U.S. GOVERNMENT PUBLISHING OFFICE

WASHINGTON : 

i 

29–460 2019

[H.A.S.C. No. 115–82] 

ARLINGTON NATIONAL CEMETERY— 

PRESERVING THE PROMISE 

HEARING 

BEFORE THE

SUBCOMMITTEE ON MILITARY PERSONNEL 

OF THE

COMMITTEE ON ARMED SERVICES 

HOUSE OF REPRESENTATIVES 

ONE HUNDRED FIFTEENTH CONGRESS 

SECOND SESSION 

HEARING HELD 

MARCH 8, 2018 
(II) 

SUBCOMMITTEE ON MILITARY PERSONNEL 

MIKE COFFMAN, Colorado, Chairman 

WALTER B. JONES, North Carolina 

BRAD R. WENSTRUP, Ohio, Vice Chair 

STEVE RUSSELL, Oklahoma 

DON BACON, Nebraska 

MARTHA MCSALLY, Arizona 

RALPH LEE ABRAHAM, Louisiana 

TRENT KELLY, Mississippi 

JACKIE SPEIER, California 

ROBERT A. BRADY, Pennsylvania 

NIKI TSONGAS, Massachusetts 

RUBEN GALLEGO, Arizona 

CAROL SHEA-PORTER, New Hampshire 

JACKY ROSEN, Nevada 

DAN SENNOTT, Professional Staff Member 

CRAIG GREENE, Professional Staff Member 

DANIELLE STEITZ, Clerk 
(III) 

C O N T E N T S 

Page 

STATEMENTS PRESENTED BY MEMBERS OF CONGRESS 

Coffman, Hon. Mike, a Representative from Colorado, Chairman, Subcommittee on Military Personnel .................................................................................... 1 

WITNESSES 

Allen, Forrest, Associate Director, Government Relations, Military Officers 

Association of America ......................................................................................... 2 

Avila, Gerardo, Deputy Director, Veterans Affairs and Rehabilitation Division, The American Legion .................................................................................. 3 

Durham-Aguilera, Karen, Executive Director, Army National Military Cemeteries, Department of the Army; and Katharine Kelley, Superintendent, 

Arlington National Cemetery .............................................................................. 13 

Towles, John, Deputy Director, National Legislative Service, Veterans of Foreign Wars .............................................................................................................. 5 

Zuegel, Col Keith W., USAF (Ret.), Senior Director, Government Relations, 

Air Force Association ........................................................................................... 7 

APPENDIX 

PREPARED STATEMENTS: 

Allen, Forrest .................................................................................................... 26 

Avila, Gerardo ................................................................................................... 37 

Coffman, Hon. Mike ......................................................................................... 25 

Durham-Aguilera, Karen ................................................................................. 57 

Towles, John ..................................................................................................... 42 

Zuegel, Col Keith W. ........................................................................................ 49 

DOCUMENTS SUBMITTED FOR THE RECORD: 

[There were no Documents submitted.] 

WITNESS RESPONSES TO QUESTIONS ASKED DURING THE HEARING: 

[There were no Questions submitted during the hearing.] 

QUESTIONS SUBMITTED BY MEMBERS POST HEARING: 

[There were no Questions submitted post hearing.] 

(1) 

ARLINGTON NATIONAL CEMETERY— 

PRESERVING THE PROMISE 

HOUSE OF REPRESENTATIVES, COMMITTEE ON ARMED SERVICES, SUBCOMMITTEE ON MILITARY PERSONNEL, Washington, DC, Thursday, March 8, 2018. 

The subcommittee met, pursuant to call, at 10:56 a.m., in room 

2212, Rayburn House Office Building, Hon. Mike Coffman (chairman of the subcommittee) presiding. 

OPENING STATEMENT OF HON. MIKE COFFMAN, A REPRESENTATIVE FROM COLORADO, CHAIRMAN, SUBCOMMITTEE ON 

MILITARY PERSONNEL 

Mr. COFFMAN. This hearing is called to order. I want to welcome 

everyone to this morning’s Military Personnel Subcommittee hearing. The purpose of today’s hearing is to receive testimony from 

stakeholders and Department officials on the future of Arlington 

National Cemetery. This iconic resting place for generations of 

brave men and women who have served their country is truly a national treasure. During its 153-year history, more than 400,000 

people have been interred or inurned at the cemetery. Unfortunately, the cemetery is rapidly running out of space. If nothing is 

done, in a matter of 23 short years, the cemetery will be closed for 

new burials. 

In response to a congressional mandate, last year, the Secretary 

of the Army provided a report on Arlington National Cemetery’s capacity. The report makes clear that action is required if we hope 

to preserve Arlington as an active cemetery. I look forward to hearing from our two panels about the recommendations on how best 

to preserve Arlington National Cemetery. For our first panel, comprised of military and veteran organizations, I look forward to 

hearing the views of the veterans and Active Duty members who 

will be directly impacted by any decisions regarding changes of eligibility criteria. I also look forward to hearing your members’ ideas 

on how best to preserve Arlington National Cemetery as an active 

cemetery well into the future. 

For our second panel, consisting of the leadership of Arlington 

National Cemetery, I look forward to hearing what steps have been 

taken to exhaustively research the capacity issue and what options 

are available to maximize both eligibility and the life of the cemetery. 

We will give each witness an opportunity to present his or her 

testimony and each member an opportunity to question the witnesses for 5 minutes. We would also respectively remind the witnesses to summarize, to the greatest extent possible, the high 
2 

points of your written testimony in 5 minutes or less. Your written 

comments and statements will be made part of the hearing record. 

Let me welcome our first panel today. Mr. Forrest Allen, Associate Director of Government Relations, the Military Officers Association of America; Mr. Gerardo Avila, Deputy Director, the Medical/Physical Evaluation Boards and Department of Defense, The 

American Legion; Mr. John Towles, Deputy Director, National Legislative Service, Veterans of Foreign Wars; Colonel Keith Zuegel, 

United States Air Force (retired), Senior Director, Government Relations, Air Force Association. 

With that, Mr. Allen, you may now make your opening statement. 

[The prepared statement of Mr. Coffman can be found in the Appendix on page 25.] 

STATEMENT OF FORREST ALLEN, ASSOCIATE DIRECTOR, GOVERNMENT RELATIONS, MILITARY OFFICERS ASSOCIATION 

OF AMERICA 

Mr. ALLEN. Thank you, Chairman Coffman, Ranking Member 

Speier, and other distinguished members of the Military Personnel 

Subcommittee of the House Armed Services Committee. On behalf 

of the Military Officers Association of America [MOAA], I am grateful for the opportunity to present our position concerning the future 

of Arlington National Cemetery. 

With finite years of capacity for new burials remaining at the 

cemetery, it is important to maintain the dignity of burial there, 

respect the end-of-life plans for the currently eligible population, 

and, if possible, take reasonable steps towards extending the life of 

the cemetery for future service members. MOAA commends the 

Secretary of the Army, congressional committees, the advisory committee on Arlington National Cemetery, and other cemetery officials for making significant efforts to include all stakeholders in 

this discussion. It is fitting that today’s hearing is about preserving 

the promise. 

To MOAA, preserving the promise of the cemetery is resolving to 

allow those in the currently eligible population with expectations of 

burial at Arlington to execute their end-of-life plans. No promise 

exists that the cemetery will remain open for new burials forever, 

nor is there a promise that future service members, even retirees, 

will be guaranteed an opportunity to be buried there. Either way, 

if a decision is made, it is going to be very important to address 

future expectations with expediency. 

Preserving the promise also means preserving the dignified setting, the aesthetics, and the history of the cemetery. While many 

other national cemeteries across the Nation serve a similar purpose 

in honoring those who served and do so very well, Arlington, undoubtedly, has a special connotation of its own. 

So many of the interested groups, many sitting with me here, 

have been talking about two primary options for extending the life 

of the cemetery: expansion and eligibility changes. Expansion of 

the cemetery grounds, contiguously or not, is a viable path forward 

and is the preferred method of extending the life of the cemetery. 

While it is costly and time-consuming, MOAA members have clearly indicated their preference for expansion over significantly re-
3 

stricting eligibility. The advisory committee’s first survey also revealed a strong desire to undertake expansion efforts first. 

Opportunities for expansion to adjacent lands are few. However, 

Option 2C of the February 2017 advisory committee report to Congress suggested the establishment of a new DOD [Department of 

Defense] national cemetery at a separate location, which we believe 

could serve as the starting point for noncontiguous expansion of the 

cemetery. Locations like Gettysburg or Quantico could serve as dignified burial sites associated with the original Arlington Cemetery. 

And while such sites might not have the same feel at the outset, 

there is potential for that aura to develop over time. Recall, after 

all, that the Arlington Cemetery we know today did not develop its 

reputation overnight. 

Eligibility restrictions are a tougher sell. MOAA does not oppose 

restricting a select number of gravesites for those who are killed 

in action, or who earn a particular award of high honor. However, 

the expectation and earned right to be laid to rest at Arlington for 

the currently eligible population should not be exchanged for an 

Active Duty member who serves in the future and dies from a noncombat-related incident. 

So if at the end of your deliberations, eligibility restrictions are 

deemed desirable or necessary, MOAA suggests there should, at a 

minimum, be a reinstatement of the reservation system to allow 

those who have already made plans at Arlington to have a chance 

to have their wishes honored. 

So MOAA surveyed its membership about a year and a half ago, 

and some of the significant results are listed in our written testimony. But the survey revealed that reaching maximum capacity is 

a widely accepted fate. So when the cemetery is full, it is going to 

be full. At the same time, respondents were evenly split for and 

against changing eligibility restrictions after all expansion options 

were exhausted. Also, about two-thirds of respondents suggested 

eligibility changes would be acceptable so long as retirees remained 

eligible. 

Thus, to best honor the promise of Arlington, MOAA has several 

recommendations: One, Congress not take action restricting eligibility for the military retiree population, other than reserving a set 

number of plots for specific honorees; two, Congress appropriate 

funds to undertake acquisition and development of adjacent land, 

including the completion of the Southern Expansion Project currently underway; and three, Congress appropriate funds for the 

study and eventual acquisition of noncontiguous land to be used as 

an Arlington annex. 

Thank you to the Subcommittee on Military Personnel for holding this hearing to examine the options forward. We eagerly look 

forward to any recommendations that come from the discussion. 

And I look forward to your questions. Thank you. 

[The prepared statement of Mr. Allen can be found in the Appendix on page 26.] 

Mr. COFFMAN. Mr. Avila, you are now recognized for 5 minutes. 
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STATEMENT OF GERARDO AVILA, DEPUTY DIRECTOR, VETERANS AFFAIRS AND REHABILITATION DIVISION, THE AMERICAN LEGION 

Mr. AVILA. It is often said that taking a walk through Arlington 

National Cemetery is to take a walk through America’s history 

with its most revered patriots. Laying our Nation’s veterans, service members, and their eligible family members to rest with dignity, respect, and honor, is the foundation of the mission of this 

hallowed ground called Arlington National Cemetery. The hallowed 

grounds of Arlington, which has stood since the Civil War as the 

crown jewel of reverence for the fallen men and women who have 

served this Nation during peace and wartime, is at its crossroads 

in its long, proud history. 

Chairman Coffman, Ranking Member Speier, and distinguished 

members of the Subcommittee on Military Personnel, on behalf of 

our National Commander, Denise H. Rohan, and the 2 million 

members of The American Legion, thank you for the opportunity 

to testify regarding the future of Arlington National Cemetery. 

The likelihood that Arlington National Cemetery, with this 150- 

year history, could cease to operate within the next three decades 

is a real possibility. There are currently 71 living Medal of Honor 

recipients with 11 from our current conflicts. These 11, if they live 

to average life expectancy, will not have the option to be buried at 

Arlington due to lack of capacity. Extending the life of Arlington 

as an active cemetery will require difficult decisions to be made. 

And recognizing this reality, The American Legion adopted Resolution No. 93 during our national convention in 2016, urging Congress to codify eligibility criteria to be restricted to service members who die in Active Duty, and to our most decorated veterans 

to include recipients of the Purple Heart; former members of the 

Armed Forces, separated from the military before October 1, 1949, 

with a physical disability of 30 percent or greater; retirees; eligible 

spouses and children; former prisoners of war; and for the President or former Presidents as Commanders in Chief. 

The American Legion also believes that there should be no waivers for unqualified persons, except under unique and compelling 

circumstances, in order to assure that the remaining spaces are 

used judiciously. The options of expansion and using new burial 

techniques have also been suggested as ideas to increase capacity. 

Each comes with its own sets of challenges. Expanding the current 

footprint will be difficult, due to Arlington’s geographical location. 

Other expansion challenges include money and time. The two 

current expansion projects underway have a combined budget of 

over $350 million. The American Legion supports exploring the option of expansion within close proximity to the current footprint in 

the Capital Region. We support the proposal for exploring alternative ideas and maximizing the current and any future space with 

the use of new burial techniques that will allow for increased use 

of above-ground inurnments. 

The American Legion shares with the U.S. Army its expressed 

concern in using new above-ground techniques, fearing it will alter 

the architectural design of the cemetery. However, we remain open 

to changes that do not detract from Arlington and would be beneficial in creating additional capacity. The American Legion’s own 
5 

100-year history is intricately intertwined with endeavors to pursue the legacy of this Nation’s veterans and current service members. 

