Department of Defense

Report to Congress

on

Military Funeral Honors for Veterans

As Required by

Section 567 of the Strom Thurmond

National Defense Authorization Act for

Fiscal Year 1999
MILITARY FUNERAL HONORS FOR VETERANS

EXECUTIVE SUMMARY

It is our national obligation to demonstrate the country’s gratitude to those who, in times

of war and peace, have faithfully defended our country. In that vein, Section 567 of the Strom

Thurmond National Defense Authorization Act for Fiscal Year 1999 (Public Law 105-261)

directs the Secretary of Defense to submit a report on a number of issues associated with the

provision of military funeral honors for veterans. The following is a summary of the Department

of Defense report.

Background

Section 567 of the Strom Thurmond National Defense Authorization Act for Fiscal Year

1999 (Act) directs specific actions to address the growing national concern about the availability

of military funeral honors for America's veterans. These actions include a requirement for a

conference, convened by the Secretary of Defense and the Secretary of Veterans Affairs with

participation from Veterans Service Organizations, to determine means of improving and

increasing the availability of military funeral honors for veterans. For the purposes of this report,

the Congressionally-directed conference will be referred to as the Roundtable. The Act also

includes a requirement for the Department of Defense to provide an honor guard detail of not

less than three persons and have the capability to play a recorded or live version of Taps for the

funeral of any veteran that occurs after December 31, 1999. The Act does not require that these

three individuals be uniformed military personnel. (The complete text of section 567 of the Act

is found at Appendix 1 to this report.)

The Conference Report accompanying the Act (Appendix 2) indicated that the

intent of the conferees was that the requirement to provide a three-person

funeral honor detail, upon request, would be effective only if the Secretaries of

Defense and Veterans Affairs did not recommend an acceptable alternative.

The Executive Roundtable

The Roundtable process began with extensive conversations with Veterans and Military

Service Organizations and with DoD participation in several of their annual conventions. Focus

groups were also held with their memberships to discuss their concerns. Additionally, the

Department began gathering data on actual requests for funeral honors and the support provided.

As required, the Departments of Defense and Veterans Affairs held a

conference, subsequently entitled the Military Funeral Honors Executive

Roundtable, on November 17, 1998. It was attended by over 100 representatives,

which included senior officials from the Departments of Defense and Veterans

Affairs, Veterans and Military Service organizations, the leadership of two major

funeral directors associations, and congressional staff. The Roundtable

participants reviewed: current policies and practices; trends in veteran deaths
and in military force structure; potential demand for funeral honors; alternative

methods for providing funeral honors; costs associated with various approaches;

and communication concerns. Discussion focused on the following:

• The importance of this mission.

• The need to communicate the military funeral honors benefit more clearly.

• The need to ensure quality control and establish standards for the delivery

of funeral honors.

• The need to consider a joint and combined approach to meet increasing

demands.

• And the need to balance this mission with readiness.

Review of Current Policies and Practices

Department of Defense. Currently, DoD Directive 1300.15, “Military Funeral Support”

of September 30, 1985, directs the Military Departments to provide “appropriate tribute within

the constraints of available resources.” This Directive specifies different levels of support for 1)

members on active duty and Medal of Honor recipients; 2) retirees; and 3) veterans and National

Guard/Reservists not on active duty. The levels of support indicate minimum requirements, but

are subject to the availability of resources. The Military Departments have developed policies

and operating procedures to implement the Departmental policy.

Department of Veterans Affairs. The National Cemetery Administration (NCA) within

the Department of Veterans Affairs does not provide funeral honors. The Department of

Veterans Affairs provides an American flag to drape the casket of a deceased veteran or eligible

reservist.

Trends in Veterans’ Deaths and Military Force Structure

Recent and projected increases in the deaths of veterans have made it difficult for the

Military Services to meet requests for funeral honors. Deaths of veterans are projected to

increase from 537,000 in 1997 to 620,000 by the year 2008. The difficulty in meeting requests is

compounded by the fact that the active duty strength of the active forces has been reduced by

33% since 1989, and the strength of the Selected Reserve by 25% for the same period.

Deployments, overseas assignments, and training requirements, further limit availability of the

current active force to perform military funeral honors.

Potential Demand for Military Funeral Honors

Based upon several data points, including the number of cemetery headstones provided

by the Department of Veterans Affairs, requests for military funeral honors in national

cemeteries, and an independent survey conducted by the National Funeral Directors' Association,

it is anticipated that about 45% of the families of eligible veterans will request funeral honors

under the policies that we propose in this report.
New Strategies and Alternative Methods for Providing Military Funeral Honors

It has been determined from the extensive data collected from the veterans organizations

and requests for funeral honors made to the Military Services that the most important component

of military funeral honors is the folding and presentation of the flag. The second most important

component is the playing of Taps. Further data gathered indicates that having the deceased’s

parent Service provide funeral honors is preferred, but not essential. Veterans and Military

Service Organizations do, however, express a preference for having a member of the deceased’s

parent Service present the flag. The Veterans Service Organizations (VSOs) also indicate a

strong preference for a uniformed presence. Using the above information as a framework, the

Roundtable participants considered the following as alternative methods and strategies:

Expanded Participation of the Reserve Forces. National Guard and Reserve personnel

currently perform funeral honors as resources and time allow and provide support primarily in a

volunteer status; however, current funding and legislation inhibits increased activity. Funding

and other incentives need to be explored to increase reserve force participation.

Joint and Combined Honor Guards. Veterans and Military Service Organizations

agree with using joint Service honor guard teams and have also expressed interest in combined

honor guard teams using military personnel and VSO members.

ROTC Participation. The Veterans and Military Service Organizations do not object to

the use of the ROTC for veterans' funerals and ROTC units have been used for this purpose.

There are concerns, however, about the use of JROTC because of the ages of the members.

Resources Outside DoD Available for Providing Military Funeral Honors for Veterans

Veterans Service Organizations. Performance of military funeral honors for veterans

by VSO Honors Units is a widespread practice. However, VSO honor details face some of the

same issues as DoD honor details - limitations on manpower, insufficient notification time,

multiple taskings and distances to funerals.

Section 567 of the NDAA for FY99 provided authority to the Department to pay

expenses for individuals who participate in honor guard details, as long as they are not employed

by the federal government. Veterans Service Organizations could train with the military in

delivering honors and reimbursement could be predicated on receiving training. The VSOs also

recommended that DoD pursue some kind of formal recognition for participating members and

provide easier access to military clothing sales stores to obtain proper military uniforms and

insignia.

Analysis of Costs Associated with Providing Military Funeral Honors

The Roundtable participants reviewed the costs associated with various degrees of

support in terms of military man-years and dollar costs. The estimated cost of providing honors

to 45% of the veterans’ funerals expected in 1999 ranged from 1,196 man-years and $74 million

for a single-person (E-7) detail to 3,588 man-years and $192 million for a three-person detail.
The Department of Defense Plan

Subsequent to the Roundtable, senior leaders of the Department of Defense met to review

the issue and develop a proposed DoD solution which would provide appropriate honors for

veterans and be supportable within DoD resources. Consensus within DoD was that even though

the Strom Thurmond National Defense Authorization Act for FY 1999 does not require a

uniformed presence to provide funeral honors or that the deceased veteran’s parent Service be

present, these elements should be a part of a military funeral honors ceremony. After

consultation with representatives of the Veterans and Military Service Organizations, the

Department proposes to institute a military funeral honors policy as follows:

Proposed Departmental Policy on Military Funeral Honors

The following is an outline of proposed DoD policy regarding military funeral honors for

veterans. The policy would not cover honors at Arlington National Cemetery which are

governed by specific legislation.

 Eligible Beneficiaries for Military Funeral Honors. Active duty members, retirees,

veterans (as defined by title 38, United States Code, section 101(2) including 38 Code of Federal

Regulations, section 3.7), and members and former members of the Selected Reserve. Eligibility

of members and former members of the Selected Reserves will be determined using the burial

flag eligibility criteria in section 2301 of title 38, United States Code, as amended by section 517

of the Strom Thurmond National Defense Authorization Act for Fiscal Year 1999.

Definition. The rendering of military funeral honors is the ceremonial paying of respect and

the final demonstration of the country’s gratitude to those who, in times of war and peace, have

faithfully defended our Nation.

Policy.

(1) Upon request of the family of an eligible beneficiary, the Military Services will

render at least the following mandatory minimum military funeral honors.

(2) Mandatory minimum funeral honors for all eligible veterans will consist of the

ceremonial folding and presentation of the American flag and the playing of Taps. This requires

a minimum of two persons who shall be uniformed military personnel or other authorized

providers of funeral honors. At least one uniformed military representative of the deceased’s

parent Service will participate in this ceremony and will present the flag to the appropriate

family member or representative. Other authorized providers may participate in meeting this

minimum requirement. The Services may provide additional elements of honors and other

authorized providers may augment the Service Honors Team for this purpose. In fulfilling this

mission, both active and reserve forces may be used.
Procedure.

(1) Standardization and Quality Control. The Military Services will ensure proper

decorum for funeral honors including: appropriately trained personnel and proper equipment;

standardized honors procedures; and regular quality control of funeral details.

(2) Taps. A bugler is preferred, either military or civilian (contracted or voluntary).

There will be an active search for a bugler; if none are available, a quality recording may be

authorized by the individual in charge of honor guard details. Both buglers and sound systems

should be out of sight of the funeral party.

(3) Other Authorized Providers. The Military Services, at the local level, may

establish on-going liaison and formal agreements with other authorized providers to participate

in the provision of funeral honors. The Military Services will make training available to

authorized providers according to a set of established standards for military funeral honors

protocol. In addition, upon completion of their training, the Military Services may reimburse

these providers for their reasonable expenses, provide honor guard equipment, and provide

access to military clothing sales stores.

