UR:

THE FUTURE OF ARLINGTON NATIONAL CEMETERY:
REPORT ON THE INTERMENT AND

INURNMENT CAPACITY
2017

 

ARLINGTON NATIONA CEIVIETERY

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i

Table of Contents
Executive Summary ................................................................................................................... iv
1. Arlington National Cemetery: An Icon of Living History........................................................ 1
2. Current Interment and Inurnment Capacity of Arlington National Cemetery.......................... 7
2.1 The Impact of Space on Arlington National Cemetery’s Capacity .................................. 8
2.2 The Impact of Eligibility and Veteran Demand on Arlington National Cemetery’s
Capacity ........................................................................................................................ 9
3. Shaping the Future: Potential Options and Action Plan ......................................................12
3.1 Framework for Evaluating Options ...............................................................................12
3.2 Options to Explore: Legislative Actions and Non-Legislative Options that Ensure
Arlington National Cemetery Does Not Reach Capacity Until Well into the Future .......14
3.2.1 Option 1: Redefining eligibility criteria for interment and inurnment at Arlington
National Cemetery. ............................................................................................14
3.2.2 Option 2: Considerations for additional expansion opportunities beyond current
boundaries of the cemetery. ...............................................................................20
3.2.3 Option 3: Other alternative approaches.............................................................23
3.3 Evaluating the Options and Courses of Action .............................................................27
3.3.1 Key findings and take-aways regarding the options for extending Arlington
National Cemetery as an active cemetery ..........................................................27
3.3.2 Evaluating potential courses of action for the future of Arlington National
Cemetery ...........................................................................................................28
3.3.3 Sample Course of Action 1 ................................................................................30
3.3.4 Sample Course of Action 2 ................................................................................32
3.4 An Action Plan for Shaping the Future of Arlington National Cemetery ........................36

Appendices
A.
B.
C.
D.
E.

Reference Documents ............................................................................................... A-1
Terms of Reference ................................................................................................... B-1
List of Acronyms ........................................................................................................ C-1
Historical Review of Arlington National Cemetery Eligibility ........................................ D-1
Comparing Eligibility at Arlington National Cemetery and the Department of Veterans
Affairs Cemeteries (Most Common Eligibility Criteria) ................................................ E-1
F. Screenshot from the Center for Army Analysis Capacity Modeling Tool ..................... F-1
G. Stakeholder Engagement Register.............................................................................G-1
H. Definitions of Options to Extend Arlington National Cemetery as an Active
Cemetery ...................................................................................................................H-1
I. Detailed Breakdown of Course of Action Analysis: A Framework for Evaluating the
Sample Courses of Action ........................................................................................... I-1

 ii

Table of Figures
Figure 1: Options included in sample COA 1 .............................................................................. vi
Figure 2: Options included in sample COA 2 ............................................................................. vii
Figure 3: Significant eligibility changes based on veteran status ................................................ 4
Figure 4: Projected capacity of first interments at ANC under current space and eligibility
conditions .................................................................................................................... 7
Figure 5: Map of ANC depicting space for the Millennium Project (gold) and the proposed
Southern Expansion Project (blue), 2015..................................................................... 8
Figure 6: Source: Arlington National Cemetery, Interment Services System (2016). .................10
Figure 7: Source: Department of Veterans Affairs, National Cemetery Administration,
Policy and Planning Service. (2015). National Cemetery Administration Summary of
Veteran Interments: FY2000 to FY2014 [Data Set]. ....................................................11
Figure 8: Table of options (for detailed descriptions see appendix H) .......................................13
Figure 9: Description of criteria .................................................................................................13
Figure 10: Methodology for sample COA development .............................................................14
Figure 11: Source: Arlington National Cemetery, Interment Services System (2016.) ...............15
Figure 12: Source: Arlington National Cemetery, Interment Services System (2016.) ...............16
Figure 13: Forecast of available ANC space by veteran population and time ............................16
Figure 14: Key data for ANC expansion efforts (as of 2 Feb 2017)............................................20
Figure 15: Map of ANC with potential adjacent land expansion opportunities highlighted..........21
Figure 16: “Conceptual rendering of an early planning concept considered for the development
of the Southern Expansion site.” Rendering from the ANC Southern Expansion
Project Planning Charrette Report, 2016 .................................................................22
Figure 17: Evaluating options for extending ANC as an active cemetery ...................................29
Figure 18: Options included in sample COA 1 ...........................................................................30
Figure 19: Options included in sample COA 2 ...........................................................................33
Figure 20: Report Planning Process..........................................................................................37
Figure 21: History of eligibility changes at ANC ....................................................................... D-1
Figure 22: Screenshot of ANC Cemetery Planning (Capacity Modeling) Tool ......................... F-1
Figure 23: Definitions of options for extending ANC as an active cemetery ............................. H-1
Figure 24: Options included in sample COA 1 .......................................................................... I-1
Figure 25: Major phases, activities, and timeframes for sample COA 1 .................................... I-2
Figure 26: Options included in sample COA 2 .......................................................................... I-2
Figure 27: Major phases, activities, and timeframes for sample COA 2 .................................... I-2

 iii

The Mission of Arlington National Cemetery:
“On behalf of the American people, lay to rest those who have served our Nation with
dignity and honor, treating their families with respect and compassion, and connecting
guests to the rich tapestry of the Cemetery’s living history, while maintaining these
hallowed grounds befitting the sacrifice of all those who rest here in quiet repose.” 1

1

Army National Cemeteries Program Campaign Plan 2012.

 iv

Executive Summary
This report responds to Public Law 114-158 which directs that:
“Not later than 180 days after the date of the enactment of this
Act, the Secretary of the Army shall submit to the Committees on
Veterans’ Affairs and the Committees on Armed Services of the
House of Representatives and the Senate a report on the
interment and inurnment capacity of Arlington National
Cemetery, including—
(1) the estimated date that the Secretary determines the
cemetery will reach maximum interment and inurnment capacity;
and
(2) in light of the unique and iconic meaning of the
cemetery to the United States, recommendations for legislative
actions and nonlegislative options that the Secretary determines
necessary to ensure that the maximum interment and inurnment
capacity of the cemetery is not reached until well into the future,
including such actions and options with respect to—
(A) redefining eligibility criteria for interment and
inurnment in the cemetery; and
(B) considerations for additional expansion
opportunities beyond the current boundaries of the cemetery.” 2
As the law indicates, Arlington National Cemetery (ANC) is at a
crossroads. ANC honors our country’s rich history and generations
of men and women willing to sacrifice their lives for our ideals.
During its 152 year history, more than 400,000 people have been
honorably interred or inurned at the cemetery, including heroes
from every major American conflict. In particular, ANC has long
been known as a hallowed burial ground for Service members who
are killed in action and recipients of qualifying awards such as the
Medal of Honor. ANC’s reputation is so unique and iconic that the
demand for ANC continues to far outweigh capability and capacity.
Today, the cemetery conducts between 27 and 30 funeral services
each weekday and approximately 10 services on Saturday. In fiscal
year 2016, ANC served more than 7,100 active duty Service
members, veterans, and their family members.
When one thinks of ANC, it is natural to envision it stretching on
forever—not only in physical space, but in time. The truth is that
ANC is running out of space. At current projections, the cemetery

2

House Reports 4336, Pub. L. No. 114-158, 130 Stat. 394 (2016)

A bugler plays at a funeral service at
ANC

A United States Marine Corps firing party
stands at attention

Crape myrtles and petunias bloom near
the Mast of the Maine Memorial

A flag bearer stands among snow
covered markers

 v
will reach capacity in approximately the early 2040s. 3 This estimated date is based on
the assumption of maintaining current eligibility standards and the cemetery’s current
physical footprint. ANC and those it exists to serve must therefore confront the reality
that, at some point in the future, the cemetery will no longer continue to operate as it does
today. Most veterans from the recent wars in Iraq, Afghanistan, and the War on Terrorism
will not have the option to be buried at ANC. Even our heroes who are killed in action or
those who have earned the Medal of Honor will not be buried at ANC within approximately
three decades due to the lack of space.
What is our country’s vision for Arlington National Cemetery? How can we truly honor its
legacy and preserve the cemetery as a unique cultural icon for future generations? If the
American people wish to preserve it as an active burial ground, we must act quickly and
decisively to shape the future direction. Every day and year that passes without a
decision brings the cemetery closer to capacity.
Extending ANC as an active cemetery well into the future (interpreted in this report as
150 years or more) requires difficult decisions or resource intensive actions. There are
three key options to evaluate:
• Option 1: Redefining eligibility criteria for interment and inurnment at ANC
(requested by Public Law 114-158). 4
• Option 2: Considerations for additional expansion opportunities beyond current
boundaries of the Cemetery (requested by Public Law 114-158).
• Option 3: Other alternative approaches.
Each option involves more complexity than might initially appear. Within each of the areas
of study required by the law—eligibility and expansion—there are multiple methods that
could achieve the end-state. Some methods would be successful at reaching the endstate independently, while others will need to be combined with other methods or
solutions. While this report neither implies nor makes a decision at this time, it covers
each of these options—and the possible solutions within—and provides a framework and
criteria with which to evaluate them. There are no easy solutions, and each one carries
significant trade-offs. As this report outlines, these options are complex and will require
additional time to fully assess and consider the feedback and views of the stakeholders.
Regarding Option 1, eligibility criteria for burial at ANC has changed at least fourteen
times in the past fifteen decades, but there has not been a significant change since 1980.
There are several options available to extend the life of the cemetery from the eligibility
perspective. Any such change will require a thoughtful approach to ensure that any
veterans who might be impacted by the change are aware of the challenges ANC faces
in the near future, as well as the robust options available to them in other veteran
cemeteries around the United States.

3

Center for Army Analysis. (2016). Arlington National Cemetery Planning Tool [Data Set and Modeling
Tool].
4 The Secretary of the Army, with the approval of the Secretary of Defense, shall determine eligibility for
interment or inurnment in the Cemeteries. 10 USC 4722 (a)(1).

 vi
Regarding Option 2, the recent 27 acre development of the
cemetery, the Millennium Project, is the first expansion of the
cemetery’s geographic footprint since 1976 at a budgeted cost of
$81.7M. The Millennium Project will increase the cemetery’s
capacity by an estimated 27,282 spaces. Although there are 448
acres of Federal land adjacent to the cemetery, there is currently
only one additional expansion under consideration, the proposed
Southern Expansion Project, which would add approximately 38
acres for conversion to cemetery use. Assuming that the proposed
Southern Expansion Project moves forward, the first interment
there would likely not take place before 2023. The current
estimated remaining development cost of the proposed Southern
Expansion Project is approximately $274M.
While not specifically required by Public Law 114-158, the Army
examined other potential solutions. Option 3 includes alternative
ideas for maximizing the current space within the cemetery’s
geographic footprint, including the potential use of new burial
techniques or increased use of above-ground inurnments in various
architectural options. It also discusses some options external to
ANC. Importantly, the most feasible, acceptable, and suitable
course of action is likely a hybrid of multiple options. This report
includes examples of hybrids that combine multiple options to
provide unique possibilities to achieve the end state (see figures 1
and 2). To reiterate, these example courses of action are not
intended to be recommendations, but examples that demonstrate
how phasing multiple options over time can also achieve the
desired end-state.

Figure 1: Options included in sample COA 1

Fly-over of World War II era aircraft in
honor of disabled American veterans

A blanket of snow covers Arlington
National Cemetery

President-Elect Trump lays a wreath,
alongside Vice President Elect-Pence, at
the Tomb of the Unknown Soldier

 vii

Figure 2: Options included in sample COA 2

As the steward of this national shrine, the Army is committed to maintaining Arlington
National Cemetery as an active cemetery and extending its legacy for as long as possible.
The Army is not presently taking action on the contents of this report, but acknowledges
that decisions about the cemetery’s future should be made as part of a national dialogue
in concert with stakeholders including Congress; the Federal Advisory Committee on
Arlington National Cemetery (the Advisory Committee); veteran service organizations and
military service organizations; the uniformed Services; and the United States public.
Additionally, the Army believes that any expansions or changes to the cemetery must
preserve the iconic nature and standards that the American people have come to expect
of Arlington National Cemetery.
This report lays out key information needed to address these questions, including
historical context; capacity data and projections; potential options; sample courses of
action and an analytical framework with which to evaluate them; and lastly an action plan
to ultimately determine the future of Arlington National Cemetery.

 1

1. Arlington National Cemetery: An Icon of Living History
Arlington National Cemetery (ANC) is an icon in our national
consciousness. The cemetery is a hallowed shrine and active
burial ground for our Nation’s heroes; a ceremonial space for the
Tomb of the Unknown Soldier and the Eternal Flame; and a living
history that has evolved with our Nation since ANC was established
during the Civil War over 150 years ago. Countless speeches,
photographs, songs, and movies have depicted ANC over the
decades and help to reinforce the symbolism of the cemetery within
American culture and collective memory. American children learn
about Arlington National Cemetery in school, with their impressions
forever imprinted during field trips when they first glimpse the
immensity of the rows of white headstones stretching to the
horizon, a powerful symbol of patriotism, freedom, and the ultimate
sacrifice.
While this shared national consciousness binds us in our
understanding of the cemetery, this cherished space also holds a
deeply personal significance for many Americans. The cemetery
is the final resting place of their loved ones, or perhaps they
envision ANC as their own future place of rest. Whether attending
a funeral service for a beloved family member, visiting the gravesite
of a dear friend (either in person or online), or laying a wreath at
the grave of a hero who died long ago, the cemetery takes on its
own personal meaning for everyone. Because the cemetery is part
of our national consciousness, how to preserve ANC for future
generations is a question of national significance.
Arlington National Cemetery is comprised of land that once
belonged to George Washington Parke Custis, grandson of Martha
Washington and step-grandson of George Washington. Custis
spent his life commemorating Washington and built Arlington
House on a hill overlooking the Potomac River as a memorial to
the first president. In 1857, Custis willed the property to his
daughter Mary Anna Randolph Custis, who married then United
States Army Second Lieutenant Robert E. Lee in 1831.
General Lee left Arlington House at the onset of the Civil War,
giving way for the United States Army to occupy the property and
build fortifications to defend the Nation’s capital. As casualties of
the war began to mount, Brigadier General Montgomery C. Meigs,
Quartermaster General of the United States Army, established a
military cemetery on the grounds in May 1864. On May 13, 1864,
Private William Christman, a Soldier of the United States Army 67th