We would like to take this opportunity to acknowledge and say 

thank you to Arlington National Cemetery, the advisory committee, 

for beginning this very important conversation and for including 

The American Legion and the veteran service organizations. Our 2 

million members, as well as all living veterans, deserve to have a 

voice when deciding the future of such hallowed place. 

Thank you, again, Chairman Coffman, Ranking Member Speier, 

and distinguished members of the subcommittee. We appreciate the 

opportunity to present The American Legion’s views and look forward to any questions that you and/or the subcommittee may have. 

[The prepared statement of Mr. Avila can be found in the Appendix on page 37.] 

Mr. COFFMAN. Thank you, Mr. Avila. 

Mr. Towles, you are now recognized for 5 minutes. 

STATEMENT OF JOHN TOWLES, DEPUTY DIRECTOR, NATIONAL LEGISLATIVE SERVICE, VETERANS OF FOREIGN WARS 

Mr. TOWLES. Chairman Coffman, Ranking Member Speier, and 

members of this subcommittee, on behalf of the men and women 

of the Veterans of Foreign Wars [VFW] of the United States and 

its auxiliary, I would thank you for the opportunity to testify before 

this distinguished subcommittee this morning and to present our 

views concerning the future of Arlington National Cemetery. 

As this Nation’s oldest war veterans service organization, the 

VFW and its auxiliary proudly represent more than 1.7 million 

members, including 300 post-9/11 veterans, and more than 60,000 

members of the Active Duty National Guard and Reserves. This is 

one of the many reasons that the future of our Nation’s most hallowed ground has been, and will continue to be, a top priority for 

us. 

In 1967, President Lyndon Johnson requested that the Department of Veterans Affairs [VA] conduct a survey of all existing veterans benefits to include burial and cemetery programs administered by both the Department of the Army and the VA. 

A year later, in consultation with the National Veterans Advisory 

Committee, which included VFW representation, they delivered a 

report to Congress that paved the way for the transfer of 82 of the 

Army’s 84 cemeteries. The only two that remain under the care of 

the Army was the Soldiers Home National Cemetery and Arlington 

National Cemetery. Nineteen sixty-seven also saw a significant restriction placed on the eligibility at Arlington due to growing concerns that the number of American service members being killed 

in action during the Vietnam War and the rapidly aging World 

War II veteran population would soon fill Arlington to its capacity. 

This new regulation restricted in-ground burials to military personnel who died on Active Duty, or career military retirees or recipients of this Nation’s highest military awards. At that time, 

VFW vehemently opposed any eligibility restrictions. In fact, our 

membership was so outraged that we completely withdrew from 

Arlington’s Veterans Day ceremony that year, sparking a national 

controversy, as you can imagine. 
6 

As a membership organization, the VFW is required to represent 

the views and preferences of our members. And in 1967, this meant 

opposing any eligibility restrictions. Much has changed since 1967. 

After many meetings with top officials within the Office of the 

Secretary of Defense and the Department of the Army throughout 

the years, as well as surveys and roundtables conducted by Arlington National Cemetery leadership, many proposals to reform eligibility have been brought forward and submitted for our consideration. 

At this time, there is only one eligibility restriction that has been 

brought forth that the VFW supports, and that is to restrict eligibility to 24 months of Active Duty service, not including those who 

were killed in action or die on Active Duty. Enacting this eligibility 

restriction would effectively make in-ground interment policy for 

Arlington commensurate with that of the cemeteries within the 

VA’s National Cemetery Administration, and would reduce the 

workload at Arlington by approximately 200 burials per year. 

While the VFW acknowledges that restricting eligibility to those 

who are killed in action or Medal of Honor recipients would ensure 

that Arlington remains open in perpetuity, the VFW has an obligation to advocate for, and preserve the integrity of, the option best 

suited to do the most good for the most number of veterans. Additionally, restricting eligibility to a very small category of veterans 

is simply not feasible at this time, not if the true goal is to provide 

those who are entitled to be laid to rest at one of America’s most 

sacred cemeteries the ability to do so. 

Furthermore, the VFW feels it is imperative that the way forward also include the acquisition of additional space in some form, 

as land is a finite resource. This is why the VFW fully supports the 

proposed Southern Expansion which would, according to Arlington 

officials, add an additional 30 to 40 acres to the cemetery and provide approximately 40- to 60,000 new gravesites. When combined 

with the proposed 24-month eligibility restriction, the life of the 

cemetery would be extended through 2074. 

You may be asking yourself, what about after 2074? As previously stated, there is no easy answer given the current shortage 

of land in the area. However, there is one property that may offer 

a solution, and that is the Armed Forces Retirement Home. 

For the past decade, VFW members have donated their time and 

resources to assist the residents in the Armed Forces Retirement 

Home by helping to maintain the property through various service 

projects. Every year we go out, we see unused space. We see a golf 

course that is struggling to remain open. We read articles in the 

local press concerning proposals to develop up to 80 acres of socalled excess space on the property for commercial use. And most 

of us have seen by now the most recent Army IG [Inspector General] report highlighting the failures of officials to conduct proper 

oversight of this property. The Cemetery at the Armed Forces Retirement Home is, aside from Arlington itself, arguably one of the 

most historic oldest cemeteries in this country. 

Mr. Chairman, if 30 to 40 acres will provide an additional 40,000 

to 60,000 gravesites, then simple math tells us that reclaiming the 

80 acres of surplus land there would give us an additional 80,000 

to 120,000 gravesites which would push us well beyond 2074. Aside 
7 

from that, we must continue to encourage VA to work with their 

other State and Federal partners in order to expand the National 

Cemetery Administration’s current inventory, while also working 

with your colleagues on the House and Senate Veterans Affairs Appropriations Committee to provide them with the funding needed 

to do so. 

In the end, the men and women who served this Nation honorably, as well as their family members, deserve to be laid at rest in 

hallowed ground. It may not have been a consideration while they 

were serving, but it is an honor that they have nonetheless earned 

through their blood, sweat, and tears. As a Nation, we have an obligation to ensure that they and their sacrifices are as honored as 

thoroughly as possible. This includes their final resting place. 

Mr. Chairman, Ranking Member Speier, this concludes my testimony, and again, I want to sincerely thank you for the invitation 

to come and testify on this topic. And I look forward to any questions you may have. 

[The prepared statement of Mr. Towles can be found in the Appendix on page 42.] 

Mr. COFFMAN. Thank you, Mr. Towles. 

Colonel Zuegel, you are now recognized for 5 minutes. 

STATEMENT OF COL KEITH W. ZUEGEL, USAF (RET.), SENIOR 

DIRECTOR, GOVERNMENT RELATIONS, AIR FORCE ASSOCIATION 

Colonel ZUEGEL. Thank you, Mr. Chairman. 

Chairman Coffman, Ranking Member Speier, Congressman Wenstrup, Congressman Bacon, thank you for being here today, and the 

other members of the committee. On behalf of the Air Force Association’s membership of 96,000, the nearly 700,000 airmen, civilians, and families that we represent, and the millions of veterans 

who have worn Air Force blue, I am honored to testify today on the 

importance of Arlington National Cemetery. 

We have been involved in this issue for quite some time, and routinely participate in meetings with the Arlington National Cemetery’s advisory committee. There are an estimated 22 million veterans alive today who serve—22 million veterans alive today who 

served honorably and understand the significance and the impact 

of Arlington National Cemetery. As the organization that led the 

financing and construction of the Air Force Memorial, which could 

potentially be encroached by cemetery expansion options, we at 

AFA [Air Force Association] realize that the surrounding land is finite. Space on this hallowed ground is projected to run out in the 

early 2040s, and a solution must be found soon. 

Thank you for holding this hearing, for having this difficult discussion. We strongly believe that our Nation’s decision makers 

should explore an all-of-the-above strategy to include land expansion and land optimization before reducing or curtailing eligibility. 

It is important to keep this cemetery viable as long as possible for 

future Medal of Honor recipients, those killed in combat, and top 

medal awardees. We should strive to obtain surrounding land to 

expand the present cemetery. Although the cemetery’s majestic serenity should be largely preserved, there are avenues to increase 

burial locations without losing the cemetery’s solemn presence. 
8 

In addition to exploring expansion possibilities, more aboveground inurnments should be considered. As military members age 

and consider their final resting place, it is paramount that the 

hearing today be followed up by quick and decisive action. From 

the Secretary of the Army, Secretary of Defense, and the President, 

we ask for your oversight in making sure this happens. 

Thank you for the invitation to testify today. We thank you for 

bringing this issue before the public. And the Air Force Association 

is honored to be part of it. We are honored to present testimony 

to advocate for the continued viability of Arlington National Cemetery. We are entrusted with the solemn responsibility to care for 

those men and women that have sacrificed so much for our great 

Nation. And we are eager to work with the U.S. Congress and Department of Defense on the best way forward for Arlington National Cemetery. 

Thank you. We stand ready for your questions. 

[The prepared statement of Colonel Zuegel can be found in the 

Appendix on page 49.] 

Mr. COFFMAN. Thank you, Colonel Zuegel. 

Let me just start. 

Mr. Allen, I have a question for you. The results from the first 

survey appear to favor restricting eligibility to POWs [prisoners of 

war], valor awards, the Purple Heart, Medal of Honor, killed in action, and Active Duty. Sixty-eight percent of the veterans in this 

survey favor this category, while only 47 percent favor keeping retirees eligible. And I am referring to a survey that was done, I believe, by the Department of the Army. 

I am curious why your testimony is contradictory to the survey 

results. Can you elaborate on this? 

Mr. ALLEN. Thank you, Mr. Chairman, for the question. 

Yes. So our position is contrary to what that particular point in 

the Arlington National Cemetery advisory committee survey said, 

because I am here representing the members of the Military Officers Association. And our members explicitly stated that they prefer not to restrict eligibility to the military retiree population. And 

I think that is the distinguishing factor between the data point 

that you are bringing up from the advisory committee survey 

versus what our stance is. 

So it is not that we are completely against reserving a certain 

number of plots for those categories which you mentioned are part 

of that data point, but our members certainly want to preserve a 

number of spaces for the retiree population. 

Mr. COFFMAN. Let me ask this to the others, if they would like 

to comment on this. And, again, the results from the first survey 

conducted by the Arlington National Cemetery Foundation favors 

restricting eligibility to POWs, valor awards, the Purple Heart, 

Medal of Honor, those killed in action, and Active Duty. Would the 

rest of you comment on that? 

Mr. Avila. 

Mr. AVILA. I believe there were about 28,000 people that participated in the survey, not necessarily veterans. I think there were 

different categories where family members or people that have no 

association to the cemetery. 
9 

The American Legion has our Resolution 93; that is the current 

criteria that we support. But I think part of this leads to the difficult discussion that must be had, and we can bring back to our 

membership and educate them on the tough choices that might 

have to be made. We would like to continue to engage Arlington 

Cemetery and the advisory committee to shape any criteria down 

the future. But our current position is based on Resolution 93, 

Chairman. 

Mr. COFFMAN. Okay. Mr. Towles. 

Mr. TOWLES. Mr. Chairman, I echo my colleague’s sentiment 

from MOAA. We are a membership-driven organization. And as a 

result, we have to consult with them when we make a stance such 

as this. Our stance is if you are going to restrict eligibility, it 

should be done as minutely as possible as to provide the most benefit to the most amount of veterans. 

Mr. COFFMAN. Okay. Colonel Zuegel. 

Colonel ZUEGEL. Mr. Chairman, pretty much along those lines. 

Again, expansion. But we also think we should consider the 24 

months of Active Duty eligibility that—similar to what the VA has. 

And then the other categories you named, of course, what is left 

out of that affects most of our members, our retirees. And I think 

more of a discussion has to be for Active Duty retirees. 

Mr. COFFMAN. Okay. Let me, if I can, throw out one more question to you. 

A few of you have stated that your members understand that eligibility criteria changes need to be explored in order to keep Arlington National Cemetery an active cemetery, but that these 

changes should not be applied to those who have already made 

end-of-life plans that include burials at Arlington National Cemetery. 

What is your recommended method for identifying and distinguishing those individuals who have made end-of-life plans and 

those who haven’t? 

Why don’t we start—Mr. Allen, let’s start with you. 

Mr. ALLEN. Thank you, Mr. Chairman. 

So we believe at MOAA that there is an opportunity to reinstate 

a reservation system. There was one in the past before we had the 

niceties of computers and the internet to hold a registration system. But we think a new reservation system might give people an 

opportunity to express their interest in being buried there. 

Mr. COFFMAN. Mr. Avila. 

Mr. AVILA. Our resolution does not state reservation system, so 

we have no position on that. We have the criteria that we feel 

should be met and able to be interred, buried in Arlington. But like 

I said, if it is a decision that must be made to expand Arlington’s 

life, then I think that is a conversation that we can have with our 

membership. 

Mr. COFFMAN. Mr. Towles. 

Mr. TOWLES. Mr. Chairman, we have no thoughts concerning a 

reservation system. 

Mr. COFFMAN. Colonel Zuegel. 

Colonel ZUEGEL. Yes, sir. I believe the reservation system is a 

good idea, and we should explore that option as well. 

Mr. COFFMAN. Very well. 
10 

Dr. Wenstrup, you are now recognized for 5 minutes. 

Dr. WENSTRUP. Thank you, Mr. Chairman. I just have one quick 

question. 

Colonel, you had mentioned other interment methods. Could you 

elaborate on that? I think you were referring to other ways of 

interring people maybe at Arlington. 