(4) Coordination of Requests. The caller/requestor will need to make one call to

request honors. The provider or coordinator who receives the request shall assume the full

responsibility for coordination until the request is honored. The coordinator may partner with

the other Military Services, Reserve Forces and other authorized providers to form the funeral

honor guard.

(5) Information/Communication. The Department of Defense, through the Department

of the Air Force as Executive Agent, shall establish and maintain information systems for access

by funeral directors, veterans, and families for the purpose of assisting them in obtaining funeral

honors and registering those groups authorized to provide honors. This will include a Web Site

as well as an information kit to be distributed to all funeral directors. There shall be national and

local liaison with appropriate groups and organizations to inform and update them on funeral

honors policy and procedures.

(6) Information Requirements. The Military Services will collect standardized data on

all military funeral honors rendered including those provided by authorized providers when the

honors were coordinated through the Military Services. The Military Services will provide an

annual impact report to the Assistant Secretary of Defense (Force Management Policy) to

measure any effect on readiness.

Costs

The costs of a one-person detail (presuming supplement by an authorized provider) and

two-person detail (presuming a military only team), the minimum that would be required under

the DoD proposal, to conduct the military funeral honors ceremony are shown as follows. The

costs are listed with total dollar costs on top and man-year requirements below them. These

costs are based upon providing honors with a request rate estimated at 20% of all deaths in 2000,

with 5% increases per year until 2005 (representing a 45% request rate).
• The costs for a two-person detail (1 0-3 and 1 E-4) for a six-year period are:

2000 2001 2002 2003 2004 2005

$75M $98M $123M $149M $177M $207M

1211 1537 1875 2218 2563 2908

• The costs for one member of the parent Service (1 E-7) for a six-year period are:

2000 2001 2002 2003 2004 2005

$39M $51M $65M $79M $95M $111M

606 769 938 1109 1282 1454

Recommendations for Appropriate Legislative Changes

The Department has considered two legislative initiatives that we believe will more

adequately support the participation of National Guard and Reserve personnel. These initiatives

would provide for: 1) performance of funeral honors and training for the performance of such

honors to be considered drills or training in addition to that otherwise required, for which

Reserve component personnel may receive both pay and retirement points; 2) retirement points

received during such drill or training to be exempt from the 75 point annual cap; and 3) Reserve

component personnel authorized to serve on active duty for more than 180 days during any fiscal

year to provide military funeral honors without counting against the active duty end strength of

their Service.

In addition, the Department believes that legislation is required to provide for workers

compensation and liability insurance for non-DoD authorized providers of military funeral

honors.

Conclusion

Based upon our extensive and collaborative examination of the veterans’ funeral honors

issue, the Department of Defense plan is based upon two key principles. First, the plan would

clarify expectations by defining the military funeral honors benefit, improving information

access and facilitating the coordination of requests. Second, the proposed plan would ensure a

military presence as part of a prescribed and dignified military funeral honors ceremony. The

shared goal of the Department of Defense, the Department of Veterans Affairs and the Veterans

and Military Service Organizations is to appropriately honor veterans for their service to the

Nation. The Department of Defense believes that the plan set out in this report accomplishes that

goal.
TABLE OF CONTENTS

TOPIC PAGE

 Introduction 1

A. Background 2

B. Review of Current Policies and Practices 9

C. Alternative Methods for Providing Military Funeral Honors 14

 For Veterans and New Strategies for Providing Those Honors

D. Resources Outside DoD That Could Be Used To Provide 20

 Military Funeral Honors For Veterans

E. Analysis Of The Costs Associated With Providing Military 24

Funeral Honors

F. Identification Of Means Of Improving Honors 30

G. Proposed Departmental Policy on Military Funeral Honors 31

H. Estimated Costs For Proposed Department Of Defense 35

 Funeral Honors Plan

I. Recommendations For Appropriate Legislative Changes 36

J. Conclusion 37

 APPENDICES

 Appendix I - Section 567 of the Strom Thurmond National Defense

 Authorization Act For Fiscal Year 1999

 Appendix II - Conference Report language pertaining to section 567

 (Page 666)
INTRODUCTION

“There is a dignity that . . . needs to be present for the family of the departed military member

when the honors are rendered.”

Honorable Rudy de Leon

Under Secretary of Defense (Personnel and Readiness)

November 17, 1998

It is our national obligation to demonstrate the country’s gratitude to those who, in times

of war and peace, have faithfully defended our country. The rendering of military funeral honors

for our Nation’s veterans is our final tribute to those who have made personal sacrifices in

defense of our Nation.

This report is a summary of a year-long effort focused on improving and enhancing

military funeral honors for veterans. As directed by section 567 of the Strom Thurmond

National Defense Authorization Act for Fiscal Year 1999 (NDAA for FY 99), this report

summarizes those areas that Congress directed the Department of Defense to examine associated

with the provision of military funeral honors for veterans. For the purposes of this report, the

congressionally-directed conference will be referred to as the Roundtable.

This report is outlined as follows. First, the report provides background that includes the

importance and history of military funeral honors, pertinent legislation, definition of the issues,

and the preparations and execution of the Roundtable. Second, the report addresses those areas

that the NDAA for FY99 specifically directed be considered at the Roundtable as well as

proposed DoD policy changes and recommendations for legislative changes. The report is

organized as follows:

A. Background

B. Review of current policies and practices

C. Consideration of alternative methods for providing military funeral honors

D. Determination of resources outside of the DoD that could be used to provide funeral

honors

E. Analysis of the costs associated with providing honors

F. Identification of means of improving funeral honors

G. Proposed Departmental Policy on military funeral honors

H. Estimated Costs for Proposed Department of Defense Funeral Honors Plan

I. Recommendations for appropriate legislative changes

J. Conclusion
I. A. BACKGROUND

1. Importance of Military Funeral Honors

The provision of funeral honors to veterans is a long-standing tradition within the

Department of Defense and Veterans Service Organizations. Department of Defense Directive

1300.15, Military Funeral Support, provides that "The Department of Defense recognizes the

importance of paying final tribute on behalf of a grateful nation to honor comrades in arms."

Veterans Service Organizations also have a long-standing tradition of rendering honors for fallen

comrades. Public Law authorizing the Department of Defense to supply ceremonial weapons

and ammunition to Veterans Service Organizations for funeral honors dates to 1920.

The sacrifices and contributions of our Nation’s veterans deserve an appropriate level of

recognition. For many veterans and their families, military honors at a veteran’s funeral are a

very important final tribute for those who have served the Nation. The presentation of the flag

often provides an important sense of closure to the surviving family members. Over the past

decades, the Department of Defense (DoD) and Veterans and Military Service Organizations

have provided these traditional honors. The provision of funeral honors will continue to be very

important to many veterans and their families. Due to the decreasing size of the military and the

increase in veteran deaths as well as the accelerated tempo of military operations, the continued

ability to perform these honors is a challenge facing both DoD and Veterans Service

Organizations.

2. History

The American tradition of rendering military funeral honors has evolved over time by

incorporating historical elements. According to historians at Arlington National Cemetery,

Military District of Washington, the funeral honors protocol of today can trace its roots to

ancient foreign militaries and historical American military experiences. Formal burial of the

military dead goes back to the ancient Greeks. The Greek warriors who fell at Marathon in 490

BC were buried on the battlefield. The funeral oration given by Pericles at this funeral was the

model that President Lincoln used for his Gettysburg Address.

Today’s customary firing of three volleys over a grave of a fallen warrior originated as

far back as the Roman Empire. The Roman funeral rites of casting dirt three times on the coffin

constituted the “burial.” It was customary among the Romans to call the dead three times by

name, which ended the funeral ceremony, after which the friends and relatives of the deceased

pronounced the “vale” (farewell) three times as they departed from the tomb. In more recent

history, three musket volleys were fired to announce that the burying of the dead was completed

and the burial party was again ready for battle.

In the early days of our own Country, Army commanders buried their dead, when

possible, in cemetery plots within the confines of the post. In some instances, this meant

transferring them from temporary burials on the battlefield to the post cemetery some time later.

In 1861, Army General Order #75 ordered the Quartermaster General to provide a registered

headboard to be secured at the head of each soldier’s grave. In 1862, President Lincoln signed
the Omnibus Act that established national cemeteries for soldiers who die in the service of the

country.

The music we now use for Taps dates back to General Daniel Butterfield of the Army of

the Potomac who did not like the traditional French “lights out.” He, together with the brigade

bugler, composed the music we now know as Taps. Taps was first used in connection with

military funerals during the Civil War. During the Peninsular Campaign in 1862, the A Battery

of the Third Artillery was in an advanced position when it had to bury one of its soldiers. Due to

the proximity of the enemy it was unsafe to fire the customary three volleys over the grave. The

captain of the battery decided that the sounding of Taps would be an appropriate substitute. This

custom was adopted throughout the Army of the Potomac and became integral to the military

funeral ritual. In 1918, the U.S. Army began the practice of placing a flag over the coffin and,

following the funeral service, presenting the flag to the next of kin.

3. Legislation

a. Public Law Prior to the Strom Thurmond National Defense Authorization Act

for Fiscal Year 1999 (NDAA for FY 99) - Public Law prior to the FY99 NDAA contains the

authority to provide certain components of military funeral honors. Section 1482 of title 10

authorizes the Secretaries of the Military Services to "pay for the necessary expenses of. . .

Presentation of a flag of the United States to the person designated to direct disposition of

remains. . .” of active duty members and eligible reservists.

Section 2301 of title 38 requires that "The Secretary [of Veteran Affairs] shall furnish a

flag to drape the casket of each deceased veteran. . . " (includes retirees). "After the burial. . . the

flag. . . shall be given to the veteran's next of kin . . The Secretary shall furnish a flag to the next

of kin (of those who were on active duty) after May 27, 1941."

Section 114 of title 32 provides that "Performance of honor guard functions by the

members of the National Guard at funerals for veterans. . . may be treated. . . as a Federal

function for which appropriated funds may be used. . . May not be considered to be a period of

drill or training otherwise required. . . Any expense. . . shall be paid from appropriations

otherwise available for the National Guard."