Many of our nation’s youth visit ANC on
field trips or with their families

An escort platoon accompanies a
caisson during a funeral service

Women in Military Service for America
Memorial

Arlington House today, formerly known
as Lee Mansion

 2
Pennsylvania Volunteer Infantry, was the first to be interred at the
military cemetery.
On June 15th of that year, Secretary of War Edwin Stanton issued
an act to establish a 200 acre national cemetery on the Arlington
House grounds. By the end of the war, the cemetery contained the
remains of over 5,000 Service members. Today, the cemetery is
the final resting place for more than 400,000 people.
There are numerous monuments within the hallowed grounds of
ANC, some with unique historical significance. The Civil War
Unknown Monument, dedicated in 1866, was one of the first
monuments erected at ANC. It serves as the final resting place for
2,111 Soldiers, likely from the Union and Confederacy, who died in
the Civil War at the battle of Bull Run and the route to the
Rappahannock. This monument was the first memorial at ANC
dedicated to unidentified Soldiers who died in battle.
Three years after the Civil War ended, Major General John A.
Logan, the head of an organization of Union veterans called the
Grand Army of the Republic, established “Decoration Day” in 1868.
Decoration Day was started as a day for the Nation to decorate the
graves of the war dead with flowers. The first large observance of
Decoration Day was held that year at ANC when General and Mrs.
Ulysses S. Grant presided over the initial ceremonies.
Ever since 1868, a ceremony has been held at ANC at the official
commencement of Decoration/Memorial Day. Decoration Day was
expanded in the mid 1900s to honor those who have died in all
American wars after World War I. In 1971, Memorial Day was
declared a national holiday by an act of Congress, though it is still
often called Decoration Day. 5 Today, as part of the ceremony, a
small American flag is placed on each grave and the President
customarily gives a speech honoring the contributions of the dead,
and lays a wreath at the Tomb of the Unknown Soldier. Thousands
of people attend the ceremony at ANC annually. 6 The growing
importance of Decoration Day was a key factor that helped ANC
gain national prominence and become the iconic place that it is
today. 7
5

The sun sets as a sentinel patrols the
Tomb of the Unknown Soldier

Photo from the first Memorial Day at
ANC

Memorial Day remarks;
reaganlibrary.archives.gov

“The willingness of some to give
their lives so that others might live
never fails to evoke in us a sense of
wonder and mystery. One gets that
feeling here on this hallowed
ground…”
President Reagan
May 31, 1982

United States Department of Veterans Affairs, Office of Public Affairs, Memorial Day History (n.d.)
Retrieved from http://www.va.gov/opa/speceven/memday/history.asp
6 History, 1868 Civil War Dead Honored on Decoration Day (n.d.). Retrieved from
http://www.history.com/this-day-in-history/civil-war-dead-honored-on-decoration-day
7 United States Department of Veterans Affairs, National Cemetery Administration. (2015). National
Cemeteries Dates Established and First Burials [Fact Sheet]. Retrieved from
http://www.cem.va.gov/docs/factsheets/establish.pdf.

 3
In the years following World War I, Congress approved the
entombment of an unidentified United States Soldier from the Great
War in the plaza of the new Memorial Amphitheater. An unknown
United States Soldier was selected in October 1921 from a
cemetery in France. On November 11, 1921, the third anniversary
of the end of World War I, President Warren G. Harding officiated
the interment ceremony for the Unknown Soldier at the Memorial
Amphitheater at ANC. Unknowns from World War II, Korea, and
Vietnam were later interred to the west of the Tomb of the Unknown
Soldier. However, the remains of the Vietnam Unknown were
exhumed in 1998 and subsequently identified. The crypt that
contained the remains of the Vietnam Unknown has remained
vacant, and was rededicated to all those missing in action and
prisoners of war of the Vietnam conflict. Sentinels guard the Tomb
of the Unknown Soldier 24 hours a day, 365 days a year. Tomb
Guards, all volunteers, are Soldiers of the elite 3rd United States
Infantry Regiment (called The Old Guard).
Among the distinguished individuals buried at ANC are two United
States presidents: William Howard Taft, who died in 1930, and
President John F. Kennedy, who was assassinated on November
22, 1963. The nationally televised funeral procession and
interment of President Kennedy at ANC became a turning point in
the cemetery’s history, as visitors increased from approximately
two million persons annually in 1962 to more than seven million
during the 12 months following President Kennedy’s death. The
burial plot of President Kennedy and his family remains one of the
most visited sites at ANC to this day.
In 1948, following World War II, eligibility for burial in ANC
expanded for the first time from (with a few exceptions) only those
killed in action and other active duty deaths to any veterans with
active duty service and an honorable discharge. As a result of this
and several other factors, including the burial of President
Kennedy, the war in Vietnam, and a growing veteran population,
ANC became one of the most hallowed final resting places for our
national heroes. In fact, ANC became so desirable that it nearly
reached capacity in the late 1960s. The decision was quickly
made—within 2 years of the cemetery closing—to limit eligibility so
that ANC could continue honoring our veterans. 8
The 1967 changes to eligibility criteria restricted burial at ANC to
only those Service members killed in action and who died on active
duty, retirees, and Medal of Honor recipients (later expanded to
8

President Kennedy at Arlington
(jfklibrary.org)

“…these memories, sad and proud,
these quiet grounds, this cemetery
and others like it all around the
world, remind us with pride of our
obligation and our
opportunity…and to the dead here
in this cemetery, we say ‘they are
the race – they are the race
immortal.’”
President Kennedy, November 11,
1961 (va.gov)

The Eternal Flame at President
Kennedy's gravesite

The sun rises on a misty morning at
ANC

The Secretary of Defense, McNamara, Robert S. (1966). MEMORANDUM FOR THE PRESIDENT.
[Memorandum]. Washington, DC: Department of Defense

 4
include recipients of the Distinguished Service Cross, Silver Star, Distinguished Service
Medal and the Purple Heart). While these changes did significantly reduce interments,
they also made ANC even more desirable among those veterans who remained eligible.
The renewed interest in ANC further contributed to making it a special place in the hearts
of the American public.
Congress recognized ANC’s unique and iconic stature among national cemeteries when
passing the National Cemeteries Act of 1973 (Public Law 93-43). This law transferred
from the Secretary of the Army to the Administrator of the Veterans Affairs Administration,
jurisdiction and responsibility for all national cemeteries except ANC and the United
States Soldiers’ and Airmen’s Home (SAHNC) in Washington, DC. 9 The motivation
behind this change was to preserve ANC’s strict eligibility standards. According to the
Department of Veterans Affairs (VA), this law “reaffirmed that ANC and SAHNC should
be excluded from the VA National Cemetery System (NCS), and that a more restrictive
eligibility criteria should continue at ANC.” 10

Figure 3: Significant eligibility changes based on veteran status

ANC did not start out as the iconic symbol that it is today; rather, the cemetery 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 Service
9

National Cemeteries Act of 1973, Pub. L. No. 93-43, 72 Stat. 1117 (1973)
United States Department of Veterans Affairs National Cemetery Administration. (2015). History and
Development of the National Cemetery Administration [Fact Sheet]. Retrieved from
http://www.cem.va.gov/cem/docs/factsheets/history.pdf
10

 5
members whose families could not afford to bring the remains of their fallen loved ones
home.
Over time ANC grew 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 every individual laid to rest within the
hallowed grounds. Designated as an arboretum, ANC’s green hills are dotted with
approximately 8,400 trees, many hundreds of years in age. 11 The grounds provide a
sense of beauty and peace with an integrated landscape design of immaculate lawns and
flowers. It is a serene place for military families and our Nation to mourn and honor their
memories of loved ones, and for guests to explore.
ANC has a distinctive public outreach mission, serving as one of the most visited tourist
sites in the Washington, DC area. ANC welcomes an average of 11,000 visitors daily (34 million annually) and averages approximately 3,000 official ceremonies every year,
including those for heads of state, schools, scouting troops, veteran groups, and Honor
Flights. In addition, approximately 5,000 visitors attend major annual services for National
Memorial Day and Veterans Day observances. 12
From the soldiers of The Old Guard stepping in solemn vigilance before the Tomb of the
Unknown Soldier, to the gravesites of war heroes and presidents, to the funerals for our
veterans and families of ongoing conflicts and wars long past, the acres of neatly lined
white markers serve as a vivid remembrance of the price many have paid to keep our
Nation safe and free. 13
The remainder of this report lays out the impact and implications of various options to
extend the cemetery’s capacity, including eligibility and expansion options.

11

Army National Cemeteries Program Campaign Plan 2012.
ibid
13 ibid
12

 6

Historical Timeline of Arlington National Cemetery

Legend
Key events that helped make Arlington iconic

 7

2. Current Interment and Inurnment Capacity of Arlington
National Cemetery
In Public Law 114-158, Congress directed that the Secretary of the Army provide “the
estimated date that the Secretary determines the cemetery will reach maximum interment
and inurnment capacity.” 14 ANC’s interment and inurnment capacity is determined
primarily by the following two factors: space, which involves the Cemetery’s physical
footprint and acreage; and the eligible veteran population. Without additional physical
expansions or changes to eligibility, Arlington National Cemetery is projected to reach
maximum capacity in approximately the early 2040s. 15 This means that without any
changes, ANC will reach capacity within roughly 25 years, and most veterans from the
recent wars in Iraq, Afghanistan, and the War on Terrorism will not have the opportunity
to be buried at ANC. This estimated date is based on the assumption of maintaining
existing eligibility policies as well as the current physical footprint of ANC, with the addition
of the new space provided by the Millennium Project. Section 2 discusses these two key
factors to further clarify the cemetery’s current capacity.

Figure 4: Projected capacity of first interments at ANC under current space and eligibility conditions

ANC partnered with the Center for Army Analysis (CAA), to develop these projections. At
ANC’s request, CAA developed the first version of a model in 2011 to forecast the
remaining capacity for first interments at ANC. The model, which has been refined
significantly over time and was most recently updated in 2016, allows CAA and ANC
analysts to adjust different variables. For example, analysts can adjust the amount of
14

House Report 4336, Pub. L. No. 114-158, 130 Stat. 394 (2016)
Center for Army Analysis. (2016). Arlington National Cemetery Planning Tool [Data Set and Modeling
Tool].
15

 8
spaces available; eligibility criteria; operational factors; and burial type (in-ground
interment/inurnment or above-ground inurnment), among others. The tool then projects
the approximate year that ANC will reach capacity. This model pulls data from two key
sources: ANC’s Interment Services System (ISS), which provides data about previous
and scheduled interments/inurnments at ANC; and the Veteran Population Projection
Model 2014 from the VA, which provides data regarding the veteran population and
demographics. The model is an important tool for making data-driven decisions about
ANC’s future, but is important to remember that it is only a model and projections should
be considered as approximate based on the data available. Predictive modeling cannot
account for unexpected high casualty rates, which could impact the projected timeframes.
ANC and CAA will continue to refine the tool over time as additional options are
discussed. For a screenshot of the CAA Capacity Modeling Tool, see appendix F.

2.1

The Impact of Space on Arlington National Cemetery’s Capacity

The first major factor that impacts ANC’s capacity is its physical space. As of November
14, 2016, ANC had 78,901 spaces remaining for first interments—with that number
decreasing daily. This includes 56,150 spaces for in-ground interment and inurnment
and 19,751 spaces available for above-ground inurnment. Currently, ANC is finishing a
major cemetery expansion effort,
called the Millennium Project
(shaded gold in the upper left of
Figure 5). This project is near
completion and will make an
additional 27 acres operationally
available to ANC. The Millennium
Project site began construction in
2014 and has an estimated
capacity of 27,282 spaces—
10,882 spaces for ground burial
and 16,400 spaces for aboveground inurnment.
Millennium
Project space is expected to be
available for services in summer
2017.

Figure 5: Map of ANC depicting space for the Millennium Project (gold) and
the proposed Southern Expansion Project (blue), 2015

Another expansion effort is in the
planning stages. This effort, called
the proposed Southern Expansion
Project (shaded blue on the bottom
of figure 5), includes a collection of
three separate parcels of land
totaling approximately 38 acres
located at the southern boundary
of ANC. The proposed Southern
Expansion Project and the

 9
Millennium Project combined represent the largest expansion of ANC’s geographic
footprint in the last three decades. However, the proposed Southern Expansion Project
is not included in current capacity projections for ANC as it is pending funding and
resolution of land acquisition between Arlington County and the Commonwealth of
Virginia.
Prior to this, the last major geographic expansion occurred in 1976 when the cemetery’s
footprint expanded to lands east of Eisenhower Drive formerly occupied by old Fort
Myer. 16 However, the cemetery’s boundaries have shifted dozens of times in the past
fifteen decades, so there is precedence for expansion, which is discussed in Section 3.
The above-ground inurnment of cremated remains has also significantly increased the
capacity of the cemetery without changing the geographic footprint. Overall, a growing
number of United States veterans are selecting cremation rather than casketed burials, a
trend which is discussed further in Section 2.2. At ANC, veterans who qualify for inground burial and elect to be cremated have the option of in-ground inurnment in a
gravesite, or above-ground inurnment in a columbarium or niche wall. ANC opened its
first columbaria in 1980 to accommodate these evolving veteran burial preferences and
maximize space. This option is currently extended to any veteran with an honorable
discharge. The construction of Columbarium Court 9, completed in 2013, contributed to
ANC’s capacity by adding 20,292 niches. 17 Recently, ANC started building niche walls,
which offer inurnment opportunities within walls on the perimeters of the cemetery. These
options all show the potential to incorporate new designs and ideas to utilize existing
space, while also honoring changing burial preferences and without expanding ANC’s
footprint. Section 3 discusses this idea further under Option 3A, “Other Alternatives—
Reimagining New Ways to Use Existing Space.”

2.2

The Impact of Eligibility and Veteran Demand on Arlington National
Cemetery’s Capacity

The second key factor that impacts ANC’s capacity is the veteran decedent population,
which is shaped primarily by eligibility criteria for interment and inurnment at ANC, as well
as veteran preferences. Figure 6 shows the total yearly interments at ANC from 2001 to
2015. There have been an average of nearly 7,000 services per year at ANC since
2004. 18
ANC conducts between 27 and 30 funeral services per weekday, with up to 10 funeral
services on Saturdays for those not requiring military honors. This number is driven partly
by ANC’s operational capacity, but also by the imperative to provide a private and
dignified service for each veteran or family member laid to rest. Out of respect, ANC
strives to make each service feel like the only one occurring that day. Additionally, ANC
must ensure proper staffing, infrastructure, and route sequencing on the cemetery’s roads
16

Real Property Master Plan 2013, Arlington National Cemetery 2014 Reprint (December 22, 2014).
Army National Cemeteries Program Campaign Plan 2012.
18 CAA. (2015, March). Arlington National Cemetery – Southern Expansion Project (ANC-SEP) In
Progress Review. Presented at the Federal Advisory Committee on Arlington National Cemetery.
17

 10
for the honor guards, caissons, and other logistical elements associated with the services.
The cemetery’s limited physical space thus impacts its operational capacity. For these
reasons, ANC is only able to serve between 0.7 and 1.0 percent of the total national
veteran decedent population per year.

Figure 6: Source: Arlington National Cemetery, Interment Services System (2016).