Colonel ZUEGEL. Congressman, what I meant to portray is that, 

you know, we want to maintain the majesty of the iconic nature of 

the cemetery. And it is one of the—you know, it is a landmark, and 

it is that way for a reason. But there is ways, I think—as I drive 

into Rosslyn every day and I watch those—you know, all those that 

preceded us, it seems like there is still some space that could be 

had around that area. We could expand a little bit going closer to 

the fences. And there are some areas of the cemetery that I think 

we could, you know, use more land management as opposed to, you 

know, the way it is right now. You know, we could come a little 

closer to the boundaries. I also think we should look at more columbariums. We should look at the above-the-ground inurnments as 

well. And I think that would help and go a long way. 

Dr. WENSTRUP. Okay. Thank you. 

That is the only question I have. I will yield to General Bacon. 

Mr. BACON. Thank you very much. And for one of the few committee hearings, I can say I have been a member—a proud member 

of all four of your organizations. And I appreciate all four of you 

and who you represent. 

What I hear is—if I could summarize it. There is a reluctance to 

significantly change the criteria. But it is hard to buy more land. 

But that you all acknowledge we will eventually fill this up, and 

there will be no space for Medal of Honor winners and those killed 

in action. I am just sort of paraphrasing. Do I have that that about 

right? 

So I am hearing yes on all four of you. 

It just seems to me we, at least from my perspective, that we 

should put a higher priority in ensuring space for those killed in 

action, and those recognized for the courage, or, you know, Medal 

of Honor winners and Purple Heart winners. It seems like that 

place should be reserved for those who paid their ultimate sacrifice 

and who received the Medal of Honor. And if we don’t make that 

action, I feel like it—doesn’t do justice to those 10, 20, 30, 50 years 

from now. I just want to comment, but I welcome your feedback 

if—or you think I got that wrong. 

Colonel ZUEGEL. Congressman, I think most of us had agreed, 

when we were talking earlier, that we should save a select number 

of sites for, you know, the future Medal of Honor recipients and 

Purple Hearts and, you know, valor awardees. I think we should 

continue to do that and continue keeping it viable, but not at the 

exclusion of the members we represent or those that are honorably 

serving today and that made plans to be honored by being laid to 

rest at Arlington Cemetery. 

Mr. BACON. But the reality is if we don’t change that, it will fill 

up pretty fast, and it will limit the future of those who have paid 

the ultimate sacrifice and who earned the Medal of Honor. So I just 

think we have to realize that there is a choice here if we want to 

preserve this for those who have given their all. And it is not an 
11 

easy choice. I am a near 30-year Air Force veteran too. If I take 

the criteria that is being recommended, I won’t be allowed to be 

buried there either. But I think I would prefer keeping that spot 

open for a Medal of Honor winner and someone who paid the ultimate sacrifice. But it sounds like I am a minority view on that, 

though, from the feedback that you have been given. Is that correct? 

Mr. AVILA. So, I think from our perspective with the resolution 

that was made 2 years ago, you are correct in that. But I think this 

is the honest conversation, the tough questions that we need to 

ask. I am here representing The American Legion. Me, for myself, 

I am a retiree. If I meet the criteria for interment burial at Arlington, but you are telling me that my slot could be used for a Medal 

of Honor recipient, or a KIA [killed in action], for Gerardo, I would 

give up my slot for one if it can be guaranteed to be saved. But 

that is me. But this is the conversation that I believe we need to 

have with our membership and everybody at this table. 

Mr. BACON. I think you and I feel the same way. Maybe it just 

takes more time to have this discussion and sensitize folks. Here 

is the choice. It is not—if we don’t change the criteria, we will fill 

up the cemetery, and it will limit the future heroes, their ability 

to get there. I think all who served can say they—you know, you 

say heroism. I think for those who paid the ultimate sacrifice and 

won the Medal of Honor, Arlington should be reserved for them if 

no one else. 

I really appreciate getting your feedback, though. I think I expected to see more of that thinking. But, of course, we have had 

these discussions here. We know there is a fork in the road that 

we are going to have to take. So I think that I have been sensitized 

to it already. 

But I think what I am hearing today, Chairman, that we are 

going to have to do some hard work in communicating this to the 

veterans. 

And I yield back. And I thank you for your feedback from your 

members, which I am a one. 

Mr. COFFMAN. Well, thank you, General Bacon. You have got 

four out of four of these organizations. I got three out of four, so 

you got me beat. The Air Force is the only one —— 

Mr. BACON. You get a C. I get an A. 

Mr. COFFMAN. I will take that. I think the Air Force is the only 

one I am not in. 

Colonel ZUEGEL. We are prepared to take care of that today, Mr. 

Chairman. 

Mr. COFFMAN. I don’t think my test scores were there. So I was 

Army and Marine Corps, but I won’t go there. 

Let me ask you all this question. If eligibility criteria change, 

what should be the timeline for phasing in those changes? 

Mr. Allen, we will start with you. 

Mr. ALLEN. Thank you, Mr. Chairman. 

We have not really discussed a timeline among our membership. 

And I would be hesitant to give you a projection on that without 

having discussed that. You know, if there is a decision, and it is 

going to be made anywhere in the reasonably near future, the big 

challenge that we would want to make sure that is going to be han-
12 

dled is the communication aspect of that. I know General Bacon 

just mentioned that. But, really, formulating a path forward to 

make sure all interested parties are aware of any changes coming 

will be an important factor. 

Mr. COFFMAN. We are doing a second round at this time. 

Mr. Avila, if you could answer—if eligibility criteria change, what 

should be the timeline for phasing in those changes? 

Mr. AVILA. In accordance with the resolution, we know the criteria that American Legion supports. Approximately 67,000 spaces 

are used annually, based on ceremonies that happen at Arlington. 

The first question I believe we need to answer is do we want Arlington to be an active cemetery? And the question is yes, I believe 

the sooner, as far as changing the criteria, to ensure that Arlington 

continues to be an active cemetery. 

Mr. COFFMAN. Mr. Towles. 

Mr. TOWLES. Mr. Chairman, I think we would have to see more 

specifics in terms of what you mean by eligibility changes. I mean, 

one option is to do the 24-month option to be on par with VA. The 

other one is just to allow KIAs and Medal of Honor recipients. So 

I think we would have to be more specific. 

I can state that currently, we have discussed a timeline of implementation for the option that we fully support. We are not prepared to make a comment about that currently, though. 

Mr. COFFMAN. Okay. Colonel Zuegel. 

Colonel ZUEGEL. Mr. Chairman, again, that is assuming that you 

have exhausted all methods for land expansion, all methods for a 

land management, and you have used all the above criteria and 

started invoking some—you know, and started looking at some selection. I think we could do it over the next decade. Obviously, if 

somebody hasn’t entered yet, we should say, ‘‘This is the way the 

new system is,’’ just like we did with the retirement. I think everybody would expect that, and that is very understandable. We can’t 

wait 20 years because we are too close to the early 2040s, obviously. So we would have to do something within the next decade. 

Mr. COFFMAN. Okay. 

Colonel ZUEGEL. Just reasonably. 

Mr. COFFMAN. Well, let me ask another question. Do you believe—and this is to the entire panel. Do you believe that if the 

government acquired noncontiguous acreage in the National Capital Region, and designated it as part of Arlington National Cemetery, that it would achieve the same iconic status as Arlington National Cemetery has over time, or would it forever be regarded as 

an annex? 

Mr. Allen. 

Mr. ALLEN. Thank you, Mr. Chairman. 

We believe that such an acquisition of noncontiguous land would 

be a viable way of extending the life of the cemetery. I think that 

such a parcel of land would be able to develop the aura, the aesthetics that the current Arlington National Cemetery has, and that 

is in a great deal of thanks to the Department of Army for taking 

care of the grounds so well. 

Mr. COFFMAN. Thank you. 

Mr. Avila. 
13 

Mr. AVILA. We believe that it can reach the same status as Arlington currently does. And that has to do not just with the land 

location, but it goes with the honors that come with being interred 

at Arlington. And if those are continued to provide, we feel that it 

is a good viable option. 

Mr. COFFMAN. Mr. Towles. 

Mr. TOWLES. Resoundingly yes, especially as my colleagues have 

already stated, if those same benefits and honors were rendered 

and—I definitely believe so, so long as it is in the National Capital 

Region. It would be difficult to pitch that if it were in Texas, for 

instance. So yes. 

Mr. COFFMAN. Colonel Zuegel. 

Colonel ZUEGEL. It would be very difficult to match the iconic nature of Arlington National Cemetery whether we called it Arlington 

North or South, or whatever. So whether it is an annex or not— 

you know, I praise the Department of Defense and the Department 

of Veterans Affairs for what they do currently. You know, the 

cemeteries are all, you know, well-maintained and accessible to veterans, and they honor the veterans. 

I have had this personal discussion in my home about—you 

know, I am eligible also for burial at the Air Force Academy. And 

my kid said, ‘‘Well, I would rather Dad be buried at Arlington National Cemetery, and—because we’d visit it more often.’’ But I don’t 

think you can match the iconic nature of Arlington Cemetery. But, 

you know, I think it is one of the all-the-above solution ideas that 

we have to come up with. 

Mr. COFFMAN. Okay. Thank you, Colonel Zuegel. 

We will now take a brief recess in order to set the witness table 

for the second panel. I want to thank everybody for your testimony 

today. I really appreciate it. Thank you. 

[Recess.] 

Mr. COFFMAN. I wish to now welcome our second panel. 

We would like to respectfully remind the second panel to summarize, to the greatest extent possible, the high points of your written 

testimony in 5 minutes or less. Your written comments and statements will be made part of the hearing record. 

Our second panel consists of Ms. Karen Durham-Aguilera, Executive Director of Army National Military Cemeteries; Ms. Kate 

Kelley, Superintendent, Arlington National Cemetery. 

With that, Ms. Durham-Aguilera, you are now recognized to 

make your opening statement. 

STATEMENT OF KAREN DURHAM–AGUILERA, EXECUTIVE DIRECTOR, ARMY NATIONAL MILITARY CEMETERIES, DEPARTMENT OF THE ARMY; AND KATHARINE KELLEY, SUPERINTENDENT, ARLINGTON NATIONAL CEMETERY 

Ms. DURHAM-AGUILERA. So, Chairman Coffman and distinguished members of the subcommittee, thank you for the opportunity to provide a further update to the subcommittee. 

Arlington National Cemetery is the premier national military 

cemetery in our Nation’s capital. It is an iconic place devoted to 

honoring our veterans’ and patriots’ service and sacrifice in the defense of our Nation. Each week, the cemetery faithfully conducts 

150 funeral services on behalf of a grateful Nation. 
14 

In fiscal year 2017, we interred nearly 7,100 Active Duty service 

members, veterans, and their family members. We also annually 

host approximately 3.3 million guests, helping each visitor connect 

to the sacrifices of our military. On behalf of the cemetery and the 

Department of the Army, I express our deep appreciation for the 

support provided by Congress over these many years. 

Arlington National Cemetery is proud to honor each generation 

of men and women who serve in the defense of our Nation. As the 

steward of this national shrine, the Army is committed to maintaining Arlington National Cemetery as an active cemetery and extending its legacy well into the future, currently defined as 150 

years. Unfortunately, without changes to the eligibility requirements and the physical footprint, Arlington National Cemetery will 

not be a burial operation—an option for most who served in the 

Gulf War or any conflict since, regardless of their contributions, 

achievements, or valor. The Secretary of the Army’s February 2017 

report to Congress informs that the cemetery will reach maximum 

capacity in the early 2040s, and further discusses the difficult topics of eligibility and expansion. 

Arlington National Cemetery’s ability to remain open as an active burial site well into the future is a function of limited burial 

capacity in conflict with extraordinary demand. Capacity meaning 

available gravesites and niches, and demand meaning the volume 

of families’ request for interment and inurnment of the currently 

eligible populations. We are addressing capacity through the Millennium Project, nearly completed, and planning for the future 

Southern Expansion Project. Based on changing conditions and revised estimates, the Army requires additional authority and funding to complete the land acquisition and the defense access roads 

project associated with Southern Expansion. We are working with 

the Army staff and other committees of Congress to address these 

shortfalls. 

Beyond those efforts, there are no additional plans for increasing 

the available burial space through expansion. There are few adjacent Federal lands available to increase the cemetery’s burial 

space. Even if these lands were made available, they would only 

extend the life of the cemetery by a few years, at a great cost. Expansion alone will not keep Arlington National Cemetery open to 

new interments past the 2040s to 2050s. We must address the demand for interment by restricting eligibility in addition to physical 

expansion. 

We are very sensitive to the fact that many who have served or 

are currently serving would be impacted. We will evaluate ways to 

minimize these impacts, while also extending the life of Arlington 

National Cemetery. We will continue to champion, along with our 

partners of the Veterans Affairs National Cemeteries Administration, the 135 other beautiful national cemeteries our Nation provides to honor our veterans at over 100 State-run veteran cemeteries. 

Our next phase will better inform stakeholders to the benefits 

and the risk of policy options and the reality of expanding the cemetery in the National Capital Region. It is our desire to give each 

stakeholder the information necessary for honest and thoughtful 

deliberation of any future changes. Further, it is our intent to ini-
15 

tiate a second survey by the end of this month, March 2018, that 

will further provide public input and inform our future recommendations. 