Prior to the NDAA for FY 99, the Federal statutes authorized the furnishing and

presentation of a flag to families of deceased members and former members. Congress

recognized the contribution of the National Guard in providing funeral honors support by the

enactment of section 114 of title 32, United States Code, which authorized members of the

National Guard to perform funeral honors as a Federal function. However, that legislation did

not appropriate funds for this mission. Prior to the passage of the NDAA for FY 99, the law did

not contain a requirement that military funeral honors be rendered.

b. Strom Thurmond National Defense Authorization Act for Fiscal Year 1999 -

Section 567 of the NDAA for FY 99 directed the Departments of Defense and Veterans Affairs

to perform specific actions related to military funeral honors. Key provisions of section 567 are

as follows:
- By December 31, 1998, the Secretaries of Defense and Veterans Affairs shall hold a

conference to determine means of improving and increasing availability of military

funeral honors for veterans. Veterans Service Organizations will participate.

- The conference shall: review current policies and practices; consider alternative

methods of providing military funeral honors; determine what resources that may be

available outside of DoD for this function; analyze costs for personnel and other resource

requirements associated with providing military funeral honors for veterans; assess trends

in the rate of death of veterans; and propose, consider and determine means of improving

and increasing the availability of military funeral honors for veterans.

- The Secretary of Defense shall provide a report on the conference to Congress not later

than March 31, 1999. The report shall set forth any modifications to DoD policy adopted

as a result of the conference and shall include recommended changes in legislation.

- DoD shall, upon request, provide an honor guard detail for the funeral of any veteran

that occurs after December 31, 1999. The detail shall consist of not less than three

persons and, if a bugler is not one of the three in the detail, include the capability to play

a recorded version of Taps. The composition of the detail does not have to be military

personnel. The detail may consist of members of Veterans Service Organizations or

other organizations approved by the Secretary of Defense. Authority is granted to

provide certain support for those non-DoD personnel who provide military funeral

honors. DoD shall provide annual reports to Congress from 2001 to 2005 on the

experience of the Department with regard to this legislation, to include specific

information about resources and costs.

- DoD shall develop policy regarding selection of units to provide military funeral

honors. The Service in which a veteran served shall not be a factor when selecting the

unit or organization.

- The performance of military funeral honors by Reservists may not be counted as a

period of drill or training otherwise required.

- Restrictions on use of appropriations for the National Guard to perform honor guard

functions are removed.

Language at page 666 of the Conference Report accompanying H. R. 3616 (the Strom

Thurmond National Defense Authorization Act for Fiscal Year 1999) provides that the intent of

the legislation is to require a three-person detail, upon request, for funerals occurring after

December 31, 1999, only if the Secretaries of Defense and Veterans Affairs do not recommend

an acceptable alternative proposal.
Projected Veteran Deaths

456

490

537

572

614 620 615

578

300

400

500

600

700

89 93 97 0 5 8 10 15

Thousands

Source: Department of Veterans Affairs

*

4. Defining the Issue

Those who have faithfully defended the Nation deserve appropriate recognition.

Historically, the tradition of rendering military funeral honors at a veteran’s burial has been the

principal way to demonstrate to the veterans’ families the appreciation of a grateful Nation.

The annual number of veterans’ deaths is increasing and will continue to increase until

2008. Many of the millions of veterans who served during World War II and the Korean War

are in their final years. On average, approximately 1500 veterans die each day. This is expected

to reach 1700 in 2008 when the veteran death rate is projected to peak. At the same time, over

the last ten years, the Department of Defense has made significant reductions in its military

personnel end-strength. The inverse convergence of the increase in veterans’ deaths and the

downsizing of the force, combined with higher operational tempo (OPTEMPO), have made it

difficult for DoD to respond to the demand for military funeral honors.

Departmental policy issued in 1985 directs the Military Services to provide military

funeral honors “if resources are available.” In many instances, the resources were not available

to accommodate all requests. Many veterans’ families and Veterans Service Organizations had

come to expect this tradition at the time of a veteran’s death. A growing perception that the

demand for funeral honors is not being met under current Departmental policy prompted the

Department to comprehensively examine the issue and search for alternatives to expand the

availability of military funeral honors for veterans. The Military Funeral Honors Executive

Roundtable was an important milestone in this policy examination.

5. Trends in the Death of Veterans

The annual number of deaths of veterans is increasing. According to the Department of

Veterans Affairs, in 1989 there were approximately 456,000 veteran deaths. By 1997, the

number rose to 537,000, an 18% increase.

The veteran population is aging.

One quarter of the total veteran population

of almost 26 million is over 65 years of

age. The annual number of deaths is

expected to continue to rise through 2008

when the number is projected to be

620,000. This will be a 36% increase from

1989 to 2008, or 164,000 more deaths per

year. The graph to the right illustrates

projected deaths through the year 2015.

Providing military funeral honors

for veterans poses challenges since the

military has downsized its force over the

last decade. Since 1989, the active duty military force has decreased 33% from 2.1 million to 1.4

million. In addition, during this same time frame, the Reserve forces have decreased 25% from
Convergence of Events

Active Duty and Selected Reserve End-Strength Compared to Veterans 

Deaths (1989-2009)

500000

700000

900000

1100000

1300000

1500000

1700000

1900000

2100000

2300000

400000

450000

500000

550000

600000

650000

Active Duty

Selected Reserve

Veteran Deaths

1.2 million to 900,000. The graph below illustrates Active Duty and Selected Reserve endstrength compared to Veteran and Retiree Deaths.

Of the 1.4 million active duty

personnel:

• More than 300,000 are stationed or

deployed outside the United States at

any given time.

• Over 200,000 are not available for

regular duty due to such

circumstances as participation in

formal training, travel to new duty

locations, and hospitalization.

This means that over 500,000

active duty members are not available

to be called upon for military funeral

honors support.

6. Military Funeral Honors Executive Roundtable

a. Pre-Roundtable Preparations

The Department of Defense (DoD), in collaboration with the Department of Veterans

Affairs (VA), and Veteran and Military Service Organizations launched an intensive process,

which entailed working groups, meetings with stakeholders, cross-country travel to Veterans

Service Organization (VSO) conventions, polling of VSO membership and internal DoD funeral

honor data collection. The National Funeral Directors Association (NFDA) assisted in the effort

to identify actual and proposed demand of those veterans and families who would desire funeral

honors. This data point was critical for DoD to develop a logical and fiscally sound plan to

address the increasing demand for military funeral honors.

(1) Joint DoD/VA Working Group - DoD formed a joint Military Service and VA

funeral honors working group in 1997. This group was tasked with evaluating the military

funeral honors situation. DoD initiated an effort in 1998 to collect pertinent information from

the Military Services. Until this time, the Military Services did not have a standard or uniform

data collection process to capture the number of funeral honors provided or any other funeral

honors-related information.

(2) DoD/VA/VSO Meetings - On May 18, 1998, the VA, in conjunction with DoD,

hosted a briefing with officials from nineteen Veterans and Military Services Organizations to
discuss this issue. At the meeting, a common commitment emerged to the development of the

information required to effect sound solutions to the problem. A day-long working session was

held on September 18, 1998, with the organizations to discuss a wide range of funeral honors

issues. The participants were invited to submit information and issue papers for inclusion into

the Executive Roundtable issue books.

Information generated from the September 18, 1998 working session was summarized

and incorporated into the issue papers and points of discussion for the November 17, 1998

Executive Roundtable. A final pre-Roundtable meeting was held on October 29, 1998, with the

Veterans and Military Service Organizations in order to review the issues, clarify any

outstanding issues, and provide an opportunity for any further veteran input prior to the

Roundtable.

(3) Veterans Service Organizations Conventions - During the summer and fall of 1998,

DoD and VA representatives visited five VSO conventions at their request to discuss funeral

honors support and receive feedback from their members and leadership. These organizations

were: 1. The American Legion, 2. Veterans of Foreign Wars (VFW), 3. American Veterans of

WWII, Korea, and Vietnam (AMVETS), 4. The American Ex-POW Association, and 5. the

National Order of Battlefield Commissions. DoD representatives also visited the State VA

Directors convention and the Air Force Retiree Council to discuss this issue and gain feedback.

At these meetings, DoD and the VA representatives briefed the VSO members, held focus

groups, and gathered information on the preferences of the veterans.

(4) Veterans Service Organizations Membership Polling – Concomitant with the visits

to the conventions, DoD provided the organizations a list of suggested questions for membership

feedback on the issue. The purpose of this was to identify the views of veterans from around the

country. Six organizations provided feedback via this mechanism. The results of this input were

incorporated into the issue papers and discussion at the November 17th Roundtable.

(5) DoD Data Collection - DoD initiated extensive data collection from the Military

Services on June 1, 1998. This data gathering consisted of a questionnaire about specific details

of every funeral request and responsive actions taken. Information from over 9800 funerals was

collected.

b. Military Funeral Honors Executive Roundtable

The Executive Roundtable was held on November 17, 1998, at the National Guard

Association Building on Massachusetts Avenue in Washington, DC from 8:00 a.m. until noon.

There were over 100 attendees at the Roundtable including senior officials from the Departments

of Defense and Veterans Affairs, eighteen senior officials from Veterans and Military Service

Organizations and the leadership of two national funeral directors associations. The following is

a list of the veterans, military and funeral directors associations which participated in the

Roundtable:

• American Ex-Prisoners of War

• American Legion
• American Veterans (AMVETS)

• Blinded Veterans Association

• Fleet Reserve Association

• Gold Star Wives

• Korean War Veterans

• National Funeral Directors Association

• National Funeral Directors and Morticians Association

• Marine Corps League

• Military Chaplains Association

• National Order of Battlefield Commissions

• Non Commissioned Officers Association

• Paralyzed Veterans of American

• U.S. Army Warrant Officers Association

• Veterans of Foreign Wars

• The Retired Enlisted Association

• The Retired Officers Association

Also in attendance were congressional staff, media and staff of the principal Roundtable

participants.
B. REVIEW OF CURRENT POLICIES AND PRACTICES

The following is a summary of DoD and Military Service funeral honor policies.