Veteran demand is directly influenced by ANC’s eligibility criteria, which differ from the
criteria for the national cemeteries maintained by the VA National Cemetery
Administration (NCA). Appendix E provides a simplified breakdown of the differences
between some of the most common eligibility criteria at ANC and the VA national
cemeteries. There are numerous details, exceptions, and additional qualifications for
interment in both places, and this list is not exhaustive. For a detailed breakdown of
eligibility criteria, please visit the ANC and VA websites, referenced in appendix E.
In some ways ANC’s criteria is more restrictive than the VA’s, and in others it is less strict.
The VA has the same criteria for both interment and inurnment, with eligibility for any
active duty service member or veteran discharged under conditions other than
dishonorable with at least 24 months of continuous service (starting in 1980 for enlisted
and 1981 for officers). In contrast, ANC differentiates between criteria for in-ground and
above-ground eligibility. ANC’s criteria for in-ground interment and inurnment is more
restrictive than the VA’s, allowing only Service members killed in action, who die on active
duty, retirees, and those with qualifying awards (such as the Medal of Honor, Silver Star,
and Purple Heart, among others). On the other hand, ANC is less restrictive than the VA
for above-ground inurnment. Any veteran with an honorable discharge and at least one
day of active duty service (not for training) is eligible for above-ground inurnment at ANC.
Any service member qualified for in-ground burial may alternatively choose above-ground
inurnment at ANC. Both ANC and the VA also permit the interment of spouses and
eligible dependents, with some variations in eligibility.
At ANC, the veteran and his or her spouse and/or qualifying dependents are laid to rest
in the same gravesite or niche. In consideration of this, burial plots and niches are

 11
specifically designed to accommodate multiple decedents. This means that, when
evaluating the cemetery’s space and capacity, the number of first interments/inurnments
is the most appropriate factor to consider. The first internment/inurnment refers to the
first member of the family laid to rest, which could be the veteran or his or her loved one.
Any subsequent decedents are laid to rest in the same gravesite/niche. Roughly two
thirds of ANC’s funeral services per year are for first interments/inurnments, which
accounts for approximately 4,000 out of the roughly 7,000 services annually.
Overall, veteran interments have been increasing since 2000, according to the VA NCA.
This increase is due in large part to the aging population of veterans from the babyboomer generation. As depicted in figure 7, the NCA went from servicing just over 57,000
veterans in 2000 to over 81,000 in 2013. 19 This population increase will likely also
increase demand for services at ANC over the next several decades.

# OF INTERMENTS/INURNMENTS

Total Veteran Interments/Inurnments
at National Cemeteries (2000-2014)

Casket

Cremain

90,000
80,000
70,000
60,000
50,000
40,000
30,000
20,000
10,000
-

YEAR
Figure 7: Source: Department of Veterans Affairs, National Cemetery Administration, Policy and Planning Service.
(2015). National Cemetery Administration Summary of Veteran Interments: FY2000 to FY2014 [Data Set].

Furthermore, VA data also shows that veterans’ burial preferences have changed. While
only 36 percent of veterans laid to rest in national cemeteries chose to be cremated in
2000, that percentage increased by 16 percent over the next 13 years, with 52 percent
selecting cremation in 2013. 20 This means that by 2013, over half of the veteran
population laid to rest in VA cemeteries preferred cremation. This trend could impact
veterans’ future preferences at ANC, potentially driving the need for additional space or
new designs for columbaria and other structures. However, it is over-simplistic to assume
that veterans’ increasing preferences for cremation will necessarily save space. As of
19

Department of Veterans Affairs, Office of Policy and Planning, Office of the Actuary. (2015). Veteran
Population Model 2014. Retrieved from
http://www.va.gov/vetdata/docs/Demographics/New_Vetpop_Model/VetPop2014Document.pdf
20 Department of Veterans Affairs, Office of Policy and Planning, Office of the Actuary. (2015). Veteran
Population Model 2014. Retrieved from
http://www.va.gov/vetdata/docs/Demographics/New_Vetpop_Model/VetPop2014Document.pdf

 12
2016, out of the approximately 7,000 interments/inurnments scheduled on average per
year at ANC, roughly 30 percent are casketed and 70 percent are cremated.
Approximately 40 percent of these interments/inurnments are above-ground (in
columbaria or niche walls) and 60 percent are in-ground burials. This means that
currently a large percentage of those opting for cremation still prefer in-ground inurnment,
if they are eligible. In the future, if burial preferences continue to favor cremation, ANC
should evaluate the impact of different space configurations and gravesite sizes on the
cemetery’s capacity.
When determining the future of Arlington National Cemetery and the best way to honor
our Nation’s heroes, the two factors of ANC’s physical space and the eligible veteran
population are critical to the discussion. ANC is projected to reach maximum burial
capacity in less than 30 years, without changes to one or both of these factors. Section
3 discusses potential options for preserving the cemetery’s capacity well into the future.

3. Shaping the Future: Potential Options and Action Plan
3.1

Framework for Evaluating Options

ANC’s future is a question of national significance that resonates deeply with a multitude
of different stakeholder groups. This perspective has been affirmed through ANC’s recent
stakeholder engagements (see appendix G). Diverse perspectives and voices add layers
of complexity to the decision, including those of veterans and their family members;
veterans’ groups; the uniformed Services; Congress; and the United States public. For
example, the Advisory Committee and many other stakeholders agree that preserving
ANC as an active cemetery is important, especially for those killed in action and recipients
of awards like the Medal of Honor. Keeping ANC an active cemetery honors our war
heroes and maintains and preserves it as a living part of American culture. Yet, based
on ongoing discussion, some stakeholders have different ideas about the best way to
achieve these goals.
Shaping ANC’s future must be a process that honors these various perspectives, while
also acknowledging the urgency of making swift and proactive decisions. Unfortunately,
there are no easy answers or quick fixes. Resolution of this issue will require difficult
dialogue, choices, actions, and national fortitude. Delaying a decision reduces the
cemetery’s lifespan due to the numerous services held each day. This section provides
an analytical framework and set of options for evaluating this issue, as well as an action
plan for making a decision.
This is a complex, multi-dimensional issue, and as such, this report does not lay out a
specific solution. Rather, as requested by Public Law 114-158, it provides a set of
legislative actions and non-legislative options that could help to extend the capacity of
ANC well into the future. Some of these actions and options, presented in figure 8, might
be used in combination to produce different outcomes. The most effective course of action
could be a hybrid of multiple options introduced over time.

 13

Figure 8: Table of options (for detailed descriptions see appendix H)

When evaluating potential options, there are various criteria that factor into the decision,
outlined in figure 9. Each of the columns in figure 9 represents criteria to be considered.
Some of these naturally compete against each other, while others are complementary.
This report evaluates how well each of the options depicted in figure 8 meets these
various criteria (Section 3.3 discusses this analysis).

Figure 9: Description of criteria

 14
Figure 10 depicts the general methodology
that ANC applied to determine feasible,
acceptable, and suitable courses of action
(COAs) that achieve the end-state
required by Public Law 114-158. First,
ANC began with the vision defined in
Public Law 114-158 and then generated a
set of possible options to achieve it. ANC
and the Army then defined and validated
the set of criteria proposed in this report,
and worked with stakeholders to analyze
the options using those criteria. Finally,
ANC developed a set of two sample COAs
which serve as a theoretical exercise to
evaluate the potential impacts of two
example combinations of options. This
process and methodology are applied
throughout the remainder of this report. In
the future, ANC can use this same
framework as a blueprint for evaluating
additional options and new COAs that may
arise. The COAs presented here are
theoretical and do not represent a real
decision point or plan of action.

Figure 10: Methodology for sample COA development

3.2

Options to Explore: Legislative Actions and Non-Legislative Options
that Ensure Arlington National Cemetery Does Not Reach Capacity
Until Well into the Future

This section discusses each of the three broad categories of options and how well they
meet the criteria.
3.2.1 Option 1: Redefining eligibility criteria for interment and inurnment at Arlington
National Cemetery.
Mentioned in Public Law 114-158, one of the most significant factors that impacts ANC’s
future capacity is eligibility policy. 21 Should the way-ahead for ANC include a change to
eligibility policy, an ongoing national dialogue and the support of Congress will be vital.
This option includes a number of potential scenarios for changing eligibility. It is important
to note that many potential changes to eligibility would mean that some veterans who are
21 The Secretary of the Army, with the approval of the Secretary of Defense, shall determine eligibility for
interment or inurnment in the Cemeteries. 10 USC 4722 (a)(1).

 15
currently eligible will become ineligible for burial at ANC and must choose other burial
options. NCA and other national or State veterans’ cemeteries offer burial services to
veterans at the highest standards and provide highly dignified burials and perpetual care
of the gravesites. These cemeteries exist to meet the needs of the veteran population
and will continue to be a valued option for veterans and their families at their time of need.
Section 2.2 discusses ANC’s current eligibility criteria. Figure 11 (in-ground) and figure
12 (above-ground) show the applicable eligibility category for veterans and dependents
interred at ANC from calendar year 2004-2015. 22

*
*

Increase attributed to more effective data
collection and metric analysis by ANC

Figure 11: Source: Arlington National Cemetery, Interment Services System (2016.)

As depicted in figures 11-12, approximately 7,000 people were honorably interred or
inurned annually at ANC from 2004 to 2015. Each year this included an average of 200
Service members who died on active duty, 240 veterans with qualifying awards
(decorated veterans), approximately 4,000 retirees, and other veterans with honorable
service and at least one day of active duty service. The other approximately 2,500
decedents were spouses, eligible dependents, or other qualifying groups.

*Other – Decedents classified as Eligible Previous CFR, Disability (Legacy), POW, Same Grave
Exception, Exception per the Secretary of the Army, Public Office Officials – Applies to figures 11-12
22 Arlington National Cemetery, Interment Services System (2016).

 16

*
Increase attributed to more effective data
collection and metric analysis by ANC

Figure 12: Source: Arlington National Cemetery, Interment Services System (2016.)

As shown in figure 13, the retired veteran population is currently the most common
category for ground burial at ANC, and includes retirees with qualifying awards. The
percentage of veteran decedents with qualifying awards at ANC is relatively small and
fluctuates between 0.5 percent and 1.2 percent of the annual national veteran decedent

With Southern Expansion—Early. 2050s

Without Southern Expansion—Early 2040s

Figure 13: Forecast of available ANC space by veteran population and time

 17
population. 23 The two largest groups of veterans impacting the rate of burials at ANC are
veterans with an honorable discharge and at least one day of active duty service (not for
training), and retirees. While honorably discharged veterans are limited to inurnment,
retirees may choose either option as they desire. These two populations make up the
majority of services at ANC. No options achieve the end-state of preserving ANC well
into the future—required in Public Law 114-158—while also including these two groups
without a change to current eligibility policy. Eligibility policy changes that include only
one of these groups merely delay the closing of the cemetery until later this century.
On the other hand, options that limit burials to only those most sacred of veterans’
groups—those who have died in service and/or received the highest awards—do achieve
this end-state. Referencing the same chart, we find that restricting eligibility to those
populations of the most highly revered veterans allows the cemetery to remain open well
into the future—even without expansion of the cemetery’s geographic footprint. There is
a precedent for policy changes that limit eligibility in such a way, most notably with the
decision of Secretary of Defense Robert McNamara in the late 1960s. 24 The Army and
ANC acknowledge that this is an extremely difficult and deeply personal matter for many
veterans; however tough decisions are required if the Nation desires to keep ANC active
well into the future. This section discusses the different eligibility scenarios and options
available.
3.2.1.1

Option 1A—(non-legislative option): Maintaining current eligibility.

The first option is to maintain current eligibility standards. However, as discussed
throughout this report, the status quo is not a viable option if the goal is to extend ANC
as an active cemetery well into the future. While this option does avoid disenfranchising
some veterans’ groups, trend analysis shows that ANC is projected to reach capacity in
the early 2040s without significant expansion or a change in eligibility policy. 25
Maintaining current eligibility does not meet the objectives defined in Public Law 114-158.
3.2.1.2

Option 1B—(non-legislative option): Adopting the Department of Veterans
Affairs requirement for a 24 month active duty service minimum.

Based on analysis of ISS data from March 2016, few veterans are laid to rest at ANC who
do not also meet the basic VA eligibility requirement for time in service. Adopting this
option would result in approximately 200 less services annually—or about 2 weeks of
longevity of the cemetery for each year after this policy is enacted. Additionally, this
option would also slightly shorten wait times for services at the cemetery for the remaining
eligible population. This option alone does not achieve the end-state but could be
adopted in combination with other options.

23

Arlington National Cemetery, Interment Services System (2016).
The Secretary of Defense, McNamara, Robert S. (1966). MEMORANDUM FOR THE PRESIDENT.
[Memorandum]. Washington, DC: Department of Defense.
25 Center for Army Analysis. (2016). Arlington National Cemetery Planning Tool [Data Set and Modeling
Tool].
24

 18
3.2.1.3

Option 1C—(non-legislative option): Restrict eligibility criteria to retirement
from the armed Services at certain lengths of service.

Another option is to restrict eligibility to retirees with certain length of service (i.e., 25 to
30 years, etc.) Service members would still be eligible if they are killed in action, die on
active duty, and/or receive qualifying awards, regardless of their length of service.
This option would likely achieve the objective of extending ANC’s time as an active
cemetery well into the future (depending on what the final decision is for length of service).
However, it will exclude a large number of veterans who are currently eligible.
Furthermore, restricting eligibility to those with specific lengths of service would likely
disenfranchise certain veterans’ groups and be viewed negatively by the public—based
on feedback received from active duty personnel, veterans, and military service
organizations (MSOs) that ANC consulted in this analysis process.
3.2.1.4

Option 1D—(non-legislative option): Changing eligibility criteria for only those
Service members killed in action, who die on active duty, and/or recipients of
qualifying awards (Medal of Honor, Silver Star, Distinguished Service Cross, or
the Purple Heart).

This option, as well as Options 1E and 1F, involves restricting eligibility significantly. Only
those killed in action, those who die on active duty, or decedents with qualifying awards
would be eligible for burial at ANC. Based on casualty figures from the most recent United
States conflicts and rates of active duty deaths (approximately 200 per year selected
burial at ANC from 2004 to 2015), this option is projected to lengthen the lifespan of the
cemetery by more than two centuries if implemented today—even without further
expansion of ANC’s geographical footprint. However, if our Nation experiences a largescale conflict in the future and higher numbers of Service members were killed in action,
it would directly shorten the projection.
Realistically, this change could take up to 5 to 10 years to plan and implement due to the
lengthy policy and/or legal processes required, operational planning, and any grace
periods granted to veterans. During this time the cemetery would continue to conduct
services and consume space at the current rate. As a result, the cemetery would remain
active only until the mid to late-2100s.
This option would have a positive impact on capacity and does achieve the end goal of
keeping ANC open will into the future. However, it would exclude the large population of
retirees and honorably discharged veterans, some of whom may already envision being
laid to rest at ANC.
3.2.1.5

Option 1E—(non-legislative option): Changing eligibility criteria for only those
Service members killed in action, who die on active duty, and/or recipients of
the Medal of Honor.

