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"Our Nation’s Hallowed Grounds: Review of America’s National Cemetery Funeral Operations for Veterans and Servicemembers"

House Veterans Affairs Committee, Disability Assistance and Memorial Affairs Hearing

November 13, 2024 (recording here)

HEARING INFORMATION

Witness & Written Testimony (linked) (Panel One):

• Major General Trevor J. Bredenkamp: Commanding General, U.S. Army Military District of Washington, Joint Task Force - National Capital Region

Witnesses & Written Testimony (linked) (Panel Two):

• Mr. Ronald E. Walters: Acting Under Secretary for Memorial Affairs, National Cemetery Administration, U.S. Department of Veterans Affairs

• Mr. Richard Chandler: Deputy Under Secretary for Management, National Cemetery Administration, U.S. Department of Veterans Affairs

• Mr. Robert J. Orifici: Executive Director, Benefits and Memorial Systems, Office of Information and Technology, U.S. Department of Veterans Affairs

• Admiral Jon C. Kreitz: Rear Admiral, U.S. Navy (Retired), Equestrian Expert

• Ms. Lesley Witter: Senior Vice President, Advocacy, National Funeral Directors Association

• Mr. Shawn P. Buck: Director, New Hampshire State Veterans Cemetery

Keywords mentioned:

• Caisson Platoon, horse procurement, equine care, website & information access, burial honors, the Veterans Cemetery Grant Program, the Burial Equity for Guards and Reserves Act, sustainability

IN THEIR WORDS

OPENING STATEMENTS FROM THE SUBCOMMITTEE

• Chairman Morgan Luttrell began by articulating the hearing’s focus on Arlington National Cemetery and the Department of Veterans Affairs’ National Cemetery Administration (NCA). He highlighted concerns about the Army's indefinite suspension of military funerals with caisson support at Arlington, noting issues with horse care, poor veterinary standards, and inadequate resources that have led to operational delays. The Chairman acknowledged the efforts of Major General Trevor Bredenkamp in addressing the challenges but stressed the need for sustainable Caisson Platoon operations to honor fallen service members. He also mentioned the importance of addressing delays in the VA’s cemetery expansion projects to ensure veterans have accessible final resting places.

• Ranking Member Chris Pappas echoed the Chairman’s sentiments, underlining the nation's commitment to honoring its veterans both during their lives and after their passing. He praised the NCA for its overall success but acknowledged areas for improvement, particularly in addressing operational gaps and funding issues. Ranking Member Pappas supported the decision to suspend the Army’s Caisson Platoon to prioritize the health of the horses but called for transparency and timely resumption of services. He expressed hope that MG Bredenkamp’s testimony would provide insights into the Army’s progress and plans for reestablishing normal operations.

SUMMARY OF KEY POINTS (PANEL ONE)

• Major General Trevor Bredenkamp outlined the historical importance of the Caisson Platoon, which has provided ceremonial services since 1948. He acknowledged the profound responsibility to honor fallen service members and addressed the significant issue of resuming caisson operations at Arlington National Cemetery. MG Bredenkamp detailed the Army’s conditions-based approach to restarting these services, focusing on facility improvements, horse procurement, health and fitness, training, and regulatory updates. He shared a personal connection to the issue, revealing his own family’s ties to Arlington, and underlined the Army's dedication to resuming sustainable operations that respect both the dignity of the ceremony and the well-being of the horses involved.

• Chairman Luttrell asked about the current status and timeline for reactivating the Caisson Platoon. MG Bredenkamp responded that the Army was on track to resume operations, detailing the five key milestones, including facility renovations, land acquisition, and horse procurement. He noted that acquiring 150 acres of land was 90% complete, pending approval linked to the National Defense Authorization Act (NDAA). He projected a possible restart by March or April of next year, once four trained squads were established.

• Chairman Luttrell inquired about creating a specific Military Occupational Specialty (MOS) for the Caisson Platoon to retain skilled soldiers with equine experience. MG Bredenkamp acknowledged the loss of traditional horsemanship skills and explained that they had expanded recruitment to the entire Army, seeking personnel with prior horse experience. He mentioned that the Army was exploring an MOS with an additional skill identifier to allow longer assignments within the platoon, similar to structures in other ceremonial units such as the Army Band.

• Ranking Member Pappas questioned why previous practices failed to adequately support the Caisson Platoon and sought clarification on past shortcomings. MG Bredenkamp explained that the program had not been expanded since 1985, and funding requests in 2017 were not prioritized. He described a decline in equine skills across the Army and the nation, leading to insufficient care and increased injuries. To address this, the Army now contracts with horse care professionals and has implemented new procedures to ensure the well-being of the horses.

• The Ranking Member then asked about the possibility of using the current herd for immediate funeral services and the implications for long-term sustainability. MG Bredenkamp emphasized that their priority was to establish a stable work-rest cycle for the horses, requiring at least four squads to prevent overuse. He stated that restarting services prematurely could risk injury and disrupt future operations.

• Rep. Juan Ciscomani focused on the financial aspects of the mission, asking how much additional funding the Army required to fully restore the Caisson Platoon. MG Bredenkamp stated that the current budget proposal included necessary funding, estimating about $900,000 per squad. He re-emphasized that the updated procurement process aimed to secure mission-ready horses, addressing past issues where horses were either unsuitable or improperly cared for.