1. Current DoD Policy

Current DoD policy (set forth in DoD Directive 1300.15) was established in 1985. DoD

Directive 1300.15 recognizes the importance of paying final tribute on behalf of a grateful

Nation. It directs the Military Departments to provide appropriate tribute within constraints of

available resources. If resources are available, funeral honors, at a minimum, will consist of the

following:

- Active duty, member of Reserve component on active duty, Medal of Honor recipient

- traditional honors, consisting of pall bearers, firing party, bugler and chaplain;

- Retirees - traditional honors or a single military representative to attend the funeral

and present the U.S. Flag;

- Veterans and National Guard/Reservists not on Active Duty - a single military

representative to attend the funeral and present the U.S. Flag.

Commanders often exceed the minimum requirement for funeral honors. In other

instances, commanders may be unable to provide honors because of the lack of available

resources.

NOTE: Arlington National Cemetery is the Nation’s principal memorial honoring men

and women who have served in the military. Because of its unique position as the nation’s

memorial and strict eligibility requirements, honors are provided for all those who are eligible

for honors when interred in Arlington. Honors provided at Arlington National Cemetery should

not be considered to be the norm for funeral honors across the country.
CONUS Casualty Area

Commands

Ft. Lewis

Ft. Carson

Ft.

Huachuca

Ft.

Bliss Ft. Hood

Ft. Sam

Houston

Ft. Sill

Ft. Riley

Ft.

Leavenworth

Ft.

Leonardwood

Ft.

Polk

Ft.

Rucker

Ft. McClellan

Ft. Campbell

Ft.

Knox

Ft. Drum

Ft. Meade

Ft. Dix

Ft. Lee

Ft. Eustis

Ft. Bragg Ft. Gordon

Ft. Jackson

Ft. Benning

Ft. Belvoir

Ft. Myer

(MDW)

Ft. McPherson

Ft. Stewart

2. Army

Prior to the 1998 decision by the

Acting Secretary of the Army to

standardize honors details by function as

opposed to numbers, the Army had three

types of honors details: full and partial

honors, and a Service Representative. As

a result, there was confusion regarding the

composition and function of the honors

team. The Army has now standardized the

composition of a burial honors team by

function instead of numbers in order to

increase the availability of honors as

resources permit. Full military honors

now consist of casket bearers (six), firing

party (casket bearers also provide the volley salute), officer or non-commissioned officer in

charge, chaplain and bugler, if available. The definition of a Service Representative has changed

from one soldier to present the interment flag to the designated recipient, to a two-soldier detail.

The detail will conduct a modified flag folding ceremony and make the flag presentation. All

mileage limitations within an Army Casualty Area Command have been eliminated. Individual

Commanders are to evaluate their capability to provide honors on a case-by-case basis rather

than according to arbitrary distances.

Since the new Army policy was implemented in 1998, it does not appear that the

provision of military funeral honors by function rather than the composition of the honors team

has had an adverse impact on the dignity of the interment service. The removal of geographic

limitations on casualty area commands has provided more equitable service to the families of

deceased veterans.

3. Navy

Navy funeral honors are coordinated regionally through Casualty Assistance

Calls/Funeral Honors Support (CAC/FHS) Program Coordinators. The Program Coordinators

receive the requests and task the nearest Navy unit to provide military funeral honors, contingent

upon resources available.

The Navy has seven regional Casualty Assistance Calls/Funeral Honors Support

(CAC/FHS) Program Coordinators. Funeral directors and/or family members are directed to

these regional coordinators when requesting military funeral honors. Regional coordination by

CAC/FHS Program Coordinators provides an efficient way of tasking units in their area of

responsibility, tracking calls and requests, and maintaining data concerning the request.

Sometimes funeral directors and/or family members contact the nearest military facility

instead of the CAC/FHS Program Coordinator to request military funeral honors. If the nearest
military facility is not a Navy facility and is not aware of the existence of CAC/FHS

Coordinators and cannot accommodate the request, it may send only one representative. The

CAC/FHS Program Coordinator may have tasked a larger unit and been able to provide a greater

level of honors support.

While regional coordination works for the Navy, the Navy is severely limited in its

ability to provide traditional honors in rural areas where resources are limited. Many of the

Naval Reserve Centers have only a few (five or six) active duty members.

4. Air Force

Honor guard duty is viewed as a highly visible unit. Commanders providing honor guard

members have historically accepted the man-hour loss to their work centers (currently no fulltime manpower authorizations for funeral honor details). Fewer installations and force

reductions have enlarged honor guard responsibilities and areas. This has resulted in an

increased requirement for honor guard support.

- Example: Edwards AFB, CA area of responsibility has grown from approximately tenthousand square miles, prior to the closure of George, Norton, and March AFB, to over eightythousand square miles. Edwards AFB funeral details now average three funerals per day.

- Unit Commanders have expressed concern over mission degradation resulting from the

loss of man-hours due to increased requirements for honor guard members coupled with a

shrinking force structure.

The Air Force policy is to provide, as resources permit, the following funeral honors:

- Active duty members and Medal of Honor recipients will have a party of 19 -

(6 pallbearers, 7 firing party, 1 bugler, 4 color guard, 1 OIC/NCOIC).

- Retired members will have a party of 9 - (7 pallbearers / firing party [dual function],

 1 bugler, 1 OIC/NCOIC).

- Veterans: 1 Air Force member to attend funeral and present the flag if requested by

the next-of-kin.
5. Marine Corps

Marine Corps policy is to provide full military honors support upon request to all Active,

Reserve, Retired and former Marines, contingent upon availability of personnel and assets.

Honors are provided by field

commands with or without

coordination with Headquarters

Marine Corps. Primary funeral

support taskings come from the

Commanding Officers of the six

Marine Corps Districts to the

closest Marine Corps unit within

their District boundaries. Funeral

support is provided on weekends

and holidays. Additionally, the

Marine Corps supports funeral

requests for members of other

Services.

- There are no Marines assigned to funeral support duties full time.

- Some installations have specified units that are responsible for funeral honors

support.

- All Marines are eligible to perform this function as an additional duty in conjunction

with their primary occupational specialty.

- There is no primary occupational specialty for funeral honors support personnel.

- Training on funeral honors is conducted by local commanders based on the specific

guidance contained in MCO P3040.4D.

- Numbers of personnel assigned to support a funeral request are determined by two

specific factors; type of honors or elements of funeral honors requested by the family,

and the availability of personnel and assets.

- Additional personnel support is sometimes requested from the other Services.

- Bugler support is sometimes requested from local VSOs, ROTC units, etc. or even

from high school bands. Otherwise, recorded music is played.

- The optimum number of personnel to support a funeral is 17: 8 firing detail, 6

pallbearers, 1 OIC/SNCOIC, 1 bugler and a chaplain. Funeral honors can be

MARINE CORPS PROCEDURES FOR

IMPLEMENTATION

TOTAL FORCE EFFORT

Marine Corps Districts - 6

Inspector Instructor Staffs - 191

CONUS Bases and Stations - 16

Recruiting Stations - 48

9th MCD

Kansas City, MO

8th MCD

New Orleans, LA

6th MCD

Parris Island, SC

HQMC, Casualty Branch

Quantico, VA

4th MCD

Cumberland, PA

1st MCD

Garden City, NY

12th MCD

San Diego, CA
conducted by fewer personnel when assigned personnel perform more than one

function, e.g., pall bearers also perform the rifle detail.

The Marine Corps states that it will continue to try to satisfy all family member requests. No

request will be turned down. If a unit cannot provide personnel, it will find another unit that can.

6. Department of Veterans Affairs

The Department of Veterans Affairs (VA) and the National Cemetery Administration do

not provide military funeral honors. The honors are provided by local military personnel,

Veterans Service Organizations or private groups who provide military honors upon request. If

military funeral honors are desired at national cemeteries, the family or its funeral director

arranges for them, prior to the committal service, by calling the closest military installation or

service organization to determine if military honors can be provided. The national cemetery

director can provide telephone numbers and locations of organizations that may be able to

provide military funeral honors. If a bugler is not available, the cemetery staff may be able to

play a recorded version of Taps, if desired by the family. At cemeteries where no military or

VSO honor guards are available, an employee of the national cemetery or the funeral home

representative will present the folded flag.

Some national cemeteries, in coordination with Veterans Service Organizations and

military units, provide monthly honors. These are services in memory of all veterans interred at

the cemetery during the previous month. This is a formal service that may include elements of

traditional honors such as playing of Taps and a rifle volley. Other elements may include special

readings or musical selections. Families of the veterans honored are invited and the names of the

veterans are read as a roll at all national cemeteries. Flags are flown at half-staff during the

interment services to honor the burial and to ensure dignity.

In fiscal year 1997, there were 51,000 veteran burials in national cemeteries. Honors

were provided at 43 percent of these interments. Of these 22,000 funeral services, military

personnel supported 52 percent, with the remaining 48 percent supported by Veterans Service

Organizations. The Veterans Service Organization honor squads that provide honors at the

national cemeteries usually consist of seven or eight members. They serve as an honor guard for

the casket and as the rifle squad. A member of the squad will present the flag and occasionally a

bugler is available. These units are available upon request by the family or the funeral home.