The Army anticipates continuing robust and candid public dialogue as we move forward. Enabled by the tremendous support of 

Congress and the diligent efforts of our great dedicated team at Arlington National Cemetery, the Army will continue to sustain the 

sacred trust of our citizens. 

We look forward to working with Congress, the Advisory Committee on Arlington National Cemetery, the military service organizations, veterans service organizations, and the public on enabling 

the future of Arlington National Cemetery that continues its long 

tradition of honoring our Nation’s heroes for generations to come. 

Chairman Coffman, this concludes my testimony. Ms. Kelley and 

I will gladly respond to any questions that you or the subcommittee 

members may have. Thank you. 

[The prepared statement of Ms. Durham-Aguilera can be found 

in the Appendix on page 57.] 

Mr. COFFMAN. Ms. Kelley. 

Ms. KELLEY. Yes, sir. 

Mr. COFFMAN. Very good. Are you ready to answer questions? 

Okay. Ms. Durham-Aguilera, do you feel confident that you have 

done everything you can to remain inclusive and to not turn deserving veterans away, while still keeping the cemetery open for, 

sadly, our inevitable future war dead? 

Ms. DURHAM-AGUILERA. Thank you, Chairman Coffman. It is a 

tough reality. You know, the current veteran population is over 20 

million. The retiree population is over 2 million. The total force, Active and Reserve, today is over 2 million. Right now, today, we 

have around 100,000 available burial spaces. We cannot serve that 

population in any event. 

There are numerous other options for veterans, to include the 

wonderful cemeteries from the VANCA [Veterans Affairs National 

Cemeteries Administration] as well as the State-run cemeteries. 

We do believe that we are looking at every possibility in what we 

can do, but we also know that we cannot serve that entire population no matter what. So we are looking to see what can we do 

in the near future. 

But one thing that we know, we are filling up every day. Within 

the next 3 to 4 years, Section 60 that a lot of people identify with, 

without any changes, it will be closed. So trying to get to that reality gives those hard choices is on our minds every single day as 

we go out and lay our veterans and patriots to rest. 

Thank you. 

Mr. COFFMAN. Ms. Kelley, do you have any additional comments 

on that? 

Ms. KELLEY. I would only add that what we continue to do at the 

cemetery is efficiently and effectively manage space with what we 

have control over today and that all considerations are given to 

maximizing our ability to serve veterans and their families. And so 

we make decisions every single day in our planning processes and 

how we utilize the existing acreage that we have to effectively ensure we continue to provide that open and active experience that 

the public wants us to be. 
16 

Thank you, sir. 

Mr. COFFMAN. We know that you have considerable aboveground 

space at Arlington National Cemetery. Is this still a good way to 

extend the life of Arlington National Cemetery, if more columbariums—did I say that right?—columbarium or niche wall space is 

developed to serve various populations? 

Ms. DURHAM-AGUILERA. So thank you, Chairman Coffman. So 

today, in Arlington National Cemetery, we have about 64,000 available belowground spaces. We have around 37,000 spaces available 

in the columbariums or the niche walls. The trends that we have 

seen over the last 5 years are very similar to what the VANCA is 

seeing, is that of the people that are going to be laid at rest at Arlington National Cemetery, about a third of them want to be buried 

in a columbarium or the niche walls. Again, it depends on their eligibility. About a third choose to have their cremated remains buried below ground. And then the other third are the traditional casket. 

So as we plan for the Millennium Expansion, which will be open 

later on this year, and as we are planning for the Southern Expansion, those were the trends that we are keeping in mind for our design. 

Now, as far as expanding more columbariums or niche walls at 

Arlington National Cemetery, there is few spaces where we could 

do that today. One of the things, too, that the VA considers is keeping niche walls to a certain height so that people can reach them. 

People want to come and put their hands on the niche cover of 

their loved one. So you can’t build them too high or people can’t 

do that and make that connection. So that is another consideration. 

But we cannot do that as our solution, our only solution to be able 

to keep Arlington National Cemetery, you know, open well into the 

future. 

Thank you. 

Mr. COFFMAN. Ms. Kelley, do you have any additional comments 

on that? 

Ms. KELLEY. I would also add that the look and feel of the cemetery. As, Chairman, you described it as iconic in your opening 

statement. And I think the executive director and I, and certainly 

the Army, feel very strongly the same way. And we would want to 

balance the amount of aboveground space that is created so that 

we don’t lose that iconic look and feel of what Arlington is today. 

Mr. COFFMAN. Okay. General Bacon, you are now recognized for 

5 minutes. 

Mr. BACON. Thank you very much. 

And I appreciate you both coming back. You really educated me 

the last time you were here, so I really appreciated the information 

and the truth. 

We’ve got to make a hard choice here. Before I ask you a question, I just want to say that I was a flagbearer 12 times at Arlington. It is a special place, and I think we have to preserve it for our 

future Medal of Honor winners and those killed in action. And I 

also want to just thank you for what you are doing for Nebraska. 

The Omaha National Cemetery will be the iconic place as far as 

Nebraska, and it has really come along very well. So that will be 
17 

where I will be buried eventually. Hopefully a long time from now. 

I will kick the can as long as I can here on that. 

But I just want to say with clarity that I think it is an absolute 

necessity that we preserve Arlington National Cemetery for those 

killed in action or the line of duty. I could see there could be a difference there. And I think that is a good discussion point, or those 

who have earned the Medal of Honor or a like type of award. And 

if we don’t do that, I think we have made a bad choice. I mean, 

this should be the ultimate place that we recognize those who have 

paid that ultimate sacrifice, and no other place is like Arlington for 

that. 

And to make that decision means it is a decision. It is a decision 

to not let that happen 20 years from now, 40 years from now, 

whenever that may be. So I think we have to make that decision 

now, in my humble view. And one of the choices that we heard earlier was that we should block off a segment of Arlington for Medal 

of Honor winners and killed in action, but don’t change the criteria 

or tweak the criteria a little bit. What is the reality of that decision 

if we went down that path? 

Ms. DURHAM-AGUILERA. So thank you, Senator. It won’t make 

any difference. 

Mr. BACON. Don’t call me a Senator. That is illegal. 

[Laughter.] 

Ms. DURHAM-AGUILERA. I am sorry. 

Mr. BACON. Sorry. We have to push back on that. 

Ms. DURHAM-AGUILERA. I will try to get over that embarrassment. 

So, Congressman Bacon, thank you very much. It won’t make 

any difference. It would be pretty hard to call off that segment. 

How big is that segment going to be, when we only have a certain 

number of spaces to make any meaningful difference but just still 

try to take care of our Medal of Honor, killed in action, those who 

perish in other tragedies, like the USS Fitzgerald, last year, or the 

C–130. You know, God willing, we won’t have a large number of 

that population, but we have a large number of our currently eligible population right now. Twenty million right now. 

So it really, realistically, would not make a meaningful difference 

to try to just hold just a small section, or however the case may 

be, for that category of people. 

Thank you. 

Mr. BACON. It would probably have a minor impact, so I am 

hearing. 

Ms. DURHAM-AGUILERA. Yes, sir. 

Mr. BACON. Right. 

Ma’am, anything to add? 

Ms. KELLEY. I think in our previous discussions and certainly in 

the documents that you have in front of you, you really see the difference that we are talking about. Holding space for those small 

populations is certainly doable, but does not fix the larger issue, 

which is the extraordinary demand of the other eligible populations. So, really, it is an untenable fix. 

Mr. BACON. I am just thinking, last year, we lost 80 people in 

training accidents. So if we went with line of duty, I just feel like 

this is what Arlington was reserved for, for the highest levels of re-
18 

spect and those who did that. And let’s be honest, a no decision is 

a decision, and it is not the best decision. 

Thank you very much. 

Mr. COFFMAN. Thank you, General Bacon. 

Can you walk us through—either one of you, could one of you 

walk us through the survey results that you did, just quickly, in 

terms of the different categories? 

Ms. Kelley. 

Ms. KELLEY. Mr. Chairman, I would be happy to. In front of you, 

the document speaks to three primary points that are germane to 

this discussion. The top left speaks to the challenge, and that is the 

graphic that shows you the—when we would close. And so if you 

look on the top left, we talk about the fact that, with no changes, 

we would be out of space in the early 2040s. If we were to get 

Southern Expansion, that can push us another 10-ish years. But 

therein lies the challenge, because that does not net us a significant gain. And so that is what we are illustrating. 

We went out with our survey to explain that challenge to the 

public, to veteran service organizations, military service organizations, and anyone else who wanted to participate. And what you 

see in the top right is the themes that came as a result of that survey. 

Now, in the survey, we asked open and honest questions about 

eligibility. We wanted feedback on whether people understood it, 

understood what it was today, and understood the challenge that 

the executive director and I are talking about, which is the fact 

that we can’t serve the full population who is eligible today, we are 

closing down the available space. And so in the top right, you can 

see the preponderance of respondents felt very strongly about preserving Arlington open and active well into the future. And that is 

important for us because that tells us we have to think about 

changes that allow us to do that. 

And the survey response centers on significant categories where 

people felt very strongly. Killed in action, Medal of Honor, high 

award recipients, former POW, or perish on Active Duty were 

clearly the categories that the respondents of our first survey felt 

very strongly about. And those have been consistent in our dialogue. It is very telling to see where those percentages laid out, sir. 

Mr. COFFMAN. Well, thank you. 

And let me just say as someone who—as a military retiree, I 

don’t feel that—I want to preserve Arlington Cemetery, first and 

foremost, for those killed in action or those who are lost in Active 

Duty. I have, you know, known soldiers and Marines during my career who were lost in training accidents, and I honor their loss as 

much as I do those killed in action, for a number of reasons that 

I don’t need to go into today. 

I believe, to the American people, that when they associate the 

Arlington National Cemetery, they do so in thinking about our war 

dead. I mean, I think that that is the association. And so if we go 

beyond that to some degree, to Medal of Honor winners or significant valor awards, POWs, I would think, if we do family members—I can’t remember where that is on the survey. But I think 

it has to be limited. And I do not think that opening a noncontiguous annex or noncontiguous cemetery will have the same value to 
19 

the American people as Arlington National Cemetery does. I just 

don’t think, even if you do all the honors. 

We do all the honors at Fort Logan National Cemetery in Colorado. And it is not Arlington. But my father, late father, a World 

War II, Korean war veteran, highly decorated, is interred there, 

buried there. And I think that that is highly appropriate. He was 

not killed in action. He lived a full life. And so that is where I sort 

of am right now. 

Are there any other comments that you would like to make at 

this time in closing? 

Ms. DURHAM-AGUILERA. So, Chairman Coffman, just a couple of 

comments. Now, first, our process going forward is to launch a second survey within the next few weeks. We will have it open a minimum of 60 days. We could adjust based on the feedback that we 

get. 

After we are able to analyze the results of that next survey, we 

will put that all together, and then I intend to go to the Secretary 

of the Army and provide the results of that, plus recommendations. 

He intends to discuss any possible changes with his service colleagues from the other branches of the armed services and the 

Coast Guard, and then, of course, the Secretary of Defense. He also 

intends that, at that time, we also have further discussions with 

Congress. So that is the focus of our way ahead. 

In the meantime, we will continue to do that great honor. We 

talk about it every day, about what an honor it is to serve at Arlington National Cemetery and take care of our veterans and patriots. Thank you. 

Mr. COFFMAN. Ms. Kelley. 

Ms. KELLEY. I would just like to thank you for the opportunity 

to talk about this challenge. And the executive director is exactly 

right, we need to continue the open dialogue and we will. 

Mr. COFFMAN. Sure. 

Ms. KELLEY. And we will continue to serve as best we can each 

day. Thank you. 

Mr. COFFMAN. And I just want to say, if we are going to keep 

Arlington there for generations to come, those who have been lost 

or who have made the ultimate sacrifice in defense of our freedom, 

then we are going to have to make some tough decisions. And I am 

prepared to do that. 

I wish to thank all of the witnesses for their testimony today on 

this important issue. 

There being no further business, the subcommittee stands adjourned. 

[Whereupon, at 11:58 a.m., the subcommittee was adjourned.] 

A P P E N D I X 

MARCH 8, 2018 

PREPARED STATEMENTS SUBMITTED FOR THE RECORD 

MARCH 8, 2018 

(25) 

Opening Remarks - Chairman Mike Coffman 

Military Personnel Subcommittee Hearing 

Arlington National Cemetery 

March 8, 2018 

I want to welcome everyone to this morning's Military Personnel 

Subcommittee hearing. The purpose oftoday's hearing is to receive testimony 

from stakeholders and Department officials on the future of Arlington National 

Cemetery. This iconic resting place for generations of brave men and women who 

have served their country is truly a national treasure. During its 153 year history, 

more than 400,000 people have been interred or inumed at the cemetery. 

Unfortunately, the cemetery is rapidly running out of space. If nothing is done, in a 

matter of 23 short years, the cemetery will be closed to new burials. 

In response to a congressional mandate, last year the Secretary of Army 

provided a report on Arlington National Cemetery's capacity. The report makes 

clear that action is required if we hope to preserve Arlington as an active cemetery. 

I look forward to hearing from our two panels about their recommendations 

on how best to preserve Arlington National Cemetery. For our first panel, 

comprised of military and veteran service organizations, I look forward to hearing 

the views of the veterans and active service members who will be directly 

impacted by any decisions regarding changes to eligibility criteria. I also look 

forward to hearing your members' ideas on how best to preserve Arlington 

National Cemetery as an active cemetery well into the future. For our second 

panel, consisting ofthe leadership of Arlington National Cemetery, I look forward 

to hearing what steps have been taken to exhaustively research the capacity issue 

and what options are available to maximize both eligibility and the life of the 

cemetery. 