• Rep. Morgan McGarvey reflected on the symbolic importance of the Caisson Platoon, recalling iconic images of state funerals. He stressed the need for all service members, regardless of background, to receive the same dignified honors. Rep. McGarvey requested an update on the search for a permanent stabling facility. MG Bredenkamp shared that they were moving quickly with the Corps of Engineers to acquire a suitable property and had narrowed down potential locations. He mentioned temporary stabling solutions were being used as a bridge until permanent facilities were established.

SUMMARY OF KEY POINTS (PANEL TWO)

• Admiral Jon Kreitz introduced himself as a lifelong horseman and former Navy officer with over 55 years of equestrian experience, including board service with the United States Equestrian Federation. He became involved with the Old Guard’s Caisson Platoon in July 2023 after noticing severe issues with horse welfare and training. Alongside other equestrian experts, he offered advisory support to address these problems. ADM Kreitz underlined the Army’s loss of traditional horse care skills and emphasized the need to treat horses with the same respect as soldiers, pointing out that neglect of these standards had led to injuries and operational challenges for the Caisson Platoon.

• Acting Under Secretary for Memorial Affairs Ronald Walters focused on the NCA’s efforts to provide burial options for veterans and their families. He discussed the NCA’s processes for expanding cemeteries based on veteran population trends and outlined recent projects, including the opening of St. Albans National Cemetery in Queens, New York. Mr. Walters praised the collaboration with state, tribal, and territory partners through the Veterans Cemetery Grant Program, which has provided over $1 billion in funding since 1978. He also outlined the NCA’s ongoing modernization efforts, such as automating eligibility determinations and expanding the Veterans Legacy Memorial to preserve the stories of veterans.

• Ms. Lesley Witter spoke on the vital role funeral directors play in coordinating with the VA and DoD to provide proper funeral and burial honors for veterans. She discussed the results of a survey conducted by the National Funeral Directors Association (NFDA), which found that while most funeral directors reported positive experiences with VA cemetery staff, there were ongoing challenges with accessing clear information about benefits. Ms. Witter expressed concerns about the complexity of the process for families, particularly regarding incomplete records like missing DD214 forms. She urged the VA and DoD to streamline benefits procedures and improve coordination with funeral directors to better serve grieving families.

• Mr. Shawn Buck praised the dedicated staff and volunteers at the New Hampshire State Veterans Cemetery, noting their commitment to honoring veterans and providing exceptional service. He described recent cemetery expansions, supported by the Veterans Cemetery Grant Program, which will add 10 years of cremation burial capacity. Mr. Buck went on to mention the successful implementation of the Burial Equity for Guards and Reserves Act, allowing the cemetery to better serve the state’s National Guard and Reserve veterans. He then raised concerns about reduced military honor staffing, particularly from the Air Force, stressing the importance of having two well-trained service members present for each ceremony to ensure the dignity of the honors given to veterans.

• Chairman Luttrell questioned Mr. Walters about the process of informing Congress regarding VA cemetery expansions, expressing concern over being unaware of recent projects. Mr. Walters clarified that major construction projects would typically be included in the budget request, but the two new rural cemeteries opening in fiscal year 2026 were minor projects and did not require specific congressional notification. Chairman Luttrell requested further clarification after the hearing, noting the importance of transparent communication due to the use of taxpayer funds.

• The Chairman addressed issues raised by Ms. Witter regarding the difficulty veterans and their families faced when navigating the VA website for burial services. He asked who was responsible for fixing this issue. Mr. Richard Chandler responded that the problem stemmed from the website listing all cemeteries without indicating if they were open for burials, and efforts were underway to resolve this. Chairman Luttrell pushed for a timeline and was promised an update by the end of the year.

• Chairman Luttrell then asked ADM Kreitz who was directly responsible for overseeing the Caisson Platoon. ADM Kreitz explained that he mainly communicated with MG Bredenkamp, his deputy, and the provisional caisson detachment commander. He noted that while contract support was currently used, there was a need for a more permanent military structure within the unit to ensure continuity and reduce reliance on contractors.

• Ranking Member Pappas asked about the implementation of the Burial Equity for Guards and Reserves Act and feedback from other states. Mr. Buck reported that 20 states and five tribal cemeteries had successfully interred Guard and Reserve members. He highlighted challenges with setting up a separate supply chain for headstones, which New Hampshire resolved by using the same vendor as the VA.

• The Ranking Member inquired about the effectiveness of the Veterans Cemetery Grant Program. Mr. Buck praised the program’s responsiveness, noting that the NCA reached out early and provided a project manager to assist throughout the process. He stated that the grant level was sufficient for both maintenance and expansion, clarifying that issues usually stemmed from the state rather than the federal level.

• Rep. McGarvey praised Mr. Walters for the NCA’s innovative projects and asked how local cemeteries like Greenwood Cemetery in his district could receive support. Mr. Walters explained that the NCA did not currently have the authority to fund cemeteries not established through the grant program but could offer expert advice and assistance. He encouraged local cemeteries to contact the NCA for guidance on restoration efforts.

• Rep. Greg Landsman asked about the availability of burial options for veterans in the Cincinnati area, given the distance to existing national cemeteries. Mr. Walters acknowledged that geographic challenges could limit access and noted that the NCA was focusing on completing existing projects before considering new sites. Mr. Buck suggested that a local approach, similar to New Hampshire’s model of securing state land and working with the federal government, could be effective.

• Chairman Luttrell encouraged better collaboration between the Army and the VA to address issues raised during the hearing. He advocated for proactive problem-solving and planned follow-up meetings with ADM Kreitz and Mr. Walters to ensure progress.

• Ranking Member Pappas expressed gratitude for the panel’s testimonies and reiterated the importance of the Subcommittee’s continued focus on honoring veterans and supporting their families.

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