The Department of Veterans Affairs also provides an American flag to drape the casket

of a veteran and of reservists entitled to retired military pay. The flag may be presented to the

next of kin or a close associate. The VA will also provide a flag on behalf of a servicemember

who is missing in action and presumed dead.
C. ALTERNATIVE METHODS FOR PROVIDING MILITARY FUNERAL HONORS

FOR VETERANS AND NEW STRATEGIES FOR PROVIDING THOSE HONORS

1. Alternative Methods/Strategies - Components of Veterans Funeral Details

As a framework for a full discussion of alternative methods in the provision of military

funeral honors, it is important to examine data and feedback on what veterans and their families

desire relative to funeral honors. Their views on the most important components of funeral

honors and the role of the parent Service are essential in exploring alternative methods.

 a. Most Important Components of Traditional Funeral Honors

 DoD collected data from June 1 to September 30, 1998, to determine which components

of a military funeral honors detail families requested and what was provided. Data was also

obtained through the September 18, 1998 working meeting with the Veterans Service

Organizations (VSO), six visits to VSO conventions and one visit to the National Association of

State Directors of Veterans Affairs Convention during the summer and fall of 1998.

Components of a funeral honors detail addressed in DoD policy include: the folding and

presentation of the US flag; a firing party to present a gun salute; a bugler or other method of

playing Taps; pall bearers; and a chaplain.

DoD data included information from 9,819 funerals where families requested military

funeral honors. The most requested components were the following:

Folding and presentation of the flag 93.6%

Firing party 63.6%

Bugler/Taps 55.0%

Pall bearers 44.9%

Chaplain 7.8%

Information received from the VSOs largely supports the DoD data. The data developed

at the VSO conventions, the September 18, 1998 working session, and written comments from

VSO membership shows the following components were ranked as follows (most to least

requested):

Folding and presenting the flag

Bugler/Taps

Firing party

Pall bearers

Chaplain

From this data, it is apparent that the most important funeral honors component is the

folding and presenting of the flag. The second most important, based on VSO feedback, was the

playing of Taps. (While the playing of Taps came in third in the DoD data, the VSO feedback

was quite compelling in terms of Taps being the second most important.) The two least

requested components are pall bearers and a chaplain.
b. Role of the Veteran’s Parent Service

Historically, the parent Service of the deceased provides funeral honors. Occasionally,

another Service will provide honors. DoD has collected data on every funeral honors request

from June 1, 1998 through September 30, 1998. In 89.6% of the cases the parent Service

provided the requested honors.

Veterans and Military Service Organizations generally indicate that having the parent

service provide funeral honors is preferable, but not essential. Specific data generated from VSO

surveys reveal that 70% of a small sample indicated that having the parent Service provide

funeral honors was not important. However, Veterans and Military Service Organizations

expressed a preference for having the parent Service present the flag. The VSOs also indicate a

strong preference for a uniformed presence. The Marine Corps League stated that it is “critical”

that all funeral detail members be from the parent Service (Marine Corps). DoD data indicate

that the Services perform the vast majority of funeral honors for veterans of their own branch.

2. Alternative Methods/Strategies – Expanded Participation of the Reserve Forces

a. Current Situation

The Reserve Force provides a pool of manpower, which may assist in the Total Force

mission of providing military funeral honors. National Guard and Reserve units are located

throughout the U.S. The units are geographically dispersed in areas where there is sometimes

limited or no Active duty representation.

National Guard and Reserve personnel currently perform funeral honors as resources and

time allow. The National Guard Bureau reported that the National Guard supported over 6500

funeral honors in 1998. Reserve Force funeral support is provided primarily in a volunteer

status. In the National Guard, funeral detail duty may be performed in a state Active duty status.

State statutes vary with regard to compensation for such duty. Under title 32, U.S. Code current

law, such duty cannot constitute a required period of drill or annual training and there are no

funds specifically appropriated to pay members when they perform this function. Both National

Guard and Reserve members may receive retirement points when they perform this duty.

National Guard members may receive retirement points if this duty is performed in federal duty

status, as opposed to state active duty.

Increased demand for the Reserve forces to support operational missions has resulted in

increased difficulty in recruiting volunteers for funeral honors support missions. This increased

operational tempo requirement has far exceeded the traditional one-drill weekend-per-month and

2-weeks of annual training.

b. Expanded Participation of the Reserve Component

The Reserve Force supports the need for military funeral honors. Geographic dispersion

of reserve component units could complement the more limited geographic coverage of active

duty units. Current funding and legislation prevent a more robust capability. Support for
numerous operational missions has added extra work requirements for these units, which in turn

limits the ability to increase the number of volunteers available for funeral honors duty

National Guard and Reserve forces are available to support the Total Force effort to

provide military funeral honors. Funding and other incentives must be made available to permit

Reserve forces to provide greater support than is currently provided, primarily through volunteer

efforts.

3. Alternative Methods/Strategies – Joint and Combined Honor Guards

a. Current Situation

As stated above, each Service generally provides funeral honors for deceased members of

its own Service. Geography and personnel availability sometimes limit the ability of an

installation to provide honors on this basis. Combining the abilities and resources of all of the

Military Services (i.e., a joint honor guard team) and other organizations such as the VSOs (i.e.,

combined honors team) in the local area increases the ability to provide honors. The next four

maps illustrate the geographic coverage affected if each of the Military Services acts

independently within the Continental United States.

Concentration of Veterans Within

 100 Miles Radius of Army Installations

Concentration of Veterans Within

 100 Miles Radius of Navy Installations
DoD collected data from June 1, 1998 through September 30, 1998 to capture the status

of military funeral honors throughout the Department of Defense. The DoD data indicate that in

cases where the active duty component of the Service received a request for funeral honors and

was unable to provide all requested components, the following organizations assisted in

providing funeral honors:

Unknown 61%

Other Military Service 25%

Reserve 5%

Veterans Service Organization 5%

National Guard 2%

Other 1%

Service Organization 1%

b. Joint and Combined Honor Guards

A joint honors team,

comprised of military

members from other

Services is acceptable to the

Veterans and Military

Service Organizations. Such

an arrangement is

compelling in areas of the

Continental United States

where there are few, if any,

members of the parent

Service of the deceased

veteran. The map at the

right illustrates the

geographic coverage

affected if the Military

Services combine their

resources.

Concentration of Veterans Within

 100 Miles Radius of Air Force Installations

Concentration of Veterans Within

 100 Miles Radius of Marine Installations

Concentration of Veterans Within

 100 Miles Radius of All Installations
Veterans organizations did indicate concern about using combined honor guard teams

comprised of military personnel and VSO members. Their concerns were largely related to

training and the feasibility of combined funeral honor details. In addition, the VSOs that provide

honor guard details have developed their own protocol for the rendering of honors. Combined

honor guards would require uniform protocol standards for all combined details. This would

require periodic training to ensure professional decorum and synchronization of movement.

4. Alternative Methods/Strategies – ROTC Participation

a. Current Situation

Less than half of the ROTC cadets/midshipmen are under contract with the military;

those under contract are members of the Reserves. The remaining students are participating in

ROTC classes as they would any other college course, but have no formal military affiliation or

status. Both groups of students -- contracted or not -- undertake external activities (e.g.,

community service) on a voluntary basis. However, even as DoD might "encourage" voluntary

support for military funeral honors, educators or parents might be concerned about time routinely

taken away from academic pursuits and the perception of assigning military funeral honor duties

to college students. Owing to such considerations, discussions with ROTC representatives

suggest that a moderate-sized ROTC unit (approximately 80 members) could perhaps support up

to one funeral detail per month during the school year. Since cadets are not allowed to drive

GSA vehicles, a member of the ROTC staff would be required to participate in each funeral

detail as well; this could affect class schedules.

Section 567 of the Strom Thurmond National Defense Authorization Act for FY 99

authorizes the Secretaries of the Military Departments to provide "...transportation. . . and

expenses for a person who participates in an honor guard detail...who is not a member of the

armed forces." However, two problems emerge: (1) nearly half of the ROTC students (those

under contract) are members of the Reserve, potentially disqualifying them for such payments;

and (2) reimbursement simply for costs incurred, as opposed to reimbursement plus a modest

stipend for funeral detail participants, might operate against volunteerism.

In addition, ROTC units are not evenly distributed geographically. Even when students

are available, cadre support occasionally will be inadequate when the ROTC cadre is short on

manning. Finally, not all ROTC units have a government vehicle and most units operate very

close to the funding margin. Additional resourcing of ROTC units for support of military funeral

honors will have to be balanced against the anticipated benefits.
b. Use of ROTC

The Veterans and Military Service Organizations do not object to the use of the ROTC

for veterans’ funerals. In some states, ROTC units are used for this purpose. There were some

concerns expressed on the part of the VSOs about the use of the high school Junior Reserve

Officers Training Corps (JROTC), mainly pertaining to the age of the JROTC members. In

terms of regular use of the ROTC, there are concerns about ROTC participation. Nonetheless,

after recognizing the acute problem DoD faces, ROTC cadets and midshipmen might be able to

participate in funeral detail support on an ad hoc basis. However, for the reasons noted above,

the ROTC program should not be considered a main source of manpower for funeral details.
D. RESOURCES OUTSIDE DoD THAT COULD BE USED TO PROVIDE MILITARY

 FUNERAL HONORS FOR VETERANS

1. Veteran Service Organizations (VSOs)

Historically, the VSOs have voluntarily assisted in providing military funeral honors. Since

1920, there has been statutory authority for the Department of the Army to supply ceremonial

weapons and ammunition specifically for the VSO’s support of military funeral honors.

Three reporting VSOs indicate that they support a combined total of 6,800 military funerals

annually. The American Legion reports that it has 4,000 color guards and 3,500 rifle squads.

Three VSOs (not including the American Legion) reported that they provided approximately

6,600 funeral honor details in 1997.

Performance of military funeral honors for veterans by VSO honors units is currently a

widespread practice. In general, service organization units are coordinated at the local level.

In some areas, several VSOs have formed joint teams to conduct funeral honors. They have

developed a variety of “dress” standards using civilian organizational apparel. With easier

access to military clothing stores, VSOs could equip their funeral details with the proper

military uniforms and accoutrements.

The VSOs provide valuable support in providing military funeral honors for veterans. VSO

honor details face some of the same challenges as do DoD honor details -- limited manpower,

insufficient notification time, multiple requests at the same time, and travel distances to funerals.