Before I introduce our first panel, let me offer the Ranking Member, Ms. 

Speier, an opportunity to make her opening remarks. 
26 

M 

Military Officers Association of America 

STATEMENT 

of the 

MILITARY OFFICERS ASSOCIATION OF AMERICA 

POLICY POSITION 

on 

The FUTURE of ARLINGTON NATIONAL CEMETERY 

11Sth Congress 

before the 

MILITARY PERSONNEL SUBCOMMITTEE of the 

U.S. HOUSE COMMITTEE on ARMED SERVICES 

March 8, 2018 

Presented by 

Mr. Forrest Allen 

Associate Director of Government Relations 

NEVER STOP SERVING. 
27 

CHAIRMAN COFFMAN, RANKING MEMBER SPEIER, and other distinguished members of 

the Military Personnel Subcommittee of the House Armed Services Committee, on behalf of 

the Military Officers Association of America (MOAA), I am grateful for the opportunity to 

present MOAA's position concerning the future of Arlington National Cemetery. 

With finite years of capacity for new burials remaining at Arlington National Cemetery, it 

is important to maintain the dignity of burial at the cemetery, respect end-of-life plans 

for the currently eligible veteran population, and, if possible, take reasonable steps 

toward extending the life of the cemetery for future servicemembers. 

MOAA commends the secretary of the Army, Dr. Mark Esper; congressional committees; 

the Advisory Committee on Arlington National Cemetery (A CAN C) members; and other 

cemetery officials for making significant efforts to include all stakeholders in the 

discussion about capacity concerns. Though not required, soliciting opinions from the 

military and veteran communities is greatly appreciated. 

MOAA does not receive any grants or contracts from the federal government. 

PRESERVING THE PROMISE AND DIGNITY OF ARLINGTON NATIONAL CEMETERY 

(AN C) 

It is fitting the committee named today's hearing "Preserving the Promise." We believe 

that to be a common goal of all interested parties on this matter. To MOAA, preserving 

the promise of the cemetery is to resolve to allow those in the currently eligible 

population with expectations of interment or inurnment at those hallowed grounds to 

execute their end-of-life plans. No promise exists that the cemetery will remain open for 

new burials forever. Nor is there a promise that future servicemembers, even retirees, 

will have the option for burial there. While we may all wish for such longevity in burial 

opportunities, physical realities lead us to several conclusions about the future of AN C. 

A formal, dignified setting exists at ANC, developed through many years of deliberate 

upkeep and through the virtue of those buried at the site. While many other cemeteries 

across the nation serve a similar purpose in honoring those who served, ANC has a 

special connotation. It is our desire to see such aura of reflection and remembrance 

preserved to the greatest extent possible. 

The sacred history of ANC must not be tarnished by burial practices inconsistent with 

the current honors. Trends in burial preferences have changed in recent years; with more 

individuals preferring inurnment, the establishment of endless niche walls - though an 

option for maximizing burial opportunities - would detract from the aesthetics and aura 

of the grounds. Further, inurnment does not necessarily mean significantly less space is 

2 
28 

consumed, as the ACANC has indicated a majority of inurnments are still in-ground 

burials. As burial preferences change, we expect ANC to accommodate those wishes 

within reason. 

EXTENDING THE LIFE OF THE CEMETERY 

Expansion 

MOAA is pleased with the efforts to analyze contiguous parcels of land for potential 

expansion opportunities. Several parcels of land seem like logical and reasonable options 

for further investigation, namely properties adjacent to the cemetery owned by the 

National Park Service, Joint Base Myer-Henderson Hall, and the Department of Defense 

(DoD). Option 2B of the February 2017 ACANC report to Congress (Public Law 114-

158) supports the transfer of additional adjacent federal lands to AN C. With every four 

acres of land adding roughly one year of life to the cemetery, this could realistically delay 

reaching capacity for another decade or more, which is an estimated one-third of the 

current lifespan. 

Nonetheless, we recognize the fiscal and temporal limits of pursuing such an option. 

And, in the end, expansion to the available contiguous land would provide only marginal 

extension of the cemetery's lifespan in terms of new burials when looking out well into 

the future, which the ACANC has taken to mean more than 100 years. 

Noncontiguous land acquisition and development merits further discussion and 

consideration as well. Locations such as Gettysburg, Pa., or Quantico, Va., easily could 

serve as dignified burial sites with the same degree of repute bestowed upon the original 

AN C. While such a cemetery admittedly would not possess the same feel as ANC proper 

at the outset, there is potential to develop such an aura over time. After all, the ANC we 

know today did not develop overnight. Option 2C of the February 2017 ACANC report 

to Congress (Public Law 114-158) suggests the establishment of a new DoD national 

cemetery at a new location. This could serve as the starting point for noncontiguous 

expansion. 

As shown in the initial ACANC and MOAA survey results, there is no single dominant 

reason why individuals choose to be buried at ANC compared to other veteran 

cemeteries. This is significant because it illustrates the difficulty in creating an analogous 

cemetery option if Congress decides to restrict eligibility. 

Other national cemeteries run by the Department of Veterans Affairs clearly satisfy the 

needs of a significant portion of the veteran population, and MOAA is pleased to see the 

continued development of those cemeteries as well. Yet these alternative resting places 

for retirees, veterans, and those killed in action do not necessarily hold the same 

3 
29 

connotation as ANC, whether because of the rites and ceremonies performed at ANC or 

the special nature of the location. Thus, any acquisition of noncontiguous land would 

need a thorough rubric to come close to matching the aesthetic appeal and historical 

meaning of the original cemetery. 

Expansion of the cemetery grounds, contiguously or not, is a viable path forward and is 

the preferred method of extending the life of AN C. While a costly and time-consuming 

undertaking, this clearly is preferable to significantly restricting eligibility, as indicated by 

MOAA members. There is urgency in deciding and acting on any option that will extend 

the life of the cemetery by means of adding land. With the current burial plots expected 

to run out in roughly two to three decades, the land acquisition and development 

process must begin in the very near future. 

Eligibility Restrictions 

MOAA does not oppose reserving a select number of gravesites for those who are killed 

in action or earn a particular award of high honor. However, the expectation and earned 

right to be laid to rest at ANC for the currently eligible population should not be 

exchanged for an active duty servicemember who dies from a noncombat-related 

incident 80 years in the future. 

The ACANC's plan to carry out a second survey in spring of 2018 is of great interest to 

MOAA. The targeted survey will provide fantastic perspective on what a broad segment 

of the military and veteran community perceive to be an appropriate cut-off point, if any, 

in terms of eligibility. 

MOAA believes that if the survey results show eligibility restrictions are desirable, there 

should at a minimum be a reinstatement of a reservation system for plots and 

columbarium spaces to allow those who already have made plans to have their wishes 

honored. 

4 
30 

POLICY RECOMMENDATIONS 

MOM's position on the future of ANC is informed by engagement with our membership 

on the issue. We conducted a survey of our membership in 2016 to better understand 

our members' preferences on the topics of restricting eligibility and the eventual 

unavailability of space for new burials. 

The results provide good perspective on the difficulty policymakers have in deciding how 

to go forward. The variance in preferences underscores the divisiveness of the topic, 

particularly when it comes to eligibility. 

The survey, summarized in the following graphic, provided data reflective of MOAA's 

position on how best to handle the future lack of new burial sites at AN C. Participants 

overwhelmingly rejected the idea of restricting military retirees, with the significant 

majority preferring expansion options as the initial course of action. Further, most 

participants favored continued current eligibility, at least in the near term, even if that 

means closing ANC to future burials once it reaches capacity. 

5 
31 

There Is no clear consenws on thllc future of ANC' 

6 
32 

While the ACANC is tasked with exploring ways to extend the life of ANC well into the 

future, we believe there exists a certain level of comfort and understanding that, 

whether changes are made or not, space for new burials will run out at some point. 

Although ACANC members made valuable and necessary evaluative forecasts about the 

life of the cemetery with different eligibility standards, there is reason to doubt any 

projection many decades into the future. To assume there will be no major escalating 

conflict in the next century, while we may wish it to be true, would disagree with our 

nation's military history. Further, the nature of warfare is likely to change over the 

duration of these projections. Therefore, we cannot summarily conclude that any 

particular option will guarantee an extension well into the future. 

To best honor the promise of ANC, MOAA recommends: 

• Congress not take action restricting eligibility for the military retiree population, 

other than reserving a set number of plots for specific honorees, such as those killed 

in action or those who receive a Medal of Honor; 

• Congress appropriate funds to undertake acquisition and development of adjacent 

land, including funding of the Southern Expansion project currently underway; and 

• Congress appropriate funds for the study and eventual acquisition of noncontiguous 

land to be used as an Arlington annex. 

CONCLUSION 

MOAA appreciates the Subcommittee on Military Personnel for holding this hearing to 

examine the options for extending the promise and meaning of AN C. We are grateful for 

the full commitment to exploring all potential courses of action on this issue and eagerly 

await the advisory committee and secretary of the Army's final recommendation to 

Congress thereafter. Similarly, we look forward to seeing the results of a second survey, 

which will more clearly delineate burial eligibility preferences for a broad, interested 

population. Thank you for the opportunity to submit testimony on behalf of our 

membership. 

7 
33 

Forrest Allen 

Forrest Allen joined the Military Officers Association of America in 2013 after graduating from 

Hampden-Sydney College in Virginia with a Bachelor of Arts in Foreign Affairs. He also earned 

a master's degree in public policy, focusing on national security, from George Mason University. 

Forrest supports MOAA's mission by focusing on health care and veterans' legislative issues. 

Additionally, he plays a key role in legislative research and analysis for MOAA's Government 

Relations team. F(mest also serves as Co-Chair of the Military Coalition Tax Committee. 

Positions Held at MOAA: 

Associate Director, Government Relations 

Manager, Member Service Center 

Member Service Representative 
34 

DISCLOSURE FORM FOR WITNESSES 

COMMITTEE ON ARMED SERVICES 

U.S. HOUSE OF REPRESENTATIVES 

INSTRUCTION TO WITNESSES: Rule ll, clause 2(g)(5), of the Rules of the U.S. 

House of Representatives for the ll5'h Congress requires nongovernmental witnesses 

appearing before House committees to include in their written statements a curriculum 

vitae and a disclosure of the amount and source of any federal contracts or grants 

(including subcontracts and subgrants), or contracts or payments originating with a 

foreign government, received during the current and two previous calendar years either 

by the witness or by an entity represented by the witness and related to the subject matter 

of the hearing. This form is intended to assist witnesses appearing before the House 

Committee on Armed Services in complying with the House rule. Please note that a copy 

of these statements, with appropriate redactions to protect the witness's personal privacy 

(including home address and phone number) will be made publicly available in electronic 

form not later than one day after the witness's appearance before the committee. 

Witnesses may list additional grants, contracts, or payments on additional sheets, if 

necessary. 

Witness name: George Forrest Allen 

Capacity in which appearing: (check one) 

Orndividual 

~Representative 

If appearing in a representative capacity, name of the company, association or other 

entity being represented: Military Officers Association of America (MOAA) 

Federal Contract or Grant Information: If you or the entity you represent before the 

Committee on Armed Services has contracts (including subcontracts) or grants (including 

subgrants) with the federal government, please provide the following information: 

2018 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 
35 

2017 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 

2016 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 

Foreign Government Contract or Payment Information: If you or the entity you 

represent before the Committee on Armed Services has contracts or payments originating 

from a foreign government, please provide the following information: 

2018 

Foreign contract/ Foreign government Dollar value Subject of contract or 

payment payment 

2 
36 

2017 

Foreign contract/ Foreign Dollar value Subject of contract or 

payment government payment 

2016 

Foreign contract/ Foreign Dollar value Subject of contract or 

payment government payment 

3 
37 

STATEMENT OF 

GERARDO A VILA, DEPUTY DIRECTOR 

VETERANS AFFAIRS AND REHABILITATION DIVISION 

THE AMERICAN LEGION 

BEFORE THE 

SUBCOMMITTEE ON MILITARY PERSONNEL 

ARMED SERVICES COMMITTEE 

UNITED STATES HOUSE OF REPRESENTATIVES 

ON 

"ARLINGTON NATIONAL CEMETERY" 

MARCH 8, 2018 
38 

STATEMENT OF 

GERARDO A VILA, DEPUTY DIRECTOR, 

VETERANS AFFAIRS AND REHABILITATION DIVISION 

THE AMERICAN LEGION 

BEFORE THE 

SUBCOMMITTEE ON MILITARY PERSONNEL 

ARMED SERVICES COMMITTEE 

UNITED STATES HOUSE OF REPRESENTATIVES 

ON 

"ARLINGTON NATIONAL CEMETERY" 

MARCH 8, 2018 

"It is for us, the living, rather, to be dedicated here to the unfinished work which they who 

fought here, have, thus far, so nobly advanced. It is rather for us to be here dedicated to the 

great task remaining before us that from these honored dead we take increased devotion to that 

cause for which they here gave the last full measure of devotion - that we here highly resolve 

that these dead shall not have died in vain - that this nation, under God, shall have a new birth 

of freedom- and that government of the people, by the people, for the people, shall not perish 

from the earth."- Abraham Lincoln's Gettysburg Address 

Chairman Coffman, Ranking Member Speier and distinguished members of the Subcommittee on 

Military Personnel; on behalf ofNational Commander Denise H. Rohan and the 2 million members 

of The American Legion, the largest patriotic service organization for veterans serving every man 

and woman who has worn the uniform for this country, thank you for the opportunity to testify 

regarding the future of Arlington National Cemetery. 