 19
Option 1E, is a variation from Options 1D and 1F, which each seek to preserve ANC for
some portion of the most revered of veteran populations. Option 1E differs from 1D in
that it limits the criteria which would make a veteran eligible—establishing the Medal of
Honor as the only qualifying award, in addition to remaining open for those Service
members who are killed in action or who die on active duty. Even without physical
expansion, this option would extend ANC’s capacity well into the future. However, it
would exclude the vast majority of veterans, which is a point of concern for some
stakeholders.
As mentioned in Option 1D, ANC has served an average of approximately 200 Service
members killed in action or on active duty per year in recent years. Less than 800 Service
members have received the Medal of Honor since World War II. This population size is
far less than the nearly 400,000 veterans who have received the other qualifying awards
listed in Option 1D. So, by significantly restricting eligibility, this option would delay
closure of the cemetery by roughly 150-200 years.
It is important to note that most of those veterans—excepting those who have less than
24 months of service and the appropriate discharge—would retain their current eligibility
for burial at VA cemeteries. The NCA has 135 national cemeteries across the United
States which exist to serve this group and the rest of our qualified veteran population.
While effective at expanding ANC’s longevity as an active cemetery, this option would
have an immediate, dramatic impact on the number of interments at ANC. Potential
impacts to cemetery operations and ANC’s iconic ceremonial nature would require
evaluation.
3.2.1.6

Option 1F—(non-legislative option): Changing eligibility criteria for only those
Service members killed in action and/or recipients of the Medal of Honor.

The most restrictive eligibility option, Option 1F would allow only Service members killed
in action and/or Medal of Honor recipients to be buried at ANC. This option is similar in
benefits and risks to Option 1E. This option focuses the cemetery on the most sacred
group of Service members: those who are killed in action and Medal of Honor awardees.
As mentioned in Options 1D and 1E, these populations have been low based on casualty
rates from recent conflicts and this option can be expected to result in delaying the closure
of ANC for at least two centuries—unless our Nation experiences large scale conflict and
higher numbers of Service members killed in action.
3.2.1.7

Option 1G—(non-legislative option): Changing eligibility for in-ground burials
and above-ground inurnment separately.

Option 1G is a hybrid approach which would involve stricter criteria for in-ground burial,
but leave eligibility for above-ground inurnment more open (though possibly still including
some changes). For example, in-ground burial/inurnment could be restricted to those
killed in action, who die on active duty, and/or recipients of qualifying awards, but the
columbarium and niche walls could be open to retirees, or those with a certain length of

 20
service. This option maintains inclusiveness for a larger group of veterans, while still
preserving space for the most cherished populations of veterans.
Of all the eligibility-based options, this option may be the most feasible, acceptable, and
suitable. It not only achieves the objective of Public Law 114-158, but also meets many
of the criteria in figure 9. This option does not create new capacity or expand the
cemetery’s footprint in and of itself. However, it does ensure access to ANC for our most
revered groups of veterans for many years to come while also ensuring that most or all
currently eligible veterans remain eligible for above-ground inurnment until that capacity
runs out.
Under this option, ANC would remain active for ground burials for those most sacred
groups of eligible veterans until the approximately the middle of the next century. All other
groups of veterans would then remain eligible for above-ground inurnment. The risk
associated with this option is that above-ground space—the columbarium and niche
walls—would reach capacity far sooner than the remainder of the cemetery. In this case,
niche or columbaria capacity would reach 100 percent in the late 2020s. While ANC could
build additional space for above-ground inurnments, the cemetery would need to acquire
additional land and carefully evaluate impacts to ANC’s iconic look and feel.
The next section explores options to expand ANC’s physical space and geographic
footprint.
3.2.2 Option 2: Considerations for additional expansion opportunities beyond current
boundaries of the cemetery.
The second option, to expand ANC’s current geographical footprint to provide more
space, is mentioned in Public Law 114-158. Opportunities for expansion include State
and local government, Federal Government, and privately owned properties adjacent to
ANC. The majority of this land is developed and actively used by Government and private
interests. This land consists of 448 acres of Government-owned land and 65 acres of
privately owned land (see figure 15; all acreages listed are approximations).

Figure 14: Key data for ANC expansion efforts (as of 2 Feb 2017)

 21
The most recent expansion at
ANC is the Millennium
Expansion Project.
Initial
planning began in 2004 and
the
project
will
reach
completion later this year—
having taken 12 years to
accomplish. This substantial
project is predicted to extend
the life of the cemetery by
nearly 7 years given current
eligibility policy.
The next expansion ANC is
pursuing is the proposed
Southern Expansion Project
(discussed also in paragraph
3.2.2.1). While the project is
still in the planning stages,
ANC estimates that the
proposed project will extend
the life of the cemetery for
roughly 10 to 15 years.
Expansion could be an
effective option for increasing
ANC’s future capacity, and this
section describes several
opportunities.
However,
acquiring land and completing
the associated engineering Figure 15: Map of ANC with potential adjacent land expansion opportunities
highlighted
work to execute such options
takes a substantial investment
of time and resources (see figure 14), during which the cemetery moves closer to capacity
each day. If a decision is made to expand ANC’s physical space, it is also important to
consider any impacts on the iconic look and nature of the cemetery.
3.2.2.1

Option 2A—(legislative action): Solidify the land acquisition and fully fund the
proposed Southern Expansion Project.

The Army requests that Congress continue to support and fully fund the proposed
Southern Expansion Project. Development of the proposed project site is the subject of
ongoing negotiations, planning, and design. This project has not yet received funding or
full concurrence of all parties involved. The new property would expand the southern
boundaries of the cemetery adding approximately 38 acres of land adjacent to the United
States Air Force Memorial. ANC’s intent is to develop the property in a manner that

 22
represents the best use of the land with consideration for maintaining the iconic look and
feel of ANC while also seeking to gain maximum burial opportunities. 26 ANC estimates
that this proposed expansion will provide 40,000 to 60,000 first interment burial
opportunities. It is critical to note that this estimated space is not figured into the
projections for the capacity and lifespan of the cemetery discussed in Section 2. With
land agreements and funding for the proposed Southern Expansion Project, ANC’s
capacity could extend into approximately the early 2050s, based on current projections
and assumptions.

Figure 16: “Conceptual rendering of an early planning concept considered for the development of the Southern
Expansion site.” Rendering from the ANC Southern Expansion Project Planning Charrette Report, 2016

3.2.2.2

Option 2B—(legislative action): Supporting transfer of adjacent Federal lands
to Arlington National Cemetery.

There are 448 acres of Government-owned land adjacent to the cemetery, including land
currently owned by the National Park Service, Joint Base Myer-Henderson Hall, and the
Department of Defense. The transfer of some of this land would expand the cemetery’s
physical footprint and extend capacity by creating roughly 1,200 burial opportunities per
acre. For every 4 acres of land, ANC would gain roughly 1 year of longevity. As an
example, if the Henderson Hall (25.32 acres) portion of Fort Myer were transitioned to
ANC use, the closing of the cemetery would be delayed 7 years.
This option is highly effective at meeting many of the criteria in figure 9. However, the
cost of these options is also an important consideration. Historically, even relatively easy
transfers of land (those parcels already belonging to the Government such as the land
ANC is using for the Millennium Project) and the subsequent transition of the property to
cemetery use have taken a decade or more and cost the Government tens of millions of
dollars per year of extended cemetery life (see figure 14). Another consideration is that
all Government land adjacent to the cemetery is currently developed and there is a cost
associated with relocating the functions that reside in those locations.

26

Real Property Master Plan 2013, Arlington National Cemetery 2014 Reprint

 23
There are different ideas for how this land should be utilized in the future. Regardless,
preserving the iconic look and nature of the cemetery must be a foremost concern in any
new space. The impact of roadways and other infrastructure, traffic from vehicles and
aircraft, and the overall viewshed and vistas must be considered in evaluating land for
future use by ANC.
3.2.2.3

Option 2C—(legislative action): Establishing a new Department of Defense
national cemetery in a new location.

ANC, as it operates today, cannot endure forever in its current space. Looking 100-200
years into the future, how and where will we honor our Nation’s heroes? Another option,
which the Army recognizes would represent a significant change, is establishing a new
Department of Defense-run national cemetery in another location. This would mean
building a new cemetery in a suitable place that would offer the same burial honors as
ANC. While it is impossible to recreate the aesthetic appeal and history of ANC, this new
cemetery could grow to become iconic over time, in the same way that ANC has gradually
evolved over the past 150 years. Establishing a new cemetery could take decades to
plan and implement. Planning considerations would include the need to procure land and
locate the cemetery near an installation that has active duty Service members from all
five branches of the military assigned; establishing new funeral honors teams, chaplains,
cemetery operations and support staff; and building appropriate facilities for families,
visitors, and cemetery staff, as well as for the horses and equipment used in the
ceremonies and cemetery operations. Further consideration might be given regarding
whether this ANC-like cemetery is managed by the Department of the Army or the
Department of Veterans Affairs. As it stands, ANC personnel count against Army force
structure whereas those positions might be used to fill requirements for a warfighting
headquarters if the cemetery was managed by another department.
If this option is desirable, it would be necessary to begin planning in the near future.
Operating ANC as an active burial ground for as long as possible would allow a phase of
overlap and continuity while establishing the new space. However, if the foremost priority
and objective of Public Law 114-158 is preserving ANC within its current geographic
location in the Washington, DC area, then this option would be undesirable.
3.2.3 Option 3: Other alternative approaches.
In addition to the options already described relating to eligibility criteria and opportunities
for expansion, there may be other creative, if non-traditional, approaches to extend ANC’s
time as an active cemetery.
3.2.3.1

Option 3A—(non-legislative option): Reimagining new ways to use existing
space.

Depending on the vision and priorities for ANC’s future, one option could include
reimagining ways to use existing space more efficiently. For example, this could include
the expansion of above-ground inurnment capacity with additional columbaria and/or

 24
niche walls or other new structures and designs. As discussed in
Section 2.2, burial preferences in the United States are changing,
and an increasing number of veterans are choosing cremation.
ANC could find new ways to incorporate additional options for
inurnment that would preserve the iconic view and nature of the
cemetery while also creating more burial opportunities. There is
already a precedence for this option at ANC, as shown by the
creation of the initial columbarium in 1980 and the more recent use
of niche walls throughout the cemetery. Additionally, especially for
new areas such as the Millennium Project space, ANC is evaluating
the impact of different gravesite sizes and configurations on
capacity, aesthetics, and operations. For example, in addition to
the traditional 5 foot by 10 foot or larger gravesites, ANC is
exploring the use of 3 foot by 8 foot gravesites for in-ground
inurnment and interment.
New techniques—such as green burials–could provide innovative
alternatives for burials at ANC. One green burial option, whereby
a tree is planted above an in-ground burial site, could add some
capacity (although only a small amount) by utilizing the space
where future trees are planned. This would preserve the beauty of
the green landscape, and also offer a burial choice that would be
attractive to some veterans. Some VA cemeteries also offer
memorial gardens, beautifully designed spaces where families can
scatter their loved ones’ ashes. The veteran or family member is
then typically commemorated with their name on a wall or plaque.
Lastly, as burial preferences and practices change, newer options
are emerging. Techniques like resomation, an eco-friendly waterbased alternative to cremation, could open up new possibilities in
the future. While these alternative approaches are non-traditional,
Option 3A shows that there are other creative ideas in addition to
expanding or changing eligibility criteria. To further explore this
idea, the Army requests that Congress support and fund a study in
partnership with the VA to analyze veterans’ future burial
preferences at both ANC and VA cemeteries.
3.2.3.2

Summer flowers and plants grow outside
Columbarium Court 5

Joint committal service for six veterans
from all branches of the Armed Forces
during the dedication of Columbarium
Court 9

Niche wall with the Washington
Monument in the distance

Option 3B—(non-legislative option): Preserving a set
number of spaces for decedents killed in action, who die
on active duty, and/or with qualifying awards.

In this option, ANC could preserve a pre-determined number of
spaces for certain groups of Service members, namely those killed
in action, who die on active duty, and/or with qualifying awards
such as the Medal of Honor. Eligibility criteria for the rest of the
spaces could remain the same, as well as ANC’s current
geographic footprint.
Alternatively, eligibility criteria and/or

Level II Arboretum: Virginia State CoChampion Pin Oak located near the
Memorial Amphitheater

 25
physical space could also change. In either case, this option offers a hybrid approach by
preserving ANC for our national heroes well into the future, without disenfranchising
certain veterans’ groups. However, the trade-off is that ANC’s overall capacity and
timeframe as an active cemetery would be shorter than the option for limiting eligibility
criteria only to those Service members killed in action, who die on active duty, and with
qualifying awards (Option 1D).
Using recent averages of combat and active duty deaths and burial rates of those with
qualifying awards, for each 1,000 burial spaces preserved, ANC would gain
approximately 2 years of burials for those Service members who are killed in action, die
on active duty, or with qualifying awards. For example, if ANC preserved 20,000 burial
plots, the cemetery would remain open for these groups of decedents for approximately
40 years beyond the date that the cemetery would close for first interments otherwise.
3.2.3.3

Option 3C—(legislative action): Prohibiting the future use of Arlington National
Cemetery space for the purpose of erecting monuments other than those
memorials containing individual or group remains.

Throughout ANC there are numerous memorials erected to commemorate specific
groups of veterans. One type of memorial exists to honor situations where multiple
Service members or individuals perished as a group, and their remains are interred there.
Another type of memorial that can be found at ANC is the individual memorial marker.
Public Law 112-154 instructed ANC to use space not suitable for human remains to
memorialize those Service members whose remains were never recovered due to being
lost at sea, missing in action, or other causes. 27 ANC currently has several sections of
the cemetery dedicated to this purpose—and expects to continue to find small portions of
land suitable for this honorable purpose.
In contrast, there are monuments that do not contain any remains, and exist specifically
to represent a particular group. This collection of monuments does occupy space in the
hallowed grounds which could otherwise become the final resting place or memorial
marker for our war heroes. These types of monuments could be erected in other places
throughout our Nation’s capital and still honor those groups in a meaningful way. ANC
would request that Congress prohibit the placement of any monument on ANC grounds
for any group or individual which does not commemorate remains and is not considered
to be a memorial gravesite for a service member. This option alone would not solve the
existing dilemma, but would help preserve the space for the future and for its intended
sacred purpose, just as the Commemorative Works Act of 1986 has done for the core of
our historic capital city. 28

27
28

House Reports 1627, Pub. L. No. 112-154, 126 Stat. 1165 (2012)
House Reports 4531, Pub. L. No. 99-625, (1986)

 26
3.2.3.4

Option 3D—(legislative action): Partnering with Congress and the Department
of Veterans Affairs to enhance the Department of Veterans Affairs services.

There are also options that are external to ANC, but which could meet the intent of
providing desirable choices for our veterans in other places. This view advocates that
perhaps the country would benefit from more than just an “All Arlington Solution.” For
example, Congress and the Army could partner with the VA to enhance the level of
service at VA funerals, making them more like the ceremonies at ANC. While VA
cemeteries have a similar iconic look as ANC, with the orderly rows of white headstones
and columbaria, one of the major differences is that ANC offers services such as full
military honors. These services, currently offered at ANC for those eligible, include a
bugler; escort platoon; military band; caisson; and riderless (Caparisoned) horse and
cannon or gun salute for some officers. By providing the appropriate level of additional
funding and resources for the VA, the Nation could extend these services at VA
cemeteries as well, and standardize the level of service afforded to all veterans across
the country. While it would require garnering the view of the VA, time, careful planning,
and significant resources, it may be worth studying other alternative ways of honoring our
veterans external to ANC.
The Army recognizes that there could be other creative ideas to address the future of
Arlington National Cemetery, and the Army and Congress should solicit feedback from
the various stakeholder groups and the public. This process may illuminate new ideas to
honor the iconic nature of ANC in an innovative and respectful way.