The younger members work during the day and are often not available for funerals.

2. VSO Volunteers – Riverside Memorial Honor Detail - an Example

The concept of rendering military funeral honors for veterans by VSOs is typified at the

Riverside National Cemetery in California. Since the opening of this cemetery, the volume of

veteran burials has exceeded the capacity of local details (both military and volunteer) to

provide honors. In response, local veteran and retired military volunteers established the

Memorial Honor Detail. In May 1996, this detail rendered honors for the first time with only

four teams. There are now 18 teams volunteering anywhere from one to twelve days a month.

They provide honors individually for those veterans who are buried the day(s) that each unit is

at the cemetery. Together they provide honors to approximately 100 deceased veterans per

month and average about 1300 man-hours monthly. The combined teams travel

approximately 3,000 miles per month. Counties represented by the veterans organizations and

volunteers include Los Angeles, Orange, San Diego, San Bernardino and Riverside.

Volunteers bear the cost of their uniforms and travel. The Memorial Honor Detail also

accepts donations to defray expenses.
3. Supporting Mechanisms

a. Reimbursement

While the Military Services have the primary responsibility for coordinating and providing

military funeral honors, a number of VSOs also conduct funeral honors. This is particularly true

in areas where there are no nearby military installations and when the deceased veteran is a

member of the VSO. The funeral honor guard volunteers’ expenses are either absorbed

personally or are subsidized by the VSO. VSO focus group feedback has indicated that some

VSO members feel that reimbursement is appropriate, and others have indicated that they would

be offended by being reimbursed for something that they consider to be their duty.

Section 567 of the National Defense Authorization Act for FY 99 provides that the

“Secretary of a military department may provide transportation, or reimbursement for

transportation, and expenses for a person who participates in an honor guard detail under this

section and is not a member of the armed forces or an employee of the United States.” Possible

ways to implement a reimbursement include:

1) a specified stipend for transportation and/or gas for each honor detail or

reimbursement on a mileage basis (at the government rate of 32.5 cents/mile);

2) a one-time uniform allowance and/or stipend to buy and clean uniforms;

3) a regular stipend to VSO posts that perform honor details on a quarterly, bi-annual or

annual basis;

4) the establishment of a per diem program (similar to that for Federal employees).

Below are estimated costs based on a VSO detail providing 3 to 4 funeral honors a week,

traveling an average of 300 miles roundtrip (at 32.5 cents a mile), plus the cost of cleaning the

uniforms at $15 per person per week. Based on these estimates, a weekly cost for a 2, 3, 5 and 9-

person detail follows:

 2-Person Detail 3-Person Detail 5-Person Detail 9-Person Detail

Transportation $97.50 (1 Car) $97.50 (1 Car) $195.00 (2 Cars) $195.00 (2 Cars)

Uniform Cleaning $30.00 $45.00 $ 75.00 $135.00

Total $127.50 $142.50 $270.00 $330.00

Currently, it is unclear how many VSO units would desire reimbursement for funeral

honor expenses. Nonetheless, the Department of Defense now has the authority to reimburse

those VSO units that desire such reimbursement.

b. Training

A number of Veterans and Military Service Organizations provide funeral honors. These

organizations train for this mission using the resources available to them. During the Veterans of

Foreign Wars (VFW) Convention, it was recommended that a training video be produced and be

made available to Veterans and Military Service Organizations for training purposes. The VFW
had obtained a copy of the Army funeral honors training video and sent it to all VFW posts. The

members pointed out that the Army video was for a full honors funeral. Often, the Veterans and

Military Service Organizations do not have a complement of 16 people necessary to render such

honors. The VFW members suggested that a training video of a smaller funeral detail be

produced to effect a more useful training tool for their membership. DoD can produce this video

for distribution to the appropriate organizations.

Veterans Service Organization funeral honor teams may receive training in rendering

funeral honors. Reimbursement could be contingent upon training with the Military Services.

A training video, using either military or VSOs or a combination of both, would have a positive

impact on Veterans and Military Service Organizations units providing honors. The training

video could demonstrate how funeral honors can be conducted using various numbers in the

detail. This would assist those Veterans and Military Service Organizations units who have

either a small or large funeral detail. Additionally, a training video could be used as a method to

ensure professional standardization of minimum requirements for each component of funeral

honors for providers sponsored by DoD.

c. Access to Military Clothing Stores

Veterans Service Organizations provide funeral honors support through the use of

volunteers. Some of VSO funeral honors teams have their own organizational uniforms; others

have uniforms consisting of only black slacks and white shirts. Indications from the VSOs are

that the presence of a military uniform is significant to the families during the rendering of

funeral honors.

Veterans have limited access to the military clothing and sales stores. In the Army, Navy

and Marine Corps exchanges, veterans are allowed patronage for insignia, medals and ribbons,

and Class A service uniforms. They must show their DD 214 for purposes of obtaining medals

and Class A service uniforms. Separated Air Force veterans require permission from the

installation and proof of an honorable discharge to exercise their limited patronage for service

and mess dress uniforms. Other non-Air Force veterans, like the other Military Services, have

limited patronage for insignia, medals and ribbons for display.

Feedback from some of the VSOs that use combat boots as part of their funeral honors

uniform indicate that access to the military clothing stores for the purchase of combat boots

would be helpful. This can be accomplished through an internal DoD policy change.

d. Certificates

During a discussion between staff from DoD, DVA and veterans at the annual VFW

Convention, one of the VFW members suggested that DoD develop a certificate of appreciation

(or a pin) that recognizes the effort of the Veterans Service Organization volunteers who perform

military funeral honors. Volunteers use their time, personal funds and private vehicles to train

and equip teams to provide honors at veterans’ funerals. Formal recognition of their volunteer

work is appropriate. Additionally, it would demonstrate to the veteran community that their

efforts are appreciated at the highest levels of the Department of Defense. Within the Veterans
and Military Service Organizations, a great deal of pride and respect are accorded to members

and posts that are active in the community. Establishing various levels and methods of

recognizing the efforts of veterans to provide military funeral honors may help to increase the

number of veterans volunteering to perform military funeral honors.

The Department of Defense will consider the development of certificates of appreciation

(or pins) to officially recognize the contribution of Veterans and Military Service Organizations

funeral honors details.

4. Civilian Buglers

While it is always preferable to have a bugler at military funerals for the playing of Taps,

often military and veterans units do not have this kind of in-house capability. During several

meetings with the VSOs, the suggestion was made to look to local communities for buglers who

may want to volunteer to play Taps at veterans funerals. Some of the sources recommended

included buglers from high school or community bands, boy scouts and others in the community

who have bugler skills and would be willing to volunteer for this effort. With Section 567 of the

NDAA for FY 99 authorizing the Department of Defense to reimburse funeral honors volunteers,

these volunteer buglers could be reimbursed for their expenses.
E. ANALYSIS OF THE COSTS ASSOCIATED WITH PROVIDING MILITARY

FUNERAL HONORS

1. Military Funeral Honors Requests

In order to estimate costs associated with the delivery of military funeral honors, it is

necessary first to look at the extent such honors are currently provided. Prior to June 1998, the

Services did not collect extensive information about military funeral honors. In order to assess

the Department's funeral honors program, DoD asked for estimates from the Services for 1997.

While these numbers were estimated, they were not collected in any standard form. As a result,

DoD commenced a standard data collection on specific information from the Services from June

1 to September 30, 1998. In addition, DoD collected information from Veterans Service

Organizations. The following summarizes the information garnered from these sources:

During 1997, the Services reported providing a total of 30,638 military funeral honors.

The following are the totals by Service:

Army 15,222

Navy 6,910

Air Force 5,533

Marine Corps 2,973

Total 30,638

Following the Executive Roundtable, the National Guard Bureau conducted a survey to

determine how many funeral honors the National Guard supported during 1998. The majority of

these funeral honors were not included in the DoD data system. The figures include those from

the 50 states, Guam, the Virgin Islands, Puerto Rico and Washington, DC.

Army National Guard 3,533

Air National Guard 2,993

Total 6,526

Based on the number of funeral honors requests received between June 1, 1998 and

September 30, 1998, and data on monthly death rates provided by the Centers for Disease

Control, the estimated annual number of requests for military funeral honors collected in the

DoD database is 31,140. Adding the National Guard figures to those collected in the DoD

database, the following are the estimates for each Service:

Army 17,706

Navy 6,650

Air Force 9,158

Marine Corps 4,152

Total 37,666
The Chart below shows the estimates of DoD Military Funeral Honors Support in the DoD

database for 1997 and 1998.

There were 9,819 requests for funeral honors received between June 1 and September 30,

1998. Of these requests, only 75

percent were fully honored (all

requested components were

provided). For a variety of

reasons (e.g., non-availability of

trained manpower, geographic

distance, insufficient notification

time, multiple funerals at the

same time), the remaining

requests were either partially

honored (funeral detail provided

did not include all requested

components) or the requests

were not met (no funeral detail

provided). The requests for

military funeral honors were

honored as follows:

Requests Fully Honored 74.8%

Requests Partially Honored 23.6%

Requests Not Met 1.6%

Honors Provided By Service

0

5000

10000

15000

20000

25000

30000

35000

Army Navy Air Force USMC Total

Numbers of Honor Provided 1997-98

Estimated for 97

Projected for 98

Numbers of Honors

Requested and Met

Number of Honors Provided or Denied

DoD Data Collection Jun 1 - Sep 30, 1998

2,184

144

6,917

Requests Fully Honored Requests Partially Honored Requests Not Met

74.8%

23.6%

1.6%
The National Guard data combined with the DoD data demonstrates that the Reserve

Forces could have provided up to 44% of all honors rendered (excluding those provided by

Veterans and Military Service Organizations) in 1998.

The majority of National Guard participation was rendered in a voluntary, non-federal

pay status. Some states do provide state pay for this duty. The National Guard figures reported

above include participation at 1767 military funeral honors by the Connecticut National Guard.

Connecticut State law directs the National Guard to provide these honors in a State status,

including State pay. This requirement has been in effect for several years. Two additional states

(Maryland and Missouri) have recently enacted similar legislation.

2. Estimate of Demand for Military Funeral Honors.

Accurately anticipating the demand for military funeral honors is critical to being able to

develop options to improve funeral honors support. However, the estimated demand is difficult

to determine. Factors affecting this information include families not being aware that they could

request honors or not knowing who to call; funeral directors not being aware of the availability

of funeral honors or advising the family of limitations on their availability, so a request is never

submitted; and limited information from Service and VSO records.

Data described above indicate that the Services (including the National Guard) receive

requests for between 37,100 and 37,600 funeral honors per year. In addition, limited information

from three VSOs indicates that they provided 6,800 honors. This VSO information is a fraction

of the probable number of funeral honors provided. For example, the American Legion reports

having approximately 4,000 honors teams. The number of funeral honors provided by the

American Legion is not included in the 6,800 figure. It is reasonable to assume that the total

funerals provided by the military, VSOs and others exceeds 48,400 in FY1997 and also in

FY 1998. This represents approximately 8.8% of veteran’s deaths during these years.

Data Collection

Military Funeral Honors 

Active Duty

Reserve

National Guard

56%

18%

26%
The Department of Veterans Affairs provided approximately 270,000 grave markers for

veterans in FY 1997 (this figure does not include markers for spouses and replacements). This

represents about 50% of all veterans who died in 1997. If requests for a headstone are an

indication of those who would want honors, then it can be estimated that 50% (270,000) would

have desired honors in 1998.

In FY 1997, approximately 51,000 veterans were interred in national cemeteries. Funeral

honors were provided at 43% of those interments. If the percentage of veterans who received

honors at national cemeteries is indicative of all veterans, then it can be estimated that 43%

(231,000) of all veterans would have desired honors in 1998.

The National Funeral Directors Association (NFDA) polled its membership of about

22,000. It received responses from approximately 10% of its total membership. Based on these

responses, the NFDA estimated that 45% (241,600) of all veterans would have desired military

funeral honors in 1998.

These data points are significant because one represents the actual number of funeral

honors provided which is a floor for the demand. The NFDA estimate of 45% is also significant

since the vast majority of funeral honors requests (76.7% according to the June-September 1998

DoD data collection) come from funeral directors. The VA information about grave markers is

significant because it represents demand for a known entitlement that is clear and

straightforward, and which is well known to veterans and funeral directors; unlike what we

believe is the case with military funeral honors.

The potential demand for funeral honors also depends on several unquantifiable factors

including:

• Communication – Do veterans’ families know they may be able to receive honors

and, if so, how to request honors?

• Expectations of veterans’ families – If a legislative entitlement is in place, or if

improvements in communicating that funeral honors are available occur, it is

reasonable to assume that the demand for funeral honors will increase.

Estimating the demand for funeral honors is difficult. Based on the above, we believe at

least 45 percent of veterans’ families will request funeral honors. However, future initiatives to

communicate better the availability of military funeral honors or enactment of a formal

entitlement could significantly increase the demand.

G. Funeral Honors Cost Models for DoD

In addressing costs for funeral honors, the most significant cost drivers are: the number

of funeral honors that must be provided; which components of funeral honors must be provided;

distance from the military installation; and the number of personnel required for the detail. Both

the level of manpower provided and the funding are costs that must be considered.
In assessing costs for military funeral honors, two cost models were used. The first takes

the estimated costs for FY 1998 and projects the number of details of various sizes that could be

obtained with this

funding. The results

show a range of capability

from about 100,000

funerals if only one senior

NCO travels to present

the flag, to fewer than

17,000 funerals that could

be accommodated if a

nine-person team were

used. The current NDAA

for FY 99 requirement of

sending three people

would result in a

capability of fewer than

40,000 funerals if all

three persons were

military. Comparing this

capability with several

estimates (shown above in part 2) of possible requirements to support several hundred thousand

funerals annually (and the number rising significantly over the next nine years), the significant

increase in manpower needed to support these funerals is evident.

The second model uses

both the demand for funeral honors

and the size of the detail as

variables to compute costs and

manpower requirements for

FY2000. These calculations make

a number of important

assumptions. First, DoD data

indicate that it costs the installation

approximately 6 man-hours to

conduct a funeral detail. This

figure is rounded up to 8 hours, or

one day. Data collected did not

consider preparation time before

leaving for the funeral or action

taken after return. In addition,

travel up to 100 miles one way is

assumed to be a one-day trip.

Beyond 100 miles is assumed to be

a two-day trip. Using data that

23.5% of veterans live outside of a 100 mile area from the military installation, the model

Number of Funeral Details

for 18.5 M

0

20000

40000

60000

80000

100000

120000

1 (E-7) 1 (O-3) 2 3 5 9

Size of Honor Guard

Number of Details Available Based on 1998 Projected Manpower Costs 

($18.5M)

Man-Years as Determined by

 Various Size Detail (1999)

M anyear Requirement for Various Demands and Honor Guard 

Sizes

-

5,000.00

10,000.00

15,000.00

20,000.00

25,000.00

10% 15% 20% 25% 30% 35% 40% 45% 50% 55% 60% 65% 70% 75% 80%

Manyears (9)

Manyears (5)

Manyears (3)

Manyears (2)

Manyears (1)
calculates overnight travel costs for 23.5% of the funerals. (This assumes also that the funeral is

in close proximity to where the veteran lives.) Approximately 2.1% of veterans live outside of a

200-mile radius from the nearest military installation. In these cases, airfare for travel is

computed in addition to an overnight stay. The resulting calculations display a variety of

possible costs depending on the selected percentage of veterans’ families that would request

honors and the number of people in each detail. As an example of the calculation, the manpower

requirement is 3,588 man-years for a three-person detail if 45% of the families request. Costs for

manpower and travel to support this demand using three persons is $191.8M. None of the costs

in these models include training or overall team management and administration.

All costs in these models use DoD Comptroller manpower, travel and per diem figures.

Unless otherwise indicated on the cost charts, the enlisted grade used for cost calculation is an E4, and for officers it is an 0-3. One officer is assumed to be on teams with 2 or more members.

Costs As Determined by Various

 Size Detail (1999)

Costs for Various Demand and Honor Guard Sizes - 23.5% 

Travel Assumption

$-

$100,000,000.00

$200,000,000.00

$300,000,000.00

$400,000,000.00

$500,000,000.00

$600,000,000.00

$700,000,000.00

$800,000,000.00

$900,000,000.00

10% 15% 20% 25% 30% 35% 40% 45% 50% 55% 60% 65% 70% 75% 80%

Percent Demand

9

5

3

2

1 (O-3)

1 (E-7)
H. IDENTIFICATION OF MEANS OF IMPROVING FUNERAL HONORS

2. Toll-Free Number

During a number of discussions with VSO membership and the funeral directors

associations, it became apparent that often families and funeral directors are not clear on how to

request funeral honors for deceased veterans. The suggestion was made to establish a toll-free

telephone number where families and funeral directors could access information on how to

obtain funeral honors in their community.

2. Funeral Honors Website

After discussion of the importance of accessible and accurate information on funeral

honors at the Military Funeral Honors Executive Roundtable, a suggestion was made to establish

a military funeral honors website. Since a growing number of individuals are relying on the

Internet for up-to-date information, a website could serve families, veterans, veterans

organizations and funeral directors desiring information on funeral honors.

3. Funeral Directors Information Kits

There are approximately 22,200 funeral homes throughout the United States. Funeral

Directors are often the first line of information for families arranging the funerals of deceased

veterans. Some funeral directors may not be aware of the appropriate contacts to obtain funeral

honors. At the VSO conventions and Executive Roundtable, there was discussion that funeral

directors often are not aware of the military funeral honor protocol and associated funeral

benefits for veterans. The suggestion was made that a Funeral Directors Military Funeral Honors

Information Kit could be a valuable tool for assisting the funeral directors with providing

appropriate honors.

The information kit would include:

• Educational material for funeral directors to explain to veterans’ families the funeral honor

elements for which the veteran is eligible.

• Information on ceremony details, flag protocol, resources to call upon and other important

information essential for funeral directors arranging for or providing funeral honors.

• Information on how to obtain the American flag.

• Information for the funeral director on how to request a Presidential Memorial Certificate.

• Information on the Veteran Headstone and Marker and the National Cemetery System.

A Funeral Directors Military Funeral Honors Information Kit would be a useful and

beneficial asset in expanding the capability to provide military funeral honors for veterans. It

would provide the funeral director with a basic understanding of the funeral honor protocol and

veterans burial benefits, and list contacts for further assistance.
G. PROPOSED DEPARTMENTAL POLICY ON MILITARY FUNERAL HONORS

1. Background

Following the Military Funeral Honors Executive Roundtable, the Department of Defense

consolidated the information gained from the year-long examination of the issue including

research, meetings with the veterans and funeral directors organizations, veterans’ feedback, and

the Roundtable discussion. In addition, there were a number of high-level meetings held within

the Department in order to develop a policy that was acceptable to the veterans and supportable

by the Department. Consensus within DoD was that even though the section 567 of the NDAA

for FY 99 does not require a uniformed presence to provide funeral honors or a representative of

the deceased’s parent Service to be present, these elements should be a part of the military

funeral honors ceremony.