President Lincoln's epochal words dedicating the cemetery at Gettysburg in the wake ofthat battle 

should be remembered by all as we turn our attention to preserving Arlington National Cemetery 

(ANC). Today, ANC has become the national symbol most reflective and embodying of the intent 

President Lincoln expressed on the field at Gettysburg that day. 

ANC did not start out as the iconic symbol that it is today; rather, the cemetery has evolved over 

its 150-year history. ANC began as one of over 60 cemeteries created for those who died in the 

Civil War. A practical necessity to manage the unprecedented number of casualties during the war, 

the cemeteries were created to ensure proper burial for servicemembers whose families could not 

atTord to bring the remains of their Jallen loved ones home. Since that time, ANC has grown to 

become unique among our national cemeteries and landmarks. Its iconic landscape of neatly lined 

white markers stretching across the rolling hillsides serves as a tribute to the service and sacrifice 

of evety individual laid to rest within the hallowed grounds. 

The American Legion's members recognized this at our Ninety-Eighth National Convention in 

Cincinnati, Ohio. The American Legion approved Resolution No. 93: Codify Burial Eligihility.for 

Arlington National Cemetery, "urges Congress to codify eligibility criteria for burial at Arlington 

National Cemetery and that such burial be restricted to service members who die on active-duty; 

2 
39 

to our most decorated veterans to include recipients of the Purple Heart; former members of the 

armed forces separated from the military with a physical disability of 30 percent or more before 

October I, 1949; and to veterans who spent full careers in uniform, and to their spouses and eligible 

children; to former prisoners of war; and for the President or former Presidents as Commanders in 

Chief of the Armed Forces." 

In adopting Resolution 93, The American Legion recognized the reality that ANC is running out 

of space. In its annual report to Congress, The Future of Arlington National Cemetery: Report on 

the Cemetery "s Interment and lnurnment Capacity 2017; ANC is projected to reach capacity in the 

early 2040s. This projection is based on the average ceremonies conducted annually, maintaining 

the cuJTent eligibility criteria, and the cemetery's current footprint. At the current rate, if no action 

is taken, most veterans from the recent wars in Iraq and Afghanistan, to include II living Medal 

of Honor recipients, will more than likely not have the option to be buried at ANC. If we do 

nothing, the reality is ANC will cease to operate as it has throughout its !50-year history as a final 

resting place for servicemembers and veterans. 

To extend the life of ANC as a cemetery capable of memorializing our nation's heroes into the 

future, it will require difficult decisions to be made and a conscious effort toward compromise 

from all concerned stakeholders. The American Legion has recognized this sobering reality and 

continues to evolve its stance to ensure ANC will be preserved for generations of not only veterans 

having served their country, but for all Americans. The American Legion understands the 

eligibility criteria for ANC, as our nation's most sacred shrine, needs to be codified in order to 

assure compliance and fairness to guarantee remaining spaces are used prudently and distributed 

judiciously. In addition to changes to eligibility criteria for interment and inurnment, we must also 

look to other avenues including: pursuing expansion opportunities where available, and alternative 

options for maximizing the current space. 

First, restricting the eligibility criteria will have the greatest impact and immediate results in 

ensuring the cemetery is capable of accomplishing its mission well in the future. This option is 

the most controversial and potentially impacts millions of veterans who have wished to make ANC 

their final resting place. ANC already has narrowed criteria for eligibility when compared to other 

cemeteries operated by the National Cemetery Administration (NCA). In addition to narrowed 

eligibility, ANC differentiates criteria for in-ground and aboveground eligibility. Only those killed 

in action, died on active duty, retirees, and those with qualifying valor awards may be placed inground. 

Historical data shows approximately one percent of all retirees final resting place is ANC; with 

the current veteran population estimated around twenty million, we can easily anticipate capacity 

is not there to meet the future demand. The removal of retirees from the current eligibility criteria 

is a sensitive subject tor members of The American Legion and one ANC is well aware oJI While 

The American Legion recognizes the necessity of restricting eligibility criteria in accordance with 

our resolution, we must emphasize retirees and veterans will need to be educated on ANC's 

challenges and options for their final resting place in other veteran cemeteries operated by NCA 

across the nation. 
40 

Secondarily, the option of expanding comes with its own set of challenges, namely: available real 

estate, time, and money. Due to its geographical location, there is very little room for ANC to 

expand its current footprint. The Millennium Project expansion, which will provide an additional 

27 acres with an estimated 27,282 spaces, is the cemetery's first expansion since 1976 with a 

budget of $8!.7 million. Currently, another expansion project is under consideration with a 

proposed budget of $274 million. We support these expansion projects to increase the overall 

capacity of ANC. 

Finally, in addition to tailoring eligibility in accordance with our resolution and increasing 

capacity, we support the proposal for exploring alternative ideas for maximizing the current space 

with the use of new burial techniques and increase use of aboveground inurnments. The American 

Legion shares with the U.S. Army, its expressed concern in using new and aboveground burial 

techniques fearing it will alter the architectural design of the cemetery and make it less 

aesthetically pleasing. However, we remain open to changes that do not detract from ANC and 

would add beneficial use to veterans and the nation. 

All of these options present tough and unique challenges, but we must all now come to the 

realization that something must be done. We must now take action. We must also understand that 

failure to take action is making a decision, the decision to allow Arlington National Cemetery to 

reach capacity and cease operating as it has since its inception. 

The American Legion supports immediate action to ensure the future legacy of Arlington National 

Cemetery is protected for future generations. We believe in order to make a significant impact all 

three proposed options should be considered. Changing the eligibility criteria will require 

extensive outreach in order to educate those veterans, servicemembers and their eligible 

dependents that may be impacted on the tough challenges with regards to capacity. Expansion 

projects should be explored and pursued, even considerations that would exist independent of the 

current footprint at another location within close proximity to our nation's capital. 

The American Legion's own 100 year history is integrally intertwined with endeavors to preserve 

the legacy of this nation's serviccmembers. With the creation of the Graves Registration and 

Memorial AtTairs Committee in 1962 to the current National Cemetery Committee, The American 

Legion has maintained professional stafT dedicated to formulate and recommend to The American 

Legion's National Executive Committee, through the Veterans Affairs & Rehabilitation 

Commission, polices, plans and programs as they relate to Department of Veterans AJTairs' 

national cemeteries, and the interment of veterans, military and their dependents. This includes 

Arlington National Cemetery administered by the Department of the Army. 

We would like to take this opportunity to acknowledge and say thank you to Arlington National 

Cemetery and the Advisory Committee lor including The American Legion and the Veteran 

Service Organization (VSO) community in this delicate and extremely important discussion. 

As always, The American Legion thanks this subcommittee for the opportunity to elucidate the 

position of the 2 million veteran members of this organization. For additional information 

regarding this testimony, please contact Mr. Larry Lohmann, Assistant Director of The American 

Legion's Legislative Division at (202) 861-2700 or llohmann@legion.org. 

4 
41 

BIOGRAPHY OF GERARDO A VILA 

DEPUTY DIRECTOR, MEB, PEB & DOD BOARDS 

THE AMERICAN LEGION 

VETERANS AFFAIRS AND REHABILITATION DIVISION 

Gerardo Avila joined The American Legion in March of2013. Currently, Gerardo serves as the 

Deputy Director for Medical Evaluation Board (MEB), Physical Evaluation Board (PEB) and 

Department of Defense (DoD) Boards. 

Gerardo enlisted into the An11y in October 1991. He completed Basic Combat Training and 

Advanced Individual Training at Fort Benning, GA and was awarded the military occupational 

specialty of llB, Infantry. 

Gerardo has held leadership positions from team leader to Platoon Sergeant. His first duty 

assignment was as M60 machine gunner and scout team leader with the 25'h Infantry Division 

Light, Schofield Barracks, HI. He was then assigned to the !Olst Airborne Division, Fort 

Campbell, KY where he served as infantry and pathfinder team leader. His next assignment was 

with the I'' Bn 5'h Infantry Regiment, Schofield BmTacks, HI as squad leader. He was then 

assigned as Platoon Sergeant in the l st Brigade 25'h Infantry Division "Stryker", Fort Lewis, W A 

where he deployed in suppmi of Operation Iraqi freedom in 2004. His final assignment was as 

senior enlisted advisor at the United States Military Academy Preparatory SchooL Fort 

Monmouth, NJ and West Point, NY. Gerardo retired in December 2012. 

Gerardo's military awards include The Legion of Merit, Purple Heart, Meritorious Service Medal 

2"J Award, Anny Commendation Medal 5111 Award, Anny Achievement Medal 4111 Award, The 

Expert Infantryman's Badge, Senior Parachutes Badge, Air Assault Badge, Ranger Tab, and The 

Pathfinder Badge. 

Gerardo's military education includes the Primary Leadership Development Course, Basic NonCommissioned Officers Course, Advanced Non-Commissioned Officers Course, Battle Staff 

Course, Airborne School, Ranger School, Air Assault School, Pathfinder School, and 

Jumpmastcr School. 

Gerardo resides in Triangle, Virginia with his wife Jaime and is a member of The American 

Legion George Washington Post 1 in Washington DC. 
42 

STATEMENT OF 

JOHN TOWLES, DEPUTY DIRECTOR 

NATIONAL LEGISLATIVE SERVICE 

VETERANS OF FOREIGN WARS OF THE UNITED STATES 

BEFORE 

SUBCOMMITTEE ON MILITARY PERSONNEL 

COMMITTEE ON ARMED SERVICES 

UNITED STATES HOUSE OF REPRESENTATIVES 

WITH RESPECT TO 

"Arlington National Cemetery- Preserving the Promise" 

WASHINGTON, D.C. March 8, 20 18 

Chairman Coftlnan, Ranking Member Speier, and members of the subcommittee, on behalf of 

the 1.7 million men and women of the Veterans of Foreign Wars of the United States (VFW) and 

its Auxiliary, l would like to thank you for the opportunity to testify before this distinguished 

subcommittee to present our views concerning the future of Arlington National Cemetery. 

As the nation's largest war veterans service organization, the VFW proudly represents more than 

300,000 Post-9/11 veterans, and more than 60,000 members of the active duty, National Guard, 

and Reserves. This is why the future of our nation's most hallowed ground is a top priority for 

us. 

In 1967, President Lyndon Johnson requested that the Department of Veterans Affairs (VA) 

conduct a survey of all existing veterans programs, to include veterans' burial and cemetery 

programs administered by both the Department of the Army and VA. A year later, along with the 

National Veterans Advisory Committee which included VFW representation, they delivered a 

report to Congress that paved the way for the transfer of 82 of the Army's 84 cemeteries to VA. 

The only two that remained under the care of the Arn1y were the Soldier's Home National 

Cemetery and Arlington National Cemetery (ANC). 

1967 also saw a significant restriction placed on eligibility due to growing concerns that the 

number of American service members being killed in action during the Vietnam War and rapidly 

aging WWI veterans would fill ANC to capacity. This new re~:,>ulation restricted in-ground 

burials to military personnel who died on active duty, career military retirees, or recipients of the 

highest military awards, such as the Medal of Honor, the Silver Star or the Purple Heart. 

Initially, the VFW vehemently opposed the new eligibility restrictions. In tact, our membership 

was so outraged that we withdrew from the ANC's annual Veterans' Day ceremony that year. 
43 

As a membership organization, the VFW is required to represent the views and preferences of 

our members. In 1967, this meant opposing all proposed eligibility changes. 

Today, however, the VFW is able to consider several options to ensure the longevity of ANC. 

Atler many meetings with top officials within the Office of the Secretary of Defense and the 

Department of the Am1y, as well as surveys and roundtables conducted by ANC, there is only 

one eligibility restriction proposal the VFW supports restricting eligibility to 24 months of 

active-duty service. This does not include those killed in action or the dependents of active-duty 

service members with more than 24 months of service, who must continue to be eligible. 

Enacting this eligibility restriction would make the in-ground interment policy at ANC 

commensurate with that of cemeteries within VA's National Cemetery Administration (NCA) 

and would reduce workload at ANC by approximately 200 burials per year. 

While the VFW acknowledges that restricting eligibility to those killed-in-action or Medal of 

Honor recipients would ensure that ANC remains open in perpetuity, the VFW has an obligation 

to advocate for and preserve the integrity of the option best suited to do the most good for the 

most number of veterans. Restricting eligibility to a very small category of veterans is not 

feasible if the true goal is to provide those who deserve to be laid to rest in America's most 

hallowed grounds the ability to do so, specifically those who are already making end-of-life 

plans based on their current eligibility. 

To the VFW, it is imperative that the way forward include the acquisition of additional space in 

some form or another, as land is a iinite resource, especially in the Washington, D.C., metro 

area. This is why the VFW fully supports the proposed southern expansion, which would add an 

additional 37 to 40 acres to the cemetery and provide approximately 40,000-60,000 new 

gravesites. When combined with the proposed 24-month eligibility restriction, the life of the 

ANC would be extended through 2074. 

As previously stated, there is no easy answer in terms of what happens after 2074 given the 

current land shortage in the area. However, there is one property in the area that may offer a 

solution- The Armed Forces Retirement Home. For the past decade, VFW members have 

donated time and manpower to assist the residents of the Armed Forces Retirement Home by 

helping to maintain the property through various service projects. Every year we go out and we 

see unused space. We see a golf course that is struggling to remain open. We read articles in the 

local press concerning proposals to develop up to 80 acres of excess space on the property for 

commercial use, but have seen such requests go unnoticed. 

The cemetery at the Armed Forces Retirement Home is arguably one of the most historic and 

oldest cemeteries in this country, aside from ANC. From 1861 to 1864, the cemetery accepted 

thousands of soldiers' remains from the Union states, which quickly filled the grounds to 

capacity. An 1874 report on the cemetery chronicled more than 5,600 interments, including 278 

unknown, 125 Confederate prisoners of war, and 117 civilian relatives of the deceased and 

employees of the retirement home. In 1883, more than nine additional acres were added to the 

grounds, bringing the cemetery's total size to nearly sixteen acres. Additionally, the cemetery is 

the final resting place of 21 Medal of Honor recipients. 

2 
44 

Given that the southern expansion would reclaim 40 acres at ANC which would provide an 

additional40,000-60,000 gravesites, then it follows that reclaiming the 80 acres of surplus land 

at the Armed Forces Retirement Home would give us an additional 80,000-120,000 gravesites, 

which would push us well beyond 2074. 

Barring that, the other option is to encourage VA to work with other state and federal partners in 

order to expand the burial space within the NCA's current inventory, along with this committee 

working with your colleagues on the House and Senate Veterans' Affairs and Appropriations 

Committees to provide VA with the funding needed to expand their efforts. Given NCA's 

reluctance to take hold of low-hanging fmit such as the discarded Mare Island Naval Cemetery 

in the San Francisco Bay area, it seems as though it will take more than just giving them 

additional funding in order for them to commit to expanding their current inventory. 

In the end, the men and women who served this nation honorably, as well as their family 

members, deserve to be laid to rest in hallowed ground. It may not have been a consideration 

while they were serving, but it is an honor that they have earned through their blood, sweat, and 

tears. As a nation, we have an obligation to ensure that they, and their sacrifices, are honored as 

thoroughly as possible. 

Chairman Coffman, Ranking Member Speier, this concludes my testimony. Again, I want to 

sincerely thank you and the other members of this subcommittee for the opportunity to testify on 

this important issue, and I look forward to answering any questions that you may have. 

3 
45 

Information Required by Rule Xl2(g)(4) ofthe House of Representatives 

Pursuant to Rule XI2(g)(4) of the House of Representatives, the VFW has not received any 

federal grants in Fiscal Year 2018, nor has it received any federal grants in the two previous 

Fiscal Years. 

The VFW has not received payments or contracts from any foreign governments in the current 

year or preceding two calendar years. 

4 
46 

John N. Towles 

Deputy Director 

National Legislative Service 

Veterans of Foreign Wars of the United States 

John Towles is the Deputy Director of the National Legislative Service for the Veterans of 

Foreign Wars of the United States. Under the direction and guidance of the National Legislative 

Director, it is his responsibility to plan, coordinate, and implement the Vl'W's national 

legislative agenda with members of Congress, their staff and committees, and with other federal 

departments, agencies and organizations. 

John was born at Millington Naval Air Station, Tennessee to a family whose service to this 

nation spans over 240 years. Although John lived in nine states and two countries before the age 

of fifteen, he considers North Carolina home. 

John entered the United States Army in 2004, and served as a 68W - Healthcare Specialist for 

eight years. He is a Veteran of two combat deployments; one in support of Operation Iraqi 

Freedom in 2005 to Mosul, Iraq, and one in support of Operation Enduring Freedom in 2009 to 

Regional Command South, Afghanistan. As a result of combat injuries sustained in Southern 

Afghanistan, he was medically retired from Active Duty in 2012 as a StatT Sergeant. 

Prior to joining the VFW legislative team, John participated in the U.S. House of Representatives 

Wounded WmTior Fellowship program and served lrom 2013-2015 in the District Office of 

Representative Tulsi Gabbard, in Honolulu, Hawaii. 

Following the completion of the fellowship, John served as the National Director for Veterans 

Outreach on the Bernie Sanders 2016 Presidential Campaign, and returned to the Washington 

D.C. office of Representative Gabbard where he served as the Military and Foreign Affairs 

Legislative Assistant. 

Along with assisting in the overall functions of the National Legislative Service, John's primary 

areas of concentration, with regards to Congressional subcommittees, are the Disability 

Assistance and Memorial Affairs subcommittee; and the Military Readiness, and Military 

Personnel subcommittees. 

March 14,2017 
47 

DISCLOSURE FORM FOR WITNESSES 

COMMITTEE ON ARMED SERVICES 

U.S. HOUSE OF REPRESENTATIVES 

INSTRUCTION TO WITNESSES: Rule 11, clause 2(g)(5), of the Rules of the U.S. 

House of Representatives for the 1151

h Congress requires nongovernmental witnesses 

appearing before House committees to include in their written statements a curriculum 

vitae and a disclosure of the amount and source of any federal contracts or grants 

(including subcontracts and subgrants), or contracts or payments originating with a 

foreign government, received during the current and two previous calendar years either 

by the witness or by an entity represented by the witness and related to the subject matter 

of the hearing. This form is intended to assist witnesses appearing before the House 

Committee on Armed Services in complying with the House rule. Please note that a copy 

of these statements, with appropriate redactions to protect the witness's personal privacy 

(including home address and phone number) will be made publicly available in electronic 

form not later than one day after the witness's appearance before the committee. 

Witnesses may list additional grants, contracts, or payments on additional sheets, if 

necessary. 

Capacity in which appearing: (check one) 

Olndividual 

~Representative 

If appearing in a representative capacity, name of the company, association or other 

entity being represented: Veterans of Foreign Wars of the United States 

Federal Contract or Grant Information: If you or the entity you represent before the 

Committee on Armed Services has contracts (including subcontracts) or grants (including 

subgrants) with the federal government, please provide the following information: 

2018 N/A 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 
48 

2017 N/A 

Foreign contracl;l Foreign Dollar value ---~ Subject of contract or 

payment government payment 

-

2016 N/A 

Foreign contracl;l Foreign Dollar value Subject of contract or 

payment _g_overnment ~ayment 

r--
49 

Air Force Association 

Testimony Before the 

House Armed Services Committee, 

Military Personnel Subcommittee 

by 

Colonel (Ret.) Keith W. Zuegel, USAF 

Senior Director, Government Relations 

Air Force Association (AFA) 

8 March 2018 
50 

Chairman Coffman, Ranking Member Speier, Members of the Committee, 

On behalf of the Air Force Association's leadership and our 96,000 

members, the nearly 700,000 Airmen, civilians, and families that we 

represent, and the millions of veterans who have worn Air Force Blue, I am 

honored to testify today on the importance of Arlington National Cemetery. 

We have been involved in this issue for quite some time and routinely 

participate in meetings with the Arlington National Cemetery's Advisory 

Committee for the Secretary of the Army. 

There are an estimated 22 million veterans alive today who served 

honorably and understand the significance of Arlington National Cemetery. 

As the organization that led the financing and construction of the Air Force 

Memorial, which could potentially be encroached by cemetery expansion 

options, we at AFA realize that the surrounding land is finite. Space in this 

hallowed ground is projected to run out in the early 2040s, and a solution 

must be found soon. 

Thank you for holding this hearing and for having this difficult discussion. 

2 
51 

We strongly believe that our nation's decision makers should explore 

an 'all of the above' strategy, to include land expansion and land 

optimization before reducing or curtailing eligibility. It is important to 

keep the cemetery viable as long as possible for future Medal of Honor 

recipients, those killed in combat, and top medal awardees. 

We should strive to obtain surrounding land to expand the present 

cemetery. Although the cemetery's majestic serenity should be largely 

preserved, there are avenues to increase burial locations without losing the 

cemetery's solemn presence. In addition to exploring expansion 

possibilities, more above ground inurnments should be considered. 

As military members age and consider their final resting place, it is 

paramount that this hearing today be followed by quick and decisive action 

from the Secretary of the Army, the Secretary of Defense, and the 

President. We ask for your oversight in making sure this happens. 

Thank you for the invitation to testify today. We thank you for bringing this 

issue before the public, and the Air Force Association is honored and 

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52 

privileged to present testimony to advocate for the continued viability of 

Arlington National Cemetery. We are entrusted with the solemn 

responsibility to care for those men and women that sacrificed so much for 

our great nation, and we are eager to work with the US Congress and the 

Department of Defense on the best way forward for Arlington National 

Cemetery. 

I look forward to your questions. 

4 
53 

Keith W. Zuegel, Colonel (Ret), USAF 

Air Force Association (AFA) 

Senior Director, Government Relations 

Keith Zuege! serves as the Senior Director, Govemment Relations for the Air Force Association 

(AFA) where he develops and executes the Association's aerospace advocacy and promotes a 

dominant United States Air Force on Capitol Hill with the U.S. Congress, Air Force 

Headquarters, Department of Defense (DOD), Department of Veterans Affairs (VA) and with 

other Federal agencies. He collaborates with the Association's Councils, Executive Committee, 

Board of Directors and Convention Delegates to develop, coordinate, and implement, the 

Association's annual Statement of Policy, Issue Papers and Resolutions. He also is a member on 

the Army and Air Force Exchange Retiree Advisory Council (ERAC). 

Prior to joining AF A, Keith served as Senior Vice President at McKeon Group, Inc., a consulting 

firm providing strategic analysis and govemment relations tor defense clients. Upon retiring 

from the Air Force, Keith was the Managing Director, Government Relations for Accenture, a 

global management and technology consulting company, where he was responsible for their 

Defense, Intelligence, Veterans Affairs, and Appropriations. 

Keith Zuege! retired as a Colonel fi·om the U.S. Air Force in June 2010. He served more than 28 

years and was awarded a Silver Star in the Gulf War. His first 12 years, he flew in fighter 

aircraft and logged combat hours. Then, Colonel Zuege! served II years in legislative positions 

in 4 different influential Department of Defense (DOD) congressional offices. From 2007 until 

June 20 I 0, he served as the Director, Congressional Budget and Appropriations Liaison 

(SAF/FML), where he was the Air Force's lead in executing Hill strategy to secure their $170.9 

billion annual budgets and key programs. He was the principal advisor to the Secretary of the Air 

Force and Chief of Staff of the Air Force on all congressional budget and appropriations matters. 

From 2005 to 2007, he was Director, Legislative Affairs, U.S. Joint Forces Command (JFCOM) 

and led their $800 million annual budgets on Capito! Hill and advised the commander on all 

congressional issues. From 2001-2003, he served as the Deputy Legislative Assistant to two 

successive Chairmen, Joint Chiefs of Staff (CJCS), advising the Chairmen and Vice Chainnen 

on Joint congressional issues. From 1998 to 200 I, as Deputy Division Chief; Secretary of the 

Air Force Legislative Liaison (SAF/LL), Keith prepared the Secretary and Chief of Staff of the 

Air Force for hearing testimony and office calls. While in his legislative assignments, Colonel 

Zuege! authored and coordinated numerous legislative strategies, congressional engagements, 

testimony, briefings, and Capito! Hill Messages. Colonel Zuege! was a Joint Specialty Oflicer 

(JSO) who served in three Joint Commands and led strategies in the U.S., Europe, Asia Pacific, 

and Middle East. 

Keith is a 1982 graduate of the United States Air Force Academy in Colorado Springs, CO with 

a Bachelor of Science degree in Management. He has a Masters degree in Business 

Administration from Central Michigan University and a Masters in International Studies Science 

fi·om Deakin University, Australia. He completed the Certificate Program in Legislative Studies, 

Government Affairs Institute (GAl), Georgetown University. 

Keith is a member of the Aircraft Owners' and Pilots' Association (AOPA); Air Force 

Association (AFA); Air Force Sergeants Association (AFSA); American Legion; Boy Scouts of 

America (BSA); Civil Air Patrol (CAP); Military 011icers Association of America (MOAA); and 

the U.S. Air Force Academy (USAFA) Graduates Association. 

Keith is married with three children and lives with his wife, Eva, and their children in 

Springfield, VA. 
54 

DISCLOSURE FORM FOR WITNESSES 

COMMITTI<:E ON ARMED SERVICES 

U.S. HOUSE OF REPRESENTATIVES 

INSTRUCTION TO WITNESSES: Rule 11, clause 2(g)(5), of the Rules of the U.S. 

House of Representatives for the 115'11 Congress requires nongovernmental witnesses 

appearing before House committees to include in their written statements a curriculum 

vitae and a disclosure of the amount and source of any federal contracts or grants 

(including subcontracts and subgrants), or contracts or payments originating with a 

foreign government, received during the current and two previous calendar years either 

by the witness or by an entity represented by the witness and related to the subject matter 

of the hearing. This form is intended to assist witnesses appearing before the House 

Committee on Armed Services in complying with the House rule. Please note that a copy 

of these statements, with appropriate redactions to protect the witness's personal privacy 

(including home address and phone number) will be made publicly available in electronic 

form not later than one day after the witness's appearance before the committee. 

Witnesses may list additional grants, contracts, or payments on additional sheets, if 

necessary. 

Witness name: Keith Wayne Zuege! 

