	Management of Arlington Contracts Improved, but Additional Steps Are Needed to Ensure Continued Progress

The Army has taken a number of steps since June 2010 at different levels  to provide for more effective management and oversight of contracts  supporting Arlington, including improving visibility of contracts,  establishing new support relationships, formalizing policies and  procedures, and increasing the use of dedicated contracting staff to  manage and improve acquisition processes. While significant progress  has been made, we have recommended that the Army take further action  in these areas to ensure continued improvement and institutionalize  progress made to date. Using data from multiple  sources, we identified 56 contracts and task orders that were active  during fiscal year 2010 and the first three quarters of fiscal year 2011  under which these contracting offices obligated roughly $35.2 million on  Arlington’s behalf. These contracts and task orders supported cemetery  operations, such as landscaping, custodial, and guard services;  construction and facility maintenance; and new efforts to enhance  information technology systems for the automation of burial operations. At the time of our review, we found that ANCP did not maintain complete  data on contracts supporting its operations. However, some of the  agreements governing these relationships do not yet fully define roles and  responsibilities for contracting support. These organizations  are also responsible for managing the use of contracts in support of  their efforts; however, the agreement with ANCP does not specifically  address roles and responsibilities associated with the use and  management of these contracts supporting Arlington requirements. Army Has Made Progress in Addressing Other Management Deficiencies at Arlington, but Challenges Remain

The Army has also taken positive steps and implemented improvements  to address other management deficiencies and to provide information and  assistance to families. It has implemented improvements across a broad  range of areas at Arlington, including developing procedures for ensuring  accountability over remains, taking actions to better provide information- assurance, and improving its capability to respond to the public and to  families’ inquiries. Nevertheless, we  identified several areas where challenges remain:
Managing information-technology investments. Updating workforce plans. Developing an organizational assessment program. Coordinating with key partners. Developing written guidance for providing assistance to families. Formal Collaboration between the Army and VA Could Lead to Improvements across All National Cemeteries

A transfer of jurisdