a plan to develop their ownautomated burial management system. The proposed system, which later became known as theTotal Cemetery Management System (TCMS), would include a records database, gravesiteinventory, infrastructure upgrades, a project management system, and a Geographic InformationSystem (GIS). In 2004, the Cemetery submitted a report to the Office of Management andBudget (OMB) regarding its decision to develop a unique system.
In the Cemetery’s report,known as a “Section 300”, the Cemetery explained:ANC studied BOSS in detail and has actually implemented and used the systemon-site since April 1999. Due to the specific requirements of ANC in thefulfillment of its mission operations (e.g. honors associated with buriedindividuals), and the fact that the VA cannot tailor its system (which is deployedin numerous cemeteries nationwide and which uses a shared database) for thespecific unique requirements of ANC, it was determined that a new system wasrequired to satisfy the Cemetery’s performance gaps and requirements.
At a hearing in 2005, the Assistant Secretary of the Army for Civil Works and Cemeteryofficials told Congress that they had jointly determined that BOSS could not accommodate theunique needs of Arlington National Cemetery.
 However, the Cemetery failed to report to OMB a study conducted by the U.S. Air Forcewhich recommended that the Cemetery modify BOSS to better address its needs instead of creating a new system. The Air Force stated that the Cemetery’s current challenges with theBOSS system were caused by the Cemetery’s processes, not the software design, and thus couldlikely be resolved through negotiation with Veterans Affairs. The Air Force also found that theCemetery’s requirements for their proposed system were not adequately defined and that no oneat the Cemetery fully understood the capabilities of BOSS.
OMB Exhibit 300 Report Submitted by Arlington National Cemetery (ANC) for TotalCemetery Management Report (Sept. 13, 2004); U.S. Department of Veterans Affairs,
 Briefing  for Subcommittee and Senate Committee on Veterans Affairs Staff 
(July 21, 2010).
Department of Veterans Affairs,
 Briefing for Subcommittee Staff 
(July 21, 2010).
OMB Exhibit 300 Report Submitted by Arlington National Cemetery (ANC) for TotalCemetery Management Report (Sept. 13, 2004).
House Committee on Appropriations, Subcommittee on Military Quality of Life andVeterans Affairs and Related Agencies,
 Hearing on Cemeterial Expenses Budget Fiscal Year 2006 
(April 6, 2005) (Response to questions for record).
U.S. Department of the Army Office of Inspector General,
 Report of Investigation
(June9, 2010) (Case 10-04) (Exhibit A-19).3

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