Capacity in which appearing: (check one) 

0Individual 

i8]Representative 

If appearing in a representative capacity, name of the company, association or other 

entity being represented: Air Force Association (AFA) 

Federal Contract or Grant Information: If you or the entity you represent before the 

Committee on Armed Services has contracts (including subcontracts) or grants (including 

subgrants) with the federal government, please provide the following information: 

2018 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 
55 

2017 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 

HQ0034-16-P-0146 Office of Secretary of Defense $111,494 

HQ0034-16-P-0145 Office of Secretary of Defense $52,999,96 

HSHQDC-16-X-00127 Dept of Homeland Security $126,218.27 

Alr Force STEM $161,183.74 

2016 

Federal grant/ Federal agency Dollar value Subject of contract or 

contract grant 

HSHQOC-16-X-00127 Dept of Homeland Security $132,000 

Office of Secretary of Defense $82,000 

Air Force STEM $49,000 

Foreign Government Contract or Payment Information: If you or the entity you 

represent before the Committee on Armed Services has contracts or payments originating 

from a foreign government, please provide the following information: 

2018 

Foreign contract/ Foreign government Dollar value Subject of contract or 

payment payment 

2 
56 

2017 

Foreign contract/ Foreign Dollar value Subject of contract or 

payment government payment 

2016 

Foreign contract/ Foreign Dollar value Subject of contract or 

payment government payment 

3 
57 

RECORD VERSION 

STATEMENT BY 

MS. KAREN DURHAM-AGUILERA 

EXECUTIVE DIRECTOR, ARMY NATIONAL MILITARY CEMETERIES 

BEFORE THE 

SUBCOMMITTEE ON MILITARY PERSONNEL 

COMMITTEE ON ARMED SERVICES 

UNITED STATES HOUSE OF REPRESENTATIVES 

SECOND SESSION, 115TH CONGRESS 

ON ARLINGTON NATIONAL CEMETERY: 

CURRENT OPERATIONS AND FUTURE PLANS TO HONOR THE FALLEN 

MARCH 8, 2018 

NOT FOR PUBLICATION UNTIL RELEASED BY THE 

COMMITTEE ON ARMED SERVICES 
58 

STATEMENT BY MS. KAREN DURHAM-AGUILERA 

INTRODUCTION 

Chairman Coffman, Ranking Member Speier and distinguished members of the 

Subcommittee, thank you for the opportunity to provide a further update to the 

subcommittee. Arlington National Cemetery- as one of this nation's hallowed national 

cemeteries- is an iconic place devoted to honoring the memory of individuals in the armed 

services who made a significant commitment of service to the defense of our nation. Each 

week the cemetery faithfully conducts approximately 150 funeral services on behalf of a 

grateful nation. In fiscal year 2017, Arlington National Cemetery interred nearly 7,100 

active duty service members, veterans and their family members. Arlington National 

Cemetery also annually hosts approximately 3.3 million guests, helping each visitor 

connect to the sacrifices of our military. On behalf of the Cemetery and the Department 

of the Army, I express our deep appreciation for the support provided by Congress over 

these many years. 

THE STATE OF ARLINGTON NATIONAL CEMETERY 

The dedicated staff are honored to conduct Arlington National Cemetery's primary 

mission, to provide a dignified and honorable final resting place for active duty service 

members, eligible veterans, and their families. Our daily mission is threefold: to lay to 

rest- on behalf of a grateful nation -those who have served along with their eligible family 

members; to connect our guests to the cemetery's rich history; and to maintain the 

hallowed grounds in a manner befitting the sacrifice of those who rest in quiet repose. 

We envision a future Arlington National Cemetery that continues well beyond the next few 

decades to honor those who served our great nation. The Army recognizes that the 

cemetery is at a critical point in its history. The cemetery cannot achieve that future with 

physical expansion alone; changes to eligibility combined with expansion will ensure 

Arlington continues to be an active cemetery well into the future, or for the next 150 years. 
59 

Current projections indicate Arlington National Cemetery will be closed for first interments 

by the early 2040s. This means that a veteran from the 1991 Gulf War who lives to his 

or her normal life expectancy will not be able to be interred at Arlington. 

Eligibility for Arlington National Cemetery is a difficult and emotional topic. It is 

also not a new topic. On several occasions during the life of the cemetery, difficult 

decisions have been made to both expand burial space and to restrict eligibility for burial 

in order to extend the life of the cemetery. The last significant change to eligibility was in 

the late 1960s. For decades, the Army has continued to create the means for any veteran, 

with honorable active duty service, to be laid to rest amongst its rolling hills and 

columbaria. The cemetery has expanded its boundaries when possible and incorporated 

modern burial practices in order to accommodate the high demand. Today, we again 

face the reality of the cemetery closing to new burials if we do not further restrict eligibility. 

Beyond Southern Expansion, we do not have the benefit of adjacent land into which we 

can expand and must consider - as others have before us - the difficult task of limiting 

eligibility at Arlington National Cemetery so that our inevitable future war dead may be 

laid to rest alongside their fellow warfighters. 

LEADERSHIP FOCUS AREAS 

As we work to remain an iconic symbol of our nation, we are focused on our day 

to day mission and ensuring that we can remain an active cemetery for as long as 

possible. To do this, for our dedicated team at Arlington National Cemetery, I have 

established three priorities: Readiness, our People, and the Future. 

Readiness is achieved when we set the conditions to have the resources we need, 

when we need them, so that our sacred mission can be accomplished achieving as many 

as 30 services a day. Our management practices must assure confidence and credibility 

to ensure the peace of mind of our veterans and of the taxpayers. We cannot allow 

ourselves to fail those who have given everything for our way of life. Part of the way to 

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achieve improved readiness is through our budget. The Congressional Marks to Arlington 

National Cemetery's fiscal year 2018 budget recognized and supported the increased 

requirements associated with civilian pay increases, contract inflation and security. 

We are acutely aware of our people, both our employees and our guests. Arlington 

National Cemetery operates at a pace that puts pressure on our employees to be nearperfect every day. Over 400,000 are laid to rest at Arlington National Cemetery; of those, 

in the past decade alone, it has been our honor to lay to rest nearly 70,000 of our nation's 

finest individuals. This intense operational tempo must be tempered with time to sustain 

the best training practices and time to take care of our employees - our most valuable 

resource. Additionally, we look to improve the experience for our visitors - by keeping 

them safe and continually developing enhancements to enrich the time they spend with 

us at the Cemetery. 

The Army remains committed to maintaining Arlington National Cemetery as the 

nation's premier military cemetery and national shrine in perpetuity. We are also 

committed to actively serving and honoring our nation's service member, veterans, and 

their families for as long as possible. The Secretary of the Army's February 2017 report 

to Congress explains how spatial constraints limit the life of Arlington as an active 

cemetery and discusses the difficult topics of eligibility and expansion. Key options to 

consider include redefining eligibility criteria for interment and inurnment, considerations 

for additional expansion opportunities beyond current boundaries, and evaluating 

alternative ideas for maximizing the current space within the Cemetery's geographic 

footprint. 

FUTURE OF THE CEMETERY 

The future of Arlington National Cemetery is a challenging and emotional subject 

that requires engagement with the American public to set the proper course. To ensure 

we hear as many voices as possible, the Army joined together with more than a dozen 

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61 

military and veteran service organizations to hear from interested citizens and to 

understand how they view the strategic challenge facing Arlington National Cemetery. In 

addition to in-person outreach with these groups, in mid-November 2017, we conducted 

an initial public survey with input from more than 28,000 respondents. The results show 

that the overwhelming majority 94% of respondents desired that the cemetery remain 

active well into the future. The respondents also recognized that keeping the cemetery 

open well into the future would be a challenging task involving difficult policy choices and 

costly expansions. Of those who favored keeping the cemetery active, survey results 

reflected that 50% of those in favor of expansion recognize the need to modify the 

eligibility policy at the same time. Survey respondents also recognized that further 

expansion might not be possible; of those, 70% of the respondents support restricting 

eligibility in some manner to extend the life of the cemetery as an active burial ground for 

our most deserving veterans. 

As discussed in the 2017 Report to Congress, it is not possible to keep Arlington 

National Cemetery open for generations to come without a candid dialogue on meaningful 

changes to eligibility. Today any Armed Forces veteran with one day of active duty 

service is eligible for above ground placement, and any retiree receiving pay is eligible 

for below ground placement. These two groups are also the majority of those interred or 

inurned each year at Arlington National Cemetery and represent the extraordinary 

demand that far outweighs available space. Trends show that approximately 1% of the 

20 million eligible veterans and 2 million of the eligible retirees desire to come to Arlington 

for their final resting place. Their population sizes and their current demand for a place 

at Arlington will result in the cemetery closing for first interments within the first half of this 

century if nothing is done to restrict their eligibility in some way. 

This fact was most evident during a round table discussion held on January 30, 

2018, by the Honor Subcommittee to the Advisory Committee on Arlington National 

Cemetery. At this round table, representatives from 23 various veteran's service 

organizations, military service organizations, and interested members from the public 

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62 

engaged one another in a candid discussion on the realities of limited expansion and 

restricting eligibility. The open dialogue included the realization that eliminating eligibility 

for those veterans who have not retired from service; not received a Silver Star or above; 

were not wounded or killed in action or died while serving on active duty, is necessary in 

some way. Further, to realize any significant change in prolonging the life of active 

burials, action must be taken to address the eligible retiree population as well. 

Arlington National Cemetery intends to continue this critical national dialogue by 

conducting a second survey with more refined options. We will continue to inform 

stakeholders on the limited viability of expanding the cemetery in the National Capitol 

Region to solve our challenges. The benefits and risks of policy options must be 

addressed openly and it is our desire to give each stakeholder the information necessary 

for an honest and thoughtful deliberation of any future changes. The Army anticipates a 

robust and candid dialogue with stakeholders as we move forward, and will work to 

achieve a long future that continues to honor our nation's cherished heroes. 

In addition to looking at eligibility, we are making near-term efforts to increase the 

capacity through completion of the Millennium Project and planning for the future 

Southern Expansion Project. Based on changing conditions and revised estimates, the 

Army will review future resource requirements to complete the land acquisition, planning, 

and design efforts for the Defense Access Roads project associated with Southern 

Expansion. 

CONCLUSION 

Enabled by the tremendous support of Congress and the diligent efforts of the 

great employees at Arlington National Cemetery, the Army will continue to sustain the 

sacred trust of our citizens. We look forward to working with Congress, the Advisory 

Committee on Arlington National Cemetery, Military Service Organizations, 

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63 

Veteran Service Organizations, and the public on enabling a future of Arlington National 

Cemetery that continues its long tradition of honoring our nation's heroes for generations 

to come. 

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Karen Durham-Aguilera 

Executive Director 

Army National Military Cemeteries 

Ms. Karen Durham-Aguilera is the Executive Director of Army National Military Cemeteries. 

As the Executive Director, Ms. Durham-Aguilera reports directly to the secretary of the Army 

and is dual-hatted as Headquattcrs, Department of the Army (HQDA) Staff Principal and 

Executive Director of the Direct Reporting Unit, U.S. army Element Arlington National 

Cemetery. 

Ms. Durham-Aguilera most recently served as the Director of Contingency Operations and 

Onice of Homeland Security, Headquarters, U. S. Army Corps of Engineers. As Director, she 

was responsible for the USACE Homeland Security mission support of the Department of 

Homeland Security, the Department of the Anny, and the Department ofDef(mse. She served as 

the Agency Principal for all USACE efforts to assist Federal, state and local emergency 

management and response organizations to prepare, respond and recover to any emergency or 

disaster, tor natural or mm1made hazards. Ms. Durham-Aguilera's portlolio included leading 

USACE eftorts in Jlood risk management and critical water resources infrastructure resilience, 

and supporting Combatant Commands with forward field engineering assets for overseas 

contingency operations. 

CAREER CHRONOLOGY: 

2007-2011, SES Director of Task Force Hope, New Orleans, LA, U.S. Army Corps of Engineers 

2003-2007, SES Director of Programs, U.S. Army Corps of Engineers Northwest Division 

2005, SES Director, Reconstruction Programs, U.S. Army Project and Contracting Office, Baghdad, Iraq 

1985-2003, Numerous positions home and ahroad, construction, operations, and engineering, U.S. Army 

Corps of Engineers 

EDUCATION 

University of Louisville, Louisville, KY, MEng, Civil (Geotechnical) Engineering 

University of Louisville, Louisville, KY, BS, Civil Engineering 

Harvard Kennedy School of Government, National Preparedness Leadership Institute 

SIGNIFICANT TRAINING AND LICENSES 

Harvard Kennedy School of Government, National and International Security for Senior Executives 

Army Senior Executive Advanced Course, University of Virginia 

Army Senior Executive Intermediate Course, University of Notre Dame 

Department of Defense, APEX for Senior Executives 

Registered Professional Engineers (Civil), State of Louisiana 

AWARDS AND HONORS: 

American Society of Civil Engineers (ASCE) 2016 Government Civil Engineer of the Year 

Presidential Rank Award for Distinguished Service 

Presidential Rank Award for Meritorious Service 

Silver Order and Bronze Order of the DeFleury Medal 

Secretary of Defense Medal for the Global War on Terrorism 

PROFESSIONAL MEMBERSHIPS AND ASSOCIATIONS: 

Society of American Military Engineers 

American Society of Civil Engineers 

Army Engineers Association 

Senior Executive Association (Board of Directors) 
65 

Æ