 27

3.3

Evaluating the Options and Courses of Action

3.3.1 Key findings and take-aways regarding the options for extending Arlington National
Cemetery as an active cemetery
The options in this report cover a wide range of possibilities. Using the framework
discussed in Section 3.1, it is clear that there are no options that provide an easy decision;
each has benefits and risks. The criteria are subjective and stakeholders will prioritize
them differently. Figure 17 provides a summary evaluation of each of the options
discussed against the criteria:
Overall, this evaluation yields several general conclusions:
1. In order to significantly extend ANC’s capacity well into the future, changes to
either eligibility criteria and/or expansion of the cemetery’s geographic
footprint are required.
2. The most effective course of action is likely a hybrid solution with a
combination of different options.
3. This decision must be a national dialogue and stakeholder feedback will be
critical to making the best decision for the country.
4. Expansion: In order to increase capacity, the Secretary of the Army and ANC
request funding and approval for the proposed Southern Expansion Project, as
well as consideration of future expansion into adjacent Federal lands. It is the
intention of the Army to develop any additional parcels in a manner consistent with
the iconic look and feel of ANC today.
5. Eligibility: Any choice to change eligibility at ANC is difficult and personal for
many veterans. The Army and ANC do not desire to disenfranchise or adversely
harm any particular group of veterans. At the same time, difficult decisions and
bold choices are required if the Nation wishes to extend ANC as an active burial
ground well into the future. The Secretary of the Army respectfully requests that
the Secretary of Defense and Congress support the Army as difficult eligibility
decisions are debated.
6. Other Alternatives: There may be other viable and acceptable alternatives that
could be combined with eligibility changes and/or expansion. For example, ANC
could explore new approaches for using existing space, which also accommodates
changing burial preferences.
As stated earlier, this is a highly complex issue and there are no easy options. Each one
presents potential benefits, risks, and trade-offs. While some options can be
implemented relatively quickly, others will take far longer. Some options will result in little
public dialogue, while others will likely involve strong and emotional feedback from the
United States public about how we see our iconic national cemetery evolving into the
future. In terms of efficacy, there are some options that, individually, would achieve the
objective of Public Law 114-158, yet others would only have a slight impact on the overall
longevity of the cemetery. Most notably, the options that would have the greatest impact

 28
on extending ANC’s longevity on their own are also likely to be the most difficult in terms
of public opinion.
3.3.2 Evaluating potential courses of action for the future of Arlington National
Cemetery
As discussed above, the most feasible, acceptable, and suitable solution is likely a
combination of several options into a COA that both gains the support of the Nation and
also achieves the objective of preserving ANC as an active, iconic shrine for all to honor,
remember, and explore the devotion of our war heroes to a greater cause. While a
number of different combinations of options could achieve the objective, this report
discusses two sample courses of action. While they are only meant to be examples,
these two sample COAs are achievable. The intent of this section is to provide a method,
framework, and ideas for evaluating these two sample COAs, as well as others that the
Army, ANC, Congress, and the other stakeholders involved, including veterans, may
propose in the future.
This section includes an overview of the following items:
• A description of the options included in each sample COA and the major high level
activities for each, by phase (See appendix I for a detailed breakdown of the sample
COA analysis).
• Impacts of each sample COA on the capacity of the cemetery over time.
• The key advantages and disadvantages involved with each sample COA.
• An overall summary and analysis of each sample COA.
In the context of this report, each sample COA provides additional details that describe
what type of action will occur; when the action will begin;
where the action will occur; why the action is required According to Joint Publication
(purpose); and how the action will occur. In addition to 5-0, Joint Operation Planning,
providing this information, the report also estimates the a COA is a potential way
results of the combined impacts of options within each (solution, method) to
sample COA. Each sample COA also contains a brief accomplish the assigned
summary of considerations that may be taken into mission or end-state.
account if the sample COA is selected for action or future
action through legislative or non-legislative means. Sections 3.3.3 and 3.3.4, as well as
appendix I, provide additional detail on the two sample COAs presented in this report. To
reiterate, these example courses of action are not intended to be recommendations, but
examples that demonstrate how phasing multiple options over time can also achieve the
desired end-state.

 Option 1: Eligibility

Option 2:

Option 3: Other

Expansion

Alternatives

Evaluating Options for Extending ANC as an Active Cemetery

Kev

 

Criteria

 



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Negative Impact

Neutral Impact

 

 

29

 

Emit? ?pad?, for Ensures access for certain Aw?: til I nchisin; Maintain: Maintains ANC Expansion with

?rst lmermentej groups for as long ?5 within its current

lnummants POHIMB KM.- physical space

Maintain current

eligibility

Adopt VA's requirement for 24 month
active duty senrice minimum

Retirees at or above
certain of service

Killed in action, who die on
.ilcliw: qualifying awards
Killed in action, who die on active
duty, 5 Medal 01 only
Killed in action it.

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grouncl burials only

Proposed Southern
I-xpansion l?rnjircl

adjacent Government Lands

Establish new Department nl'
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existing space



?Preserve" set number of

spaces for killed in
actiun, clic: rm Heliutr
duty and Medal ul lionoi

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for erecting monuments

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mirror ANC's

*Manv ofthese options are not mutuallv exclusive and the best course of action may,r he a combination oi options

.0. . a. -. 

Figure 17: Evaluating options for extending ANC as an active cemetery



{Mil-{rig 

certain merw? groups itnnic bolt mm?; land

Minimal time to
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30
3.3.3 Sample course of action 1
Sample COA 1 achieves the end-state required by Public Law 114-158 by phasing
several options over time for a combined effect. Sample COA 1 favors minor expansion
of the cemetery’s footprint and major eligibility changes, phased in over a long period of
time. (Note: Years listed are only an approximation. Phases in this sample COA will
typically not begin until a preceding phase is complete.)
Immediate actions (1-3 years):
• Option 1B, adopting the VA’s requirement for a 24 month active duty service
minimum.
• Option 2A, solidify the land acquisition and fully fund the proposed Southern
Expansion Project.
Mid-range actions (3-10 years):
• Option 1G, changing eligibility for in-ground burials and above-ground inurnment
separately.
Far-term actions (10-20 years):
• Option 1F, changing eligibility for inurnment or interment to those killed in action or
who have received the Medal of Honor. Active-duty, non-hostile decedents will be
laid to rest in VA cemeteries.

Figure 18: Options included in sample COA 1

3.3.3.1

Major activities for sample course of action 1

If sample COA 1 were to be selected in the future, Phase 1 would begin upon notification
to the Secretary of Defense of the details of the COA. The initial action during this COA
would be the decision by the Secretary of the Army (or Congress—if legislated) to adopt

 31
the VA’s requirement for a 24 month active duty service minimum. A Code of Federal
Regulations (CFR) change shall be implemented as soon as reasonable. Phase 1 ends
upon both the completion of land acquisition suitable for the accepted design of the
proposed Southern Expansion Project and the project being fully funded.
Phase 2 begins upon the funding of the proposed Southern Expansion Project and ends
upon decision by the Secretary of the Army to modify burial policy for in-ground burials
and above-ground inurnment at ANC.
Phase 3 begins when the Secretary of the Army completes implementation of the
modified burial policy for in-ground burials and above-ground inurnment, and ends upon
the decision by the Secretary of the Army to preserve the remaining cemetery space for
our Nation’s Service members who are killed in action and recipients of the Medal of
Honor. Policy implementation should occur no later than fiscal year 2038.
For a more detailed discussion of the options, activities, and timelines for this sample
COA, see appendix I.
3.3.3.2

Summary of analysis for sample curse of action 1:
disadvantages

Key advantages and

Key advantages: Sample COA 1 offers a feasible and suitable approach to extending
ANC as an active cemetery for our most revered groups of veterans, those who are killed
in action or recipients of the Medal of Honor, until roughly
Sample COA 1:
the year 2265. When combined with the services offered
Key
Take-Aways
by the VA, and the phased nature of the sample COA, the
sample COA becomes more publically acceptable. In the This sample COA:
short-term, sample COA 1 standardizes eligibility criteria • Preserves the cemetery well
by adopting the VA’s 24 month active duty service
into the future (approximately
minimum, which would reduce confusion for veterans
the year 2265) for those killed
regarding eligibility criteria, and also make more spaces
in action and Medal of Honor
and services available at ANC for veterans with longer
recipients
service periods. Additionally, rather than taking effect
immediately, sample COA 1 offers an incremental, long- • Allows for a gradual shift in
policy changes in order to
term approach to phase in eligibility changes, giving
educate the public on the need
veterans and their family members time to plan and adjust.
for such a change and give
Sample COA 1 also includes extending ANC’s physical
space to provide additional burial opportunities via the
veterans time to plan
proposed Southern Expansion Project, which is currently • Balances conservative land
the most cost effective and operationally viable option for
expansion with eligibility
expanding the cemetery’s physical footprint using
changes
contiguous space.
Given that most of the land
surrounding ANC is currently in use, selecting a sample
COA that minimizes the need for expansion will also reduce the burden on the taxpayer
associated with future expansion efforts.

 32
Key disadvantages: Sample COA 1 does offer some disadvantages, namely that by the
end of Phase 3, the vast majority of veterans would be excluded from burial at ANC. It is
important to note, however, that ANC will close to burials for all veteran populations
regardless by mid-century, unless significant changes
are made. Another potential risk of sample COA 1 If nothing is done to preserve
occurs in Phase 2, when the large population of retired Arlington National Cemetery, it
veterans would only be eligible for above-ground will close by mid-century. ANC
inurnment in the columbaria or niche walls. This change will not have remaining space
would generate significantly increased demand for for any veteran, even those
above-ground space, resulting in columbaria and niche who exhibit extraordinary valor
walls running out of space more quickly than in-ground or who make the ultimate
space. This scarcity could in turn generate greater public sacrifice for our country.
demand for additional above-ground space, and any new
designs—specifically, proposed Southern Expansion Project designs—would require
careful consideration to avoid altering the iconic look and nature of the cemetery. Lastly,
careful coordination and planning would be required to ensure that the VA is prepared to
serve the additional veterans who would no longer be laid to rest at ANC. For a more
detailed list of the benefits, risks, assumptions, and constraints for this sample COA, see
appendix I.
5.3.3.3. Summary and analysis of sample course of action 1
Sample COA 1 achieves the end-state of the law by preserving the cemetery well into the
future. Recalling figure 9 it is important to note that the options selected for sample COA
1 accomplish most of the criteria. Overall, the sample COA creates new capacity at the
cemetery through the proposed Southern Expansion Project; ensures access to the
cemetery for our Nation’s Service members who are killed in action and Medal of Honor
recipients; maintains the iconic look of the cemetery; limits the need for future land
expansion beyond the proposed Southern Expansion Project; and can be implemented
as quickly as the Secretary of the Army deems necessary. Unfortunately, this option does
run the risk of disenfranchising a large portion of our veteran population. However, by
nature our veterans are a population that may value the need and self-sacrifice required
to preserve space for our future fallen heroes and those who are commended for their
valor in the most trying of circumstances. Provided that veterans are given the complete
and accurate information to make this decision, they may also support this sample COA
example.
3.3.4 Sample course of action 2
Sample COA 2 achieves the end-state required by Public Law 114-158 using a phased,
holistic approach. Sample COA 2 offers some overlap with the options proposed in
sample COA 1, but this sample COA example also favors more aggressive land
expansion, more moderate eligibility changes phased in over time, and exploration of
other alternative approaches to expanding ANC’s capacity. (Note: Years listed in
projections for this sample COA are only an approximation.)

 33
Immediate actions (1-3 years):
• Option 1B, adopting the VA’s requirement for a 24 month active duty service
minimum.
• Option 3C, prohibiting the future use of ANC space for the purpose of erecting
monuments other than those memorials containing individual or group remains.
• Option 2A, solidifying the land acquisition and fully funding the proposed Southern
Expansion Project.
Mid-range actions (3-10 years):
• Option 3B, preserving a set number of spaces for decedents killed in action, who die
on active duty, and/or with qualifying awards.
• Option 2B, supporting transfer of adjacent Federal lands to ANC.
• Option 1G, changing eligibility for in-ground burials and above-ground inurnment
separately.
Far-term actions (10-20 years):
• Option 3A, reimagining new ways to use existing space.
• Option 2B, supporting transfer of adjacent Federal lands to ANC.