Adhering to the collaborative process established over the past year, the Department of

Defense met with the Department of Veterans Affairs and a number of veterans, military service

and funeral directors organizations that have been involved in the funeral honors process during

February and March of 1999 to discuss and review the proposed plans for funeral honors. These

consultations included key staff from the Department of Veterans Affairs and the following

organizations:

• American Ex-Prisoners of War

• American Legion

• American Veterans (AMVETS)

• Blinded Veterans Association

• Disabled American Veterans

• Fleet Reserve Association

• Gold Star Wives

• Korean War Veterans

• National Association of State Directors for Veterans Affairs

• National Funeral Directors Association

• National Funeral Directors and Morticians Association

• Marine Corps League

• Military Chaplains Association

• National Order of Battlefield Commissions

• Non Commissioned Officers Association

• Paralyzed Veterans of American

• US Army Warrant Officers Association

• Veterans of Foreign Wars

• Vietnam Veterans of America

• The Retired Enlisted Association

• The Retired Officers Association
Based upon these consultations, the Department of Defense proposes that mandatory

minimums for funeral honors should include: the ceremonial folding and presentation of the

flag, the playing of Taps, and the presence of at least one military member from the deceased’s

parent Service to present the flag to the family.

2. DoD Policy

The following is a description of the policy changes and modifications the Department of

Defense plans to make regarding military funeral honors for veterans.

a. Applicability and Scope

 (1) The Department of Defense policy would apply to the Military Departments, to

include the Reserve components, with respect to the provision of funeral honors for veterans.

The policy would not cover honors at Arlington National Cemetery which is governed by

specific legislative statute.

 (2) Eligible beneficiaries of military funeral honors. Active duty, retirees, veterans (as

defined by Title 38, United States Code, section 101(2) including 38 Code of Federal

Regulations, section 3.7, and deceased members and former members of the Selected Reserve.

Eligibility of deceased members and former members of the Selected Reserves will be

determined using the burial flag eligibility criteria in section 2301 of title 38, United States Code,

as amended by section 517 of the Strom Thurmond National Defense Authorization act for Fiscal

Year 1999 (P.L. 105-261).

 (3) Definition. The rendering of military funeral honors is the ceremonial paying of

respect and the final demonstration of the country’s gratitude to those who, in times of war and

peace, have faithfully defended our Nation.

b. Policy

(1) Upon request of the family or other representative, the Military Services will provide

at least the minimum mandatory funeral honors to an eligible beneficiary.

(2) Minimum mandatory funeral honors for veterans will consist of the ceremonial

folding and presentation of the American flag and the playing of Taps. This requires a minimum

of two persons, who shall be uniformed military personnel or other authorized providers of

funeral honors. At least one uniformed military representative of the parent Service of the

deceased veteran will participate at this ceremony and will present the flag to the family or other

appropriate individual. The Military Services may provide additional elements of honors and

other authorized providers may augment the Service Honors Team for this purpose.

(3) The provision of military funeral honors is designated a total force mission. In

fulfilling this mission, both active and reserve forces may be used.
c. Responsibilities

(1) The Office of the Secretary of Defense (OSD) will establish policy and, through the

Defense Manpower Data Center (DMDC), will collect data on the provision of military funeral

honors.

(2) The Military Departments will ensure that Service policy and guidance are

consistent with policy established by OSD. The Services will establish appropriate procedures

for the rendering of military funeral honors, ensure that a sufficient number of trained

members are available for this mission, and provide quality control for military funeral honors

ceremonies. The Services will continue to collect and provide specified data to the DMDC on

military funeral honors and data collection will be expanded to include the Reserve Forces.

d. Procedures

(1) Standardization and Quality Control. The Secretaries of the Military Departments

will ensure proper decorum for funeral honors including: trained personnel and proper

equipment; standardized honors procedures including standard verbiage for the presentation of

the flag to the family; dignified, respectful honor guard details; professional dress and

appearance; synchronization of movement; and regular quality control of funeral details.

(2) Taps. A bugler is preferred, either military or civilian. Bugler support may be

contracted or voluntary. The military component will designate an individual at the local level to

ensure there is an active search for a bugler. If none is available, the designated person

responsible for the bugler search may authorize instead the playing of a recording of Taps and

shall ensure that a quality recording is available. In general, buglers and sound systems should

be out of sight of the funeral party.

(3) Other Authorized Providers. The Military Services, at the local level, may

establish on-going liaison and formal agreements with other authorized providers to participate

in the provision of funeral honors. Other authorized providers include the Veterans Service

Organizations, the Reserve Officer Training Corps, and other appropriate individuals and

organizations which support the rendering of military funeral honors.

In order to assist non-military providers in the funeral honors mission, the Military

Services will make training available to authorized providers according to a set of established

standards for military funeral honors protocol. In addition, upon completion of training, the

Military Services may reimburse these providers for their reasonable expenses related to the

delivery of funeral honors and provide honor guard equipment and access to military clothing

sales stores for appropriate uniforms, decorations and insignia in accordance with legislative and

other authority.
(4) Coordination of Requests.

(a) Requests for military funeral honors will be received through a toll-free

telephone number currently under development. This number will connect the caller/requester

with the appropriate funeral honors provider or coordinator (as determined by the Service for that

region).

(b) The caller/requester will need to make one call to request military funeral

honors. The provider/coordinator that receives the request shall assume the full responsibility for

coordination until the request is honored. This implies coordination with the other Military

Services, Reserve Forces and other authorized providers. Requests requiring additional

coordination will be accomplished through an established inter-Service protocol.

(5) Information/Communication. The Department of Defense, through the Department

of the Air Force as Executive Agent, shall establish and maintain information systems for access

by veterans, families and funeral directors for the purpose of assisting them in obtaining military

funeral honors, and registering those groups authorized to provide honors. This will include a

Web Site as well as an information kit to be distributed to all funeral directors. There shall be

national and local liaison with appropriate groups and organizations to inform and update them

on funeral honors policy and procedures.

(6) Information Requirements. The Military Services will collect standardized data on

all military funeral honors rendered including those provided by authorized providers when the

honors were coordinated through the Military Services. The Military Services will provide an

annual impact report to the Assistant Secretary of Defense (Force Management Policy) to

measure any effect on readiness.
H. ESTIMATED COSTS FOR PROPOSED DEPARTMENT OF DEFENSE FUNERAL

HONORS PLAN

The following illustrates the manpower costs for a 2-person DoD detail (using an average

cost of one 1 O-3 and 1 E-4). The numbers are based on estimated deaths for each year,

including deceased members and former members of the Selected Reserves eligible for a burial

flag under section 2301 of title 38, United States Code, as amended by section 517 of the NDAA

for FY99. Estimated costs assume a 20 percent request rate for 2000 and a 5 percent graduated

increase in requests each subsequent year to a 45 percent request rate in 2005. Annual inflation

and travel costs are factored in as well.

2 DoD (1 O-3 & 1 E-4)

Year Man Years Costs

2000 1211 74.9 m

2001 1537 97.8 M

2002 1875 122.6 M

2003 2218 149.1 M

2004 2563 177.2 M

2005 2908 206.6 M

The chart below assumes a one-person DoD detail (using 1 E-7). Since a flag folding

requires at least two people, this cost estimate assumes a volunteer from an authorized provider

to assist in that function of the funeral. This cost estimate does not include reimbursement costs

for the volunteer(s) but indicates the costs for uniformed personnel only. All other variables

remain the same as in the one-person detail. The two-person costs estimate is applicable to those

situations where the Military Service assumes the full responsibility for funeral honors.

1 DoD (1 E-7)

Year Man Years costs

2000 606 39.0 M

2001 769 51.2 M

2002 938 64.6 M

2003 1109 79.1 M

2004 1282 94.6 M

2005 1454 111.1 M
I. RECOMMENDATIONS FOR APPROPRIATE LEGISLATIVE CHANGES

1. Reserve Incentives

In order for the Department of Defense to be able to meet the increased demand for veterans

funeral honors, Reserve Component participation is critical. The Department is considering two

legislative proposals which would enhance participation by the Reserve Component. The first

would allow the Reserve Forces to receive both pay for performance of honors and receive

retirement points above the annual 75-point cap. The second proposal allows Reserve Force

personnel to remain on active duty beyond 180 days to perform funeral honors without counting

against the active duty end-strength.

2. Authorized Providers

Since an integral part of the proposed plans and policy for veterans funeral honors includes

the participation of other authorized providers (e.g., volunteers from Veterans Service

Organizations), there may be a need to legislatively address the status of these individuals

relative to: compensation for work-related injuries; claims for damages or loss. This coverage

has precedence in section 1588 of title 10 which relates to volunteers working in Department of

Defense health-related services, a military museum, a natural resources program and for

programs which support members of the armed forces and their families.
J. CONCLUSION

The Strom Thurmond National Defense Act for Fiscal Year 1999 directed the

Department of Defense to improve the availability and delivery of military funeral honors for

veterans. In this effort, the Department of Defense, in concert with the Department of Veteran

Affairs, was to work closely with the Veterans Service Organizations. The Department of

Defense has thoroughly examined this issue, and in the process, come to understand more clearly

the expectations of veterans and their family members, the potential demand for military funeral

honors in the coming decade, and the limitations on the resources available to fulfill this timehonored tradition. It is with these considerations that the Department of Defense proposes the

plan for military funeral honors provided in this report.

The proposed plan is based on fulfilling two key principles, critical to successfully

implementing military funeral honors. First, the proposed plan helps clarify expectations by

defining the military funeral honors benefit clearly, improving access to information and

facilitating the coordination of requests. Second, the proposed plan ensures a military presence

as part of the prescribed ceremony—a feature not required in the Strom Thurmond National

Defense Authorization Act for Fiscal Year 1999, but essential to fulfilling the expectations of the

constituents and also helping to ensure consistent delivery of the ceremony. By fulfilling these

principals, the proposed plan answers the concerns expressed by the Veterans Service

Organizations and also those expressed by the Military Services tasked as the guarantors of the

plan.

Working in partnership with the Veterans and Military Service Organizations, we

considered in a very deliberate and compassionate way the important issue of how we can best

use the Department’s resources to provide military honors for our veterans. Our shared goal

was to honor appropriately and consistently those veterans who have faithfully defended all

Americans and our national interests. We believe that the proposed plan described in this

report accomplishes that goal.