Figure 19: Options included in sample COA 2

 34
3.3.4.1

Major activities for sample course of action 2

In sample COA 2, Phase 1 would begin upon the notification to the Secretary of Defense
of the details of the COA. The initial action during this COA is the decision by the
Secretary of the Army (or Congress—if legislated) to adopt a 24 month active duty
requirement for eligibility for ANC Phase 1 ends upon both the completion of land
acquisition suitable for the accepted design of the proposed Southern Expansion Project,
as well as receipt of full funding for the project. Phase 1 also includes the passing of a
law or policy regarding new monuments at ANC.
Phase 2 begins upon the funding of the proposed Southern Expansion Project and ends
upon the decision by the Secretary of the Army to modify burial policy for in-ground burials
and above-ground inurnment at ANC. During this same timeframe, Phase 2 also includes
the preservation of approximately 20,000 burial locations for those Service members who
are killed in action or who receive the Medal of Honor, as well as planning for the transfer
of adjacent Federal lands to ANC.
Phase 3 begins when the Secretary of the Army completes implementation of the
modified burial policy for in-ground burials and above-ground inurnment, and ends upon
the completion of the transfer of Government lands adjacent to the cemetery for cemetery
use.
For a more detailed discussion about the options, activities, and timelines for this COA
example, see appendix I.
3.3.4.2

Summary of analysis for sample course of action 2: Key advantages and
disadvantages

Key advantages: Sample COA 2 offers a holistic approach that includes options from all
three of the major categories of options (eligibility, expansion, and other alternative
approaches). Like sample COA 1, sample COA 2 offers a feasible and suitable approach
to extending ANC as an active cemetery for our Service members who are killed in action
or recipients of the Medal of Honor, until roughly the late 2190s. While this timeframe is
shorter overall than that achieved by sample COA 1 (which is estimated to extend ANC
for these groups until roughly the early 2290s), sample COA 2 leaves a broader
population of veterans eligible for ANC, including Service members who die on active
duty, as well as recipients of other qualifying awards. Like sample COA 1, sample COA
2 also standardizes minimum eligibility criteria with the VA in the short-term by adopting
the 24 month active duty service minimum in Phase 1, while gradually shifting to more
selective eligibility criteria starting in Phase 2. This provides time for stakeholders,
including veterans and the VA, to plan and adjust well in advance of upcoming changes.
One of the major differences from sample COA 1 is that sample COA 2 relies more heavily
on land expansion into adjacent Federal lands to increase the cemetery’s physical
footprint. This expansion serves to increase the overall space, capacity, and longevity
available to ANC, balanced with more moderate eligibility changes. Overall, greater land

 35
expansion makes it possible to serve a broader veteran
Sample COA 2:
population than sample COA 1 well into the future. Lastly,
Key Take-Aways
sample COA 2 includes the possibility of exploring other
alternatives to using existing space. This could include This sample COA:
the adoption of new designs for columbaria and niche • Is a holistic approach
walls; a different ratio of above-ground versus in-ground • Preserves ANC well into the
space in new areas of the cemetery; and/or innovative
future (approximately 2198) for
approaches that could become more technologically
those Service members killed
feasible and socially acceptable in the future, such as the
in action, on active duty, or
use of memorial gardens for scattering loved ones’ ashes,
with qualifying awards
or new techniques such as resomation. While not
• Balances phased eligibility
currently included in ANC’s capacity projections, if
changes with aggressive land
adopted this option could offer a way to potentially expand
expansion
ANC’s capacity and longevity even further in the future.
• Opens the door for new
alternative approaches to
Key disadvantages: As a whole, sample COA 2 is more
above-ground space, which
complex than sample COA 1, which means that it carries
could further extend ANC’s
a somewhat higher level of risk for planning, coordination,
public outreach and messaging. Since several of the
capacity and longevity in the
options selected overlap in both of the sample COAs,
future
sample COA 2 and sample COA 1 offer some of the same • Allows for a gradual shift in
disadvantages. By the end of Phase 3, similar to sample
policy changes in order to
COA 1, the large population of veterans would not have
educate the public on the need
an opportunity to be inurned at ANC, due to lack of
for such a change and gives
available above-ground space. This is because sample
veterans time to plan
COA 2 proposes a shift in eligibility policy for aboveground versus in-ground space. This will likely generate
increased demand for above-ground space, which is projected to run out in roughly 2077
in sample COA 2. Careful planning and coordination with the VA are required to ensure
it is prepared to serve a greater number of veterans with the level of service they have
come to expect.
Sample COA 2 also offers some unique disadvantages. First, by taking a more
aggressive approach to expanding ANC into adjacent Federal lands, sample COA 2
carries a number of risks. At a high level, some of these risks include, among others: a
long timetable for planning and greater potential for expansion efforts to fall through;
reliance on lengthy political and legal processes for procuring approvals and funding;
potential disruptions to the surrounding community; and unintended political and social
consequences that may arise from shifting land usage. Additionally, we note that the cost
of expansion may increase during this implementation timeline. As stewards of our
Nation’s resources we should be mindful of this cost—and of the point where this cost
may become excessive to such a degree that taxpayer support wanes.
The other key disadvantage that is specific to sample COA 2 relates to the idea of
reimagining new ways to use existing space. By nature, this option is uncertain, as it
leaves room for innovative new options that could arise in the future as a result of evolving

 36
burial technology and changing social norms and burial preferences. While this option
has the potential to significantly increase ANC’s capacity, it could also represent a major
shift in the way that some stakeholders have traditionally viewed ANC, including its iconic
nature and look. For this reason, this option could be seen as controversial for some
stakeholders. For a more detailed list of the benefits, risks, assumptions, and constraints
for this sample COA example, see appendix I.
3.3.4.3

Summary and Analysis of Sample COA 2

Sample COA 2 does achieve the end-state of Public Law 114-158 by preserving Arlington
National Cemetery well into the future. Like sample COA 1, the options selected for
sample COA 2 accomplish most of the criteria laid forth in this report in figure 9. It is a
holistic approach. In summary, sample COA 2 ensures access to ANC well into the future
for our Service members who are killed in action or on active duty, as well as recipients
of the Medal of Honor; creates new capacity for the cemetery by completing the proposed
Southern Expansion Project and also expanding into adjacent Federal lands; introduces
phased eligibility changes over time and ultimately leaves a broader population of
veterans eligible than sample COA 1; and leaves room to pursue innovative new
alternatives for reimagining existing unused space and expanding capacity in the future.
On the other side, unfortunately, this option does run the risk of disenfranchising a portion
of our veteran population by making them no longer eligible for ANC, or by changing their
eligibility from in-ground to above-ground. Sample COA 2 carries significant potential
risks and costs to the taxpayer regarding expansion into adjacent Federal lands; and
could potentially impact the cemetery’s traditional iconic look and nature, depending on
how the options are implemented. If this sample COA were to be selected, Army and
ANC leaders would need to identify and evaluate any potential impacts in these areas,
as well as others that may arise, and maintain an open dialogue with stakeholders.
As discussed, these sample COAs are presented as a theoretical exercise to demonstrate
how some of the options in the report could be combined to achieve a solution that is
feasible, acceptable, and suitable while achieving the desired end-state. They do not
represent a real decision point or plan of action at this time. Regardless of the course of
action ultimately chosen, the American public should view this decision-making process
as a positive opportunity to participate in our democracy—just as they did through their
elected Congress by requiring this report from the Army. This process will spur our Nation
to truly analyze what Arlington National Cemetery means to us as a people—a people
that honor our war heroes who symbolize the same profound ideals of patriotism and selfsacrifice that brought us all together as a Nation in 1776. Section 3.4 discusses the next
steps for continuing this process of national dialogue and decision-making.

3.4

An Action Plan for Shaping the Future of Arlington National Cemetery

ANC’s capacity shrinks with each passing day, so it is imperative to act quickly and
decisively in order to proactively shape its future. In the 1960s, ANC was only two years
away from closing before the issue received attention at the national level. Today, we
have the opportunity to act far sooner. This report lays out a set of legislative actions and

 37
non-legislative options for addressing this challenge, as well as two sample courses of
action and a recommended framework and criteria for evaluating them, and others that
will arise. The Army and ANC request the support of Congress as difficult decisions
regarding eligibility changes and expansion options are considered.
It is critical to facilitate an inclusive process that honors the different voices and
perspectives at stake. Since Public Law 114-158 was signed, ANC has employed a
vigorous engagement strategy in order to involve stakeholders in the discussion and gain
a sense of the attitudes toward this issue. ANC staff has met with a variety of groups
including many veteran service organizations (VSOs) and military service organizations
(MSOs) who serve our veteran and active duty populations, congressional staff, and the
Advisory Committee. For a list of the stakeholders that ANC has engaged thus far, see
appendix G. During these important meetings, the ANC staff has discovered a wide range
of beliefs regarding the purpose of ANC and how to keep the cemetery active well into
the future. Yet, however wide-ranging these views are, a few common threads do exist
that represent a solid starting point for discussion. First, stakeholders feel that ANC
should remain a viable and active cemetery for our Service members who are killed in
action or who die on active duty—not only for the near-term, but for many years to come
and for conflicts we have yet to imagine. Second, a change in eligibility at ANC raises a
number of concerns with some VSOs/MSOs. Some feel that ANC should exhaust
expansion options first before pursuing eligibility change options. Finally, many
stakeholders believe that, at minimum, eligibility for ANC and the VA cemeteries should
be the same.
More dialogue and engagement are needed over the coming months and years in order
to shape the future of ANC and how we honor our Nation’s war heroes. Discussion on
these options and courses of action should continue at a series of open meetings whereby
stakeholders can voice their opinions and raise key issues for debate.

Figure 20: Report Planning Process

 38
In order to make informed decisions throughout this process, the Army will continue to
refine capacity projections over time. As discussed in Section 2, some of these questions
will require further study. For example, to further understand veterans’ needs in the
future, ANC would benefit from additional data that is currently unavailable, such as more
detailed information about veterans’ burial preferences (burial or cremation, attitude
toward green burials, etc.) by age group and other demographics.
As an icon in our national consciousness and an important part of national culture and
history, the future of Arlington National Cemetery is a matter that impacts the entire
Nation. In particular, it personally affects our armed Service members and their loved
ones, especially those who make the ultimate sacrifice for their country and deserve to
be laid to rest with the utmost honor and respect.
Deciding the future of Arlington National Cemetery must therefore become part of a
continued national dialogue. What is the vision for ANC? What are the most important
factors in determining how long ANC should remain an active cemetery? Which of the
options and criteria, or a combination of them, represent the best solution for our veterans
and the country? Lastly, knowing that Arlington National Cemetery cannot continue
forever in its current state, how will we honor our war heroes and veterans over the next
100-200 years or more?

 A-1

A. Reference Documents
DOCUMENT
Army National Cemeteries Program
1
Campaign Plan 2012 (January 1, 2012)

USE
ii. Mission Statement

2

Executive Summary

3

4

5

6

7

8

9
10

House Report 4336, Pub. L. No. 114-158,
130 Stat. 394 (2016)
Center for Army Analysis. (2016). Arlington
National Cemetery Planning Tool
[Data Set and Modeling Tool].
The Secretary of the Army, with the approval
of the Secretary of Defense, shall determine
eligibility for interment or inurnment in the
Cemeteries.10 USC 4722 (a)(1).
United States Department of Veterans
Affairs, Office of Public Affairs, Memorial Day
(n.d.) History Retrieved from
http://www.va.gov/opa/speceven/memday/his
tory.asp
History, 1868 Civil War Dead Honored on
Decoration Day (n.d.).
http://www.history.com/this-day-inhistory/civil-war-dead-honored-ondecoration-day
United States Department of Veterans
Affairs, National Cemetery Administration.
(2015). National Cemeteries Dates
Established and First Burials [Fact Sheet].
Retrieved from
http://www.cem.va.gov/docs/factsheets/estab
lish.pdf.
The Secretary of Defense, McNamara,
Robert S. (1966). MEMORANDUM FOR
THE PRESIDENT. [Memorandum].
Washington, DC:
Department of Defense.
National Cemeteries Act of 1973, Pub. L. No.
93-43, 72 Stat. 1117 (1973)
United States Department of Veterans Affairs
National Cemetery Administration. (2015).
History and Development of the National
Cemetery Administration [Fact Sheet].
Retrieved from
http://www.cem.va.gov/cem/docs/factsheets/
history.pdf

SOURCE
Arlington
National
Cemetery
Public Law

Executive Summary

Center for
Army Analysis

Executive Summary

United States
Code

1. Arlington National Cemetery:
An Icon of Living History

United States
Department of
Veterans
Affairs

1. Arlington National Cemetery:
An Icon of Living History

History.com

1. Arlington National Cemetery:
An Icon of Living History

United States
Department of
Veterans
Affairs

1. Arlington National Cemetery:
An Icon of Living History

United States
Department of
Defense

1. Arlington National Cemetery:
An Icon of Living History
1. Arlington National Cemetery:
An Icon of Living History

Public Law
United States
Department of
Veterans
Affairs National
Cemetery
Administration

 A-2
Real Property Master Plan 2013, Arlington
National Cemetery 2014 Reprint (December
22, 2014).
CAA. (2015, March). Arlington National
Cemetery – Southern Expansion Project
(ANC-SEP) In Progress Review. Presented
at the Federal Advisory Committee on
Arlington National Cemetery.
Arlington National Cemetery, Interment
Services System (2016).

2.1 The Impact of Space on
ANC’s Capacity

14

Department of Veterans Affairs, National
Cemetery Administration, Policy and
Planning Service. (2015). National Cemetery
Administration Summary of Veteran
Interments: FY2000 to FY2014 [Data Set].

2.2 The Impact of Eligibility and
Veteran Demand on ANC’s
Capacity

15

Department of Veterans Affairs, Office of
Policy and Planning, Office of the Actuary.
(2015). Veteran Population Model 2014.
Retrieved from
http://www.va.gov/vetdata/docs/Demographic
s/New_Vetpop_Model/VetPop2014Documen
t.pdf
House Report 1627, Pub. L. No. 112-154,
126 Stat. 1165 (2012)
House Report 4531, Pub. L. No. 99-625,
(1986)

2.2 The Impact of Eligibility and
Veteran Demand on ANC’s
Capacity

11

12

13

16
17

2.2 The Impact of Eligibility and
Veteran Demand on ANC’s
Capacity

2.2 The Impact of Eligibility and
Veteran Demand on ANC’s
Capacity

3.2.3 Option 3: Other
Alternative Approaches
3.2.3 Option 3: Other
Alternative Approaches

Arlington
National
Cemetery
Center for
Army Analysis

Arlington
National
Cemetery,
Interment
Services
United States
Department of
Veterans
Affairs National
Cemetery
Administration
United States
Department of
Veterans
Affairs

Public Law
Public Law

 B-1

B. Terms of Reference
TERM

DEFINITION

Capacity
Caparisoned
Center for Army
Analysis (CAA)
Capacity Tool
Columbarium

Availability of locations to support a first interment or inurnment
An ornamental or decorative covering for a horse
Analytical modeling tool built by the CAA to assess capacity at ANC

The Advisory
Committee
Decedent
Eternal Flame
First Interment or
Inurnment
Green Burial

Honor Flight
Interment
Interment Services
System (ISS)
Inurnment
Memorial Garden
Millennium Project

Niche Wall
The Old Guard

Qualifying Awards

Resomation
Southern
Expansion

A room, building, or wall with niches for funeral urns to be perpetually stored for decedents
who are laid to rest
The Federal Advisory Committee on Arlington National Cemetery established by the
Federal Advisory Committee Act
Individual person who passes away and is interred or inurned
Iconic site at ANC. A natural gas-fed torch commemorated at President Kennedy’s grave
site that is specifically designed to continuously light regardless of inclement weather
The first, or initial, interment or inurnment of a veteran, spouse, or dependent into an
available burial or niche space
An interment or inurnment with minimal environmental impact that aids in the conservation
of natural resources, reduction of carbon emissions, protection of worker health, and the
restoration and/or preservation of habitat
Conducted by a non-profit organization dedicated to transporting United States military
veterans to see memorials in Washington, DC at no cost to the veterans
The act of burying a deceased individual. Includes both casketed burials and in-ground
burial of cremated remains
ANC’s system of record for electronic decedent records
To entomb or to place cremated remains in an urn. At ANC, inurnment can be in-ground
or above-ground in a columbarium or niche wall
A space designed for families to scatter the ashes of their loved ones, with the individual
typically commemorated on a wall or plaque
Expansion project near completion (2017) that will provide 27 contiguous acres to ANC.
Located to the northwest of current ANC grounds. Estimated capacity of 27,282 spaces
(10,882 spaces for ground burial and 16,400 spaces for above-ground inurnment)
A walled structure within or on the perimeter of a cemetery with niches to perpetually store
funeral urns for decedents who are laid to rest
The Third United States Infantry (The Old Guard) is the ceremonial unit assigned to the
Military District of Washington. They are a fully trained infantry unit and perform a variety
of ceremonies
Veterans who are recipients of specific awards are eligible for interment/inurnment at ANC.
These awards include the Medal of Honor, Distinguished Service Cross, Navy Cross, Air
Force Cross Distinguished Service Medal, Silver Star, and or Purple Heart
A new water-based alternative to cremation
A proposed expansion of ANC’s southern boundaries with approximately 38 acres of
contiguous land adjacent to the United States Air Force Memorial. ANC estimates the
expansion will provide between 40,000 and 60,000 first interment burial opportunities

 C-1

C. List of Acronyms
ACRONYM
ABMC
ANC
ANMC
CAA
CFR
COA
DoD
GIS
HVAC
ISS
MSO
NCA
NCS
PMESII
PSM
SAHNC
SVAC
VA
VSO

EXPLANATION
American Battle Monuments Commission
Arlington National Cemetery
Army National Military Cemeteries
Center for Army Analysis
Code of Federal Regulations
Course of Action
United States Department of Defense
Geospatial Information System
United States House of Representatives Committee on Veterans’ Affairs
Interment Services System
Military Service Organization
National Cemetery Administration
National Cemetery System
Political, Military, Economic, Social, Infrastructure, and Information Systems
Professional Staff Member, United States Congress
United States Soldiers' and Airmen’s Home National Cemetery
United States Senate Committee on Veterans’ Affairs
United States Department of Veterans Affairs
Veterans Service Organization

 D-1

D. Historical Review of Arlington National Cemetery Eligibility

Figure 21 History of eligibility changes at ANC

 D-2
Timeline of ANC Eligibility Changes
• May 13, 1864 – ANC became one of the first 12 national cemeteries established
– Original standard of “…soldiers who shall die in the service of the country.”
• 1948 - 1951 – codified in 24 USC 281
– Interment of the following classes of persons: all members or former
members of the armed Services whose last service terminated honorably;
any citizen who served or who hereafter serves with the armed forces of an
ally and whose service terminated honorably; the spouse, minor children
and, with the discretion of the Secretary of the Army, unmarried adult
children of those named in the first two categories
– First publishing of eligibility rules in the Code of Federal Regulations (CFR)
32 CRF part 553 (27 Nov 1951)
• 1952 – Prohibited persons convicted of certain crimes
• 1956 – Amended CFR
– Interment of members of the Reserve components, the Army or Air National
Guard and ROTC whose death occurs, in general, while in an active duty
status or authorized inactive duty status or while being hospitalized
• 1967 – Amended CFR
– Limiting interments to members of the active duty Armed Forces, retired
members of the Armed Forces, Medal of Honor recipients and elected
officials or high level appointees who had served on active duty in the
Armed Forces and had been honorable discharged
• 1970 – Amended 1952 crime language
– Been convicted of a crime, the result of was the loss of the United States
citizenship, a sentence of death, a sentence of imprisonment for five years
or more, or more or any sentence for offenses involving subversive activities
• 1973 – National Cemeteries Act
– Moved the majority of the National Cemeteries from the Department of the
Army to Department of Veterans Administration (VA) with the notable
exception of Arlington National Cemetery and United States Soldier’s and
Airmen’s Home National Cemetery
– Repealed 24 USC 281. However, the law specifically stated; “…nothing in
the law shall be deemed to affect in any manner the functions, powers, and
duties of the Secretary of the Army with respect to those cemeteries…” not
transferred from the Army to the VA. Public Law 93-43
• 1977 – Formal Rule Making
– Adding recipients of the Distinguished Service Cross, Distinguished Service
Medal, Silver Star and Purple Heart to those eligible for interment at ANC.
32 CFR part 553

 D-3
• 1980 – Columbarium opens / CFR is amended (current)
– Allowing for inurnment of Service members, Veterans and their eligible
family members. The Army, through formal federal rule making, allowed for
inurnment of all honorable discharged Veterans who served on active duty
for other than training
• 1994 – Authorizes interment former POWs under certain criteria
• 1997 – Persons who have been convicted of certain capital crimes and die after
– January 1, 1997 are denied eligibility for interment or inurnment at ANC.
This law is codified at 38 USC 2411
• 2011 – Authority of the Secretary of the Army
– Given specific statutory authority to determine eligibility for interment and
inurnment at Arlington National Cemetery
– Approval from the Secretary of Defense required
– Formal notice and comment rulemaking required
– Codified at 10 USC 4722 (Public Law 112-81)
• 2013 – Tier III Sex Offenders
– Persons who have been convicted of certain sex offenses and die after
January 10, 2013 are denied eligibility for interment or inurnment
– 38 USC 2411 (Public Law 112-260)
•

May 20, 2016 – Amendment to Section 2410 of title 38 USC
– Provide for the inurnment in Arlington National Cemetery of the cremated
remains of certain persons whose service has been determined to be active
service
– A person whose service has been determined to be active duty service
pursuant to section 401 of the GI Bill Improvement Act of 1977 (Public Law
85-202; 38 USC 106 note)
•

The remains of a person that are not formally interred or inurned as
of the date of the enactment of the this Act; and

•

A person who dies on or after the date of the enactment of this Act.

 E-1

E. Comparing Eligibility at Arlington National Cemetery and the Department of Veterans
Affairs Cemeteries (Most Common Eligibility Criteria)
Key:
 = Eligible
X = Ineligible

Eligibility Criteria*

Arlington National
Cemetery

VA National Cemeteries

In-Ground
AboveIn-Ground
Interment/
Ground
Interment/
Inurnment
Inurnment
Inurnment
Veterans with active duty service beginning before September 7, 1980 for enlisted; service beginning before October 16, 1981 for officers



Killed in action and active duty



Qualifying awards (Medal of Honor, Distinguished Service Cross, Navy Cross, Air Force Cross
Distinguished Service Medal, Silver Star, Purple Heart)



Any retired member of the Armed Forces
X


Type of Discharge: Honorable discharge Length of service: at least 1 day of active duty service
X
X

Type of Discharge: Greater than a dishonorable discharge, but less than an honorable discharge
(i.e. general discharge under honorable conditions, other than honorable discharge (OTH), bad
conduct discharge) Length of Service: any length of service
X
X
X
Type of Discharge: Dishonorable discharge Length of Service: Any length of service
Veterans with active duty service beginning after September 7, 1980 for enlisted; service beginning after October 16, 1981 for officers
Killed in action and active duty



Qualifying awards (Medal of Honor, Distinguished Service Cross, Navy Cross, Air Force Cross



Distinguished Service Medal, Silver Star, Purple Heart)
Any retired member of the Armed Forces



Type of Discharge: Honorable discharge Length of Service: Between 1 day to 24 months of
X

X
active duty service
Type of Discharge: Greater than a dishonorable discharge, but less than an honorable
X
X

discharge (i.e. general discharge under honorable conditions, other than honorable discharge
(OTH), bad conduct discharge) Length of Service: At least 24 months of active duty service
Type of Discharge: Greater than an dishonorable discharge, but less than an honorable
X
X
X
discharge (i.e. general discharge under honorable conditions, other than honorable discharge
(OTH), bad conduct discharge) Length of Service: Less than 24 months of active duty service
Type of Discharge: Dishonorable discharge Length of Service: Any length of service
X
X
X
Family Members of Qualifying Veterans
Spouse of service member (based on service member’s eligibility)




AboveGround
Inurnment






X




X


X
X


 E-2
Dependents (minor child or dependent adult child incapable of self-support due to physical or
mental condition)
Dependents (unmarried adult child who is under 21 years of age or who is under 23 years of
age and pursuing full-time course of instruction at an approved educational institution)
Other exceptions and qualified populations*

























*There are numerous exceptions and other qualified groups eligible for interment and/or inurnment at ANC and VA National Cemeteries. For full eligibility criteria and exceptions,
visit the Arlington National Cemetery website at http://www.arlingtoncemetery.mil/Funerals/Scheduling-a-Funeral/Establishing-Eligibility/ and the VA National Cemetery Administration
website at http://www.cem.va.gov/burial_benefits/eligible.asp

 F-1

Figure 22: Screenshot of ANC Cemetery Planning (Capacity Modeling) Tool

F. Screenshot from the Center for Army Analysis Capacity
Modeling Tool

 G-1

G. Stakeholder Engagement Register
Purpose: Arlington National Cemetery is engaging various stakeholders in discussions
about the cemetery’s current capacity and the options available to extend the life of the
cemetery well into the future. Some of these stakeholders include: Service members;
veterans and their family members; Veterans Service Organizations and Military Service
Organizations; the United States Congress; the Department of Defense; and the United
States public.
This Stakeholder Engagement Register provides a list of the stakeholders that the
cemetery has engaged to date to obtain feedback and questions on the ANC Interment
and Inurnment Capacity Report to Congress. This list does not constitute an
endorsement of this report; it only means that ANC has engaged the stakeholder to begin
a dialogue.
ANC will continue to engage stakeholders after publishing the report and as part of the
process of making final decisions on the cemetery’s future.
STAKEHOLDER (As of December 13, 2016)

DATE ENGAGEMENT
OCCURRED

Advisory Committee on Arlington National Cemetery

23 August 2016

Advisory Committee on Arlington National Cemetery

6-7 September 2016

National Military Family Association

21 September 2016

Military Officer’s Association of America

21 September 2016

Commissioned Officers Association of the US Public Health Service

21 September 2016

US Army Warrant Officers Association

21 September 2016

Air Force Sergeants Association

21 September 2016

Vietnam Veterans of America

21 September 2016

Fleet Reserve Association

21 September 2016

Association of the United States Army

21 September 2016

Non-Commissioned Officers Association of the USA

21 September 2016

Staff Member, Committee on Veterans’ Affairs, United States Congress

27 September 2016

Staff Member, Subcommittee on Disability Assistance and
Memorial Affairs, United States House of Representatives

27 September 2016

MSO/VSO Roundtable – United States Senate Committee on Veterans’
Affairs (SVAC) and United States House of Representatives Committee
on Veterans’ Affairs (HVAC) Staff
Advisory Committee on Arlington National Cemetery

19 October 2016
24-25 October 2016

ANMC-NCA-ABMC Joint Working Group

9 December 2016

SVAC and HVAC Professional Staff Member (PSM) update briefing

15 December 2016

SVAC and HVAC PSM update briefing
Advisory Committee on Arlington National Cemetery

10 January 2017
23-24 January 2017

 H-1

Figure 23: Definitions of options for extending ANC as an active cemetery

H. Definitions of Options to Extend Arlington National Cemetery
as an Active Cemetery

 I-1

I. Detailed Breakdown of Course of Action Analysis: A
Framework for Evaluating the Sample Courses of Action
This section is a continuation of Section 3.3 and provides a more detailed analysis
regarding the two sample courses of action (COAs) presented in this report. This section
explores the major activities for each phase, as well as the key benefits, risks,
assumptions, and constraints. These sample COAs are presented as a theoretical
exercise to show how some of the options in this report could be combined, and to provide
a blueprint for evaluating future COAs and recommendations. These sample COAs and
the corresponding analysis do not represent a real decision point or plan of action at this
time.
Sample COA 1:

Figure 24: Options included in sample COA 1

If sample COA 1 were to be selected in the future, the following section provides a phaseby-phase breakdown of the high level activities that would be associated with that
example COA. This is a theoretical exercise and should not be interpreted as an action
plan at this point.
Overview of Major Activities for Sample COA 1 by Phase
Phase 1
Phase 1 begins upon notification to the Secretary of Defense of the details of the COA.
The initial action during this COA would be the decision by the Secretary of the Army (or
Congress—if legislated) to adopt a 24 month active duty requirement for eligibility for
ANC. A CFR change shall be implemented as soon as reasonable. Phase 1 ends upon
both the completion of land acquisition suitable for the accepted design of the proposed
Southern Expansion Project, as well as receipt of full funding for the project.

 I-2

Option 1B involves adopting the VA’s requirement for a 24 month active duty service
minimum. Changing eligibility standards to match the VA’s service-length requirement
will reduce confusion with eligible veterans and their families at their time of need—and
when planning for that occasion. This change is not intended to impact the type of
discharge and character of service requirement for ANC; ANC will continue to require an
honorable discharge. The cemetery currently serves a small number of veterans annually
who would not also qualify for a VA cemetery due to the VA’s requirement for 24 months
of active duty service. These veterans would need to make alternative arrangements. To
clarify, this scenario does not apply to Service members who are killed in action with less
than 24 months of active duty service.
Option 2A involves solidifying the land acquisition and fully funding the proposed
Southern Expansion Project. The most immediate parcel of land available to expand
ANC is the land formerly occupied by the Navy Annex and intended for transfer to the
Army for use as cemetery grounds. Due to the need to arrange for the transfer/acquisition
of land with Arlington County and the Commonwealth of Virginia, the re-routing of public
roadways, and land usage agreements, this project has required a significant amount of
negotiations. Upon reaching an agreement on the land acquisition, the Army will request
funding to complete the expansion. Cost estimates for this expansion are available in
figure 14.
Phase 2
Phase 2 begins upon the funding of the proposed Southern Expansion Project and ends
upon the decision by the Secretary of the Army to modify burial policy for in-ground burials
and above-ground inurnment at ANC.
Option 1G involves changing eligibility for in-ground burials and above-ground inurnment
separately. During phase 2, the Secretary of the Army will direct ANC to provide inground, first interment honors (either casketed or cremated) to Service members who are
killed in action, who die on active duty, and/or are recipients of qualifying awards. ANC
will continue to serve the retiree population by providing above-ground inurnment
opportunities until above-ground capacity is reached, or until Phase 3 policy changes
occur. Those veterans who received an honorable discharge and who also served at
least 24 months of active duty service will remain eligible for VA cemeteries.
Implementation of Option 1G should occur 24 months following the start of Phase 2. This
purposeful delay will provide time for the VA to prepare to support an increased number
of services for those retired veterans who might choose ground burial at a VA cemetery
rather than inurnment at ANC.
Phase 3
Phase 3 begins when the Secretary of the Army completes implementation of the
modified burial policy for in-ground burials and above-ground inurnment, and ends upon
the decision by the Secretary of the Army to preserve the remaining cemetery space for
our Nation’s Service members who are killed in action and recipients of the Medal of
Honor. Policy implementation should occur no later than fiscal year 2041.

 I-3

Option 1F involves changing eligibility for interment or inurnment for those Service
members who are killed in action or who have received the Medal of Honor. Active-duty,
non-hostile decedents will be laid to rest in VA cemeteries.

 I-4
The chart below visually depicts the major phases, activities, and timeframes that would be associated with sample COA 1,
as discussed in the section above.

Figure 25: Major phases, activities, and timeframes for sample COA 1

 I-5
Considerations for Sample COA 1: Analysis of Benefits, Risks, Assumptions, and
Constraints
The following table explores a number of considerations that are important to take into
account, if sample COA 1 were to be selected. The benefits, risks, assumptions, and
constraints are evaluated according to their impacts in the following dimensions: political,
military, economic, social, information, and infrastructure. This type of analysis is known
and the PMESII model, which is used extensively in military planning.

Considerations for Sample COA 1
•
•
•
•
•
•
•
Benefits

•
•
•

•
•
Risks

•
•

Preserves ANC well into the future for veterans who are killed in action and/or
recipients of the Medal of Honor (Military, Social, Political)
Maintains a balance between expansion and eligibility changes (Political,
Economic)
Provides veterans and family members time to plan and adjust to eligibility
incrementally over a long period of time (Military, Social)
Standardizes ANC’s eligibility standards more closely with those of the VA,
reducing confusion for veterans (Political, Military, Social)
Provides time for the VA time to adjust to ANC’s eligibility changes and to
prepare to serve a larger population of veterans (Political, Military)
Helps to preserve ANC’s iconic nature (presuming columbaria is a balanced
approach) (Infrastructure, Social)
Is relatively cost effective compared with other options (Economic,
Infrastructure)
• Supports the proposed Southern Expansion Project, which is currently the
most operationally feasible expansion option being considered
• Avoids significant future costs to the taxpayer by not pursuing additional
land expansion for the foreseeable future
• Minimizes disruption to surrounding communities, roadways, and
Government installations by avoiding future contiguous land expansion
efforts
Preserves space for any unanticipated increases in active duty deaths due to
future military conflicts (Military, Information)
Makes more space available for veterans with greater than 24 months of
honorable active duty service (Military, Social)
Should the COA be stopped at any phase, there is still a residual benefit to
capacity (Political, Social)
Some veterans, including the large retiree population, may feel
disenfranchised by the change to above-ground only eligibility (Social, Military)
The long-term, phased concept could provide an opportunity to “over-analyze”
the problem and promote indecisiveness, while ANC capacity diminishes
every day (Political, Information)
Some stakeholders may not understand the urgency or full impacts of the
problem (Social, Information)
Mid-term eligibility changes may place pressure for more columbaria
expansion, which could alter the iconic look and nature of ANC (Infrastructure,
Social)

 I-6
•
•
•

•
•
•

Assumptions
•
•
•
•

•
•
•
Constraints
•
•
•

If the proposed Southern Expansion Project is not funded, then ANC will have
to rely on eligibility and/or other alternative approaches to address the
capacity problem
Political pushback could cause Congress to legislate ANC’s eligibility
standards, which would make future legal changes/evolutions more difficult
and complex (Political)
Some eligibility criteria are currently based in law (for example, Public Law
114-158), while others are not (Most of ANC’s eligibility policy is currently
determined by the Secretary of the Army) (Political, Social)
•
In the future, there could be unintended benefits given to some groups
based on the current legal exceptions, and not others (i.e. if the Secretary
changes ANC eligibility policy, Congress would have to overturn the
current laws granting certain groups access, or allow those specific groups
to continue being eligible)
Stakeholders desire to preserve space at ANC for those veterans who are
killed in action or who are recipients of the Medal of Honor well into the future
(Social, Military)
Stakeholders desire to preserve the iconic nature and look of Arlington
National Cemetery (Social, Infrastructure)
The proposed Southern Expansion Project effort will continue forward as
planned (Infrastructure)
• Land and construction agreements with Arlington County will be
established and/or remain in place
• Congress will fund the proposed Southern Expansion Project
The VA will support and have the capability to absorb the increased
population of veterans (Political, Economic, Infrastructure, Military)
The rate of veterans served by ANC will remain consistent based on recent
yearly averages and operational capacity (Information)
Congress will support the policy and legislative changes needed to extend
ANC’s capacity well into the future (Political, Economic)
Those veterans who are killed in action and/or are recipients of the Medal of
Honor and their families will prefer in-ground burials (Social)
Time is a key constraint (regarding the cemetery’s capacity and longevity,
decision-making, implementation, etc.) (Political, Economic)
Some eligibility criteria are currently based in law, while others are not (Most
of ANC’s eligibility policy is currently determined by the Secretary of the Army)
(Political, Social)
Physical: contiguous space near ANC is finite and costly (some land is
currently in use and all of it is owned by different Government agencies or
other groups) (Infrastructure, Economic, Political, Social)
Funding amounts and/or limits will constrain expansion options (i.e. for the
proposed Southern Expansion Project) (Economic)
ANC’s operational capacity constrains the rate of interments/inurnments
(Infrastructure, Economic, Social)
Decisions and changes must be acceptable to stakeholders

 I-7
Sample COA 2:

Figure 26: Options included in sample COA 2

If sample COA 2 were to be selected in the future, the following section provides a phaseby-phase breakdown of the high level activities that would be associated with that
example COA. This is a theoretical exercise and should not be interpreted as an action
plan at this point.
Overview of Major Activities for Sample COA 2 by Phase
Phase 1
Phase 1 begins upon notification to the Secretary of Defense of the details of the COA.
The initial action during this phase is the decision by the Secretary of the Army (or
Congress—if legislated) to adopt a 24 month active duty requirement for eligibility for
ANC. A CFR change shall be implemented as soon as reasonable. Phase 1 ends upon
both the completion of land acquisition suitable for the accepted design of the proposed
Southern Expansion Project, as well as receipt of full funding for the project.
Option 1B involves adopting the VA’s requirement for a 24 month active duty service
minimum. Changing eligibility standards to match the VA’s service-length requirement
will reduce confusion with eligible veterans and their families at their time of need—and

 I-8
when planning for that occasion. This change is not intended to impact the type of
discharge and character of service requirement for ANC; ANC will continue to require an
honorable discharge. The cemetery currently serves a small number of veterans annually
who would not also qualify for a VA cemetery due to the VA’s requirement for 24 months
of active duty service. These veterans would need to make alternative arrangements. To
clarify, this scenario does not apply to Service members who are killed in action with less
than 24 months of active duty service.
Option 3C prohibits the future use of ANC space for the purpose of erecting
commemorative monuments other than those memorials containing individual or group
remains. As ANC has few monuments that do not mark remains and foresees no negative
impact to the individual veteran or family as a result of this change. This option may be
accomplished concurrently with Option 1B if the Secretary of the Army or Congress
desire. This change will directly result in the preservation of space for individual “in
memory of” markers—as required by law.
Option 2A involves solidifying the land acquisition and fully funding the proposed
Southern Expansion Project. The most immediate parcel of land available to expand
ANC is the land formerly occupied by the Navy Annex and intended for transfer to the
Army for use as cemetery grounds. Due to the need to arrange for the transfer or
acquisition of land with Arlington County and the Commonwealth of Virginia, re-routing of
public roadways, and land usage agreements, this project has required a significant
amount of negotiation. Upon reaching an agreement on the land acquisition, the Army
will request funding to complete the expansion. Cost estimates for this expansion can be
found in figure 14.
Phase 2
Phase 2 begins upon the funding of the proposed Southern Expansion Project and ends
upon the receipt of funding for expansion of the cemetery into adjacent Government
lands.
Option 3B preserves approximately 20,000 burial locations throughout the cemetery for
those who are killed in action or who have received the Medal of Honor. However, ANC
will not begin using these plots until the cemetery otherwise reaches capacity for inground burials.
Option 2B asks that Congress support the transfer of adjacent Federal lands to ANC for
cemetery use. During Phase 2 the Government will determine the parcels of adjacent
Government land that will be transferred during Phase 3.
Option 1G involves changing eligibility for in-ground burials and above-ground inurnment
separately. During Phase 2, the Secretary of the Army will direct ANC to provide inground, first interment honors (either casketed or cremated) to Service members who are
killed in action, who die on active duty, and/or are recipients of qualifying awards. ANC
will continue to serve the retiree population by providing above-ground inurnment
opportunities until above-ground capacity is reached. Those veterans who received the

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proper discharge and who also served at least 24 months of active duty service will remain
eligible for VA cemeteries. Implementation of Option 1G should occur 24 months following
the start of Phase 2. This purposeful delay will provide time for the VA to prepare to
support an increased number of services for those retired veterans who might choose inground burial at a VA cemetery rather than inurnment at ANC.
Phase 3
Phase 3 begins when the Secretary of the Army completes implementation of the
modified burial policy for in-ground burials and above-ground inurnment, and ends upon
the completion of the transfer of Government lands adjacent to ANC for cemetery use.
Option 3A, reimaging new ways to use existing space, will occur concurrently with other
options—and possibly prior to Phase 3, if leadership desires. ANC cannot currently
provide data on this option due to the various possibilities and their impact on cemetery
capacity. It is most likely that new ways to use existing space will involve inurnment and
or green burial techniques, rather than interment. This would therefore help prolong the
cemetery’s above-ground capacity so that ANC can serve a larger population of retired
veterans.

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The chart below visually depicts the major phases, activities, and timeframes that would be associated with sample COA 2,
as discussed in the previous section.

Figure 27: Major phases, activities, and timeframes for sample COA 2

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Considerations for Sample COA 2: Analysis of Benefits, Risks, Assumptions, and
Constraints
The following table explores a number of considerations that are important to take into
account, if sample COA 2 were to be selected. Similar to COA 1, this section evaluates
the COA based on the PMESII model.

Considerations for Sample COA 2
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•

•
•
•
•
•
•
•
Benefits
•

•
•

•
•
•

Preserves ANC well into the future for veterans who are killed in action and/or
recipients of the Medal of Honor (Military, Social, Political)
Balances the need to reserve space for those who are killed in action and/or
recipients of the Medal of Honor, while still considering options that may
extend the cemetery’s longevity for other veteran eligibility groups, such as
retirees (Social, Political, Military)
Standardizes ANC’s eligibility standards more closely with those of the VA,
reducing confusion for veterans (Political, Military, Social)
Makes more space available for veterans with greater than 24 months of
honorable active duty service (Military, Social)
Provides time for the VA to adjust to ANC’s eligibility changes and prepare to
serve a larger population of veterans (Political, Military)
Provides veterans and their family members time to plan and adjust to
eligibility changes incrementally over a long period of time (Military, Social)
Maintains a balance between expansion and eligibility changes (Political,
Economic)
Helps to preserve ANC’s iconic nature (presuming columbaria is a balanced
approach) (Infrastructure, Social)
Balances preservation of the traditional nature of the cemetery while
considering new innovative approaches (Social, Political, Infrastructure)
Preserves ANC as an active cemetery at near-operational capacity for a
longer amount of time
• Ceremonies contribute to ANC’s iconic nature (Social)
• Ceremonies and the constant presence of active duty Service members
build respect for the military (Military, Social)
• Offers an economic benefit from tourism (Economic)
Promotes legislative and legal consistency and impartiality (Political)
Provides an extended period of decision making time for future considered
efforts (Political, Social)
• Should the COA be stopped at any phase, there is still a residual benefit
to capacity (Political, Social)
Preserves space for any unanticipated increases in active duty deaths due to
future military conflicts (Military, Information)
Opens the possibility for creative alternative options for above-ground space
in the cemetery in the future (Infrastructure, Social, Information)
• Potential for significant increase in capacity of above-ground space
Preserves space that is not currently suitable for burial, in case of changes in
burial technology or other operational uses (utilities, infrastructure, etc.)
(Infrastructure)

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•

Reduces the level of effort spent on monument requests for Army and
cemetery staff, keeping the focus on ANC’s primary mission (Economic,
Political, Information)

•

Some veterans, including the large retiree population, may feel
disenfranchised by the change to above-ground only eligibility (Social, Military)
The long-term, phased concept could provide an opportunity to “over-analyze”
the problem and promote indecisiveness, while ANC capacity diminishes
every day (Political, Information)
Some stakeholders may not understand the urgency or full impacts of the
problem (Social, Information)
Expansion efforts could be costly (Economic, Infrastructure)
Expansion efforts could disrupt the surrounding land and environment
(Infrastructure, Social, Political)
• Some lands identified for expansion are currently in use; expansion could
cause disruption (Infrastructure, Social, Political)
• Shifting land usage could have unintended social consequences
(acquiring adjacent land) (Social, Political)
Eligibility changes may place pressure for more columbaria expansion, which
could alter the iconic look and nature of ANC (Infrastructure, Social)
Some veterans may view new alternative new above-ground options as less
desirable compared to traditional in-ground burial options at ANC (Social)
If the proposed Southern Expansion Project is not funded, then ANC will have
to rely on eligibility and/or other alternative approaches to address the
capacity problem (Infrastructure, Economic, Political)
Political pushback could cause Congress to legislate ANC’s eligibility
standards, which would make future legal changes/evolutions more difficult
and complex (Political)
Some eligibility criteria is currently based in law (for example, Public Law 114158), while others are not (Most of ANC’s eligibility policy is currently
determined by the Secretary of the Army) (Political, Social)
• In the future, there could be unintended benefits given to some groups
based on the current legal exceptions, and not others (i.e. if the Secretary
changes ANC eligibility policy, Congress would have to overturn the
current laws granting certain groups access, or allow those specific groups
to continue being eligible)
COA 2 is complex, consisting of a broad range of options; this makes it more
difficult to explain and gain support (Information)

•
•
•
•

•
Risks

•
•
•
•

•
•
•
Assumptions

•
•
•

Stakeholders desire to preserve space at ANC for those veterans who are
killed in action or who are recipients of the Medal of Honor well into the future
(Social, Military)
Congress will support the policy and legislative changes needed to extend
ANC’s capacity well into the future (Political, Economic)
Stakeholders desire to preserve ANC’s traditional iconic nature (Social)
Congress and the public will support and fund additional expansion efforts
(Political, Economic)
A threshold of acceptability exists regarding the cost of expansion efforts
(Economic)

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•

•
•
•
•
•
•
•
•
•
•
•
•
Constraints

•
•
•

The proposed Southern Expansion Project effort will continue forward as
planned (Infrastructure)
• Land and construction agreements with Arlington County will be
established and/or remain in place (Political, Infrastructure)
Adjacent Government lands will still be available for negotiation and
acquisition when needed in the future (Political, Economic, Infrastructure)
Future expansion efforts or projects will follow historic planning factors and
trends (Information, Infrastructure, Social)
Stakeholders value burial space over the construction of monuments which do
not commemorate an individual (Social, Political)
Alternative methods and structures for burial will be desirable for veterans and
families (Social)
The VA will support and have the capability to absorb the increased
population of veterans (Political, Economic, Infrastructure, Military)
The rate of veterans served by ANC will remain consistent based on recent
yearly averages and operational capacity (Information)
The rate of those who are killed in action will not change significantly (Military,
Information)
Burial trends and preferences will remain consistent with historic averages
(Social, Information)
Those veterans who are killed in action and/or are recipients of the Medal of
Honor and their families will prefer in-ground burials (Social)
Time is a key constraint (regarding the cemetery’s capacity and longevity,
decision-making, implementation, etc.) (Political, Economic)
Some eligibility criteria is currently based in law, while others are not (Most of
ANC’s eligibility policy is currently determined by the Secretary of the Army)
(Political, Social)
Physical: contiguous space near ANC is finite and costly (some land is
currently in use and all of it is owned by different Government agencies or
other groups) (Infrastructure, Economic, Political, Social)
Funding amounts and/or limits will constrain expansion options (i.e. for the
proposed Southern Expansion Project) (Economic)
ANC’s operational capacity constrains the rate of interments/inurnments
(Infrastructure, Economic, Social)
The available technology limits the options for interment/inurnment at ANC
(i.e. burial operations, burial techniques, potential developments over time)
(Information, Economic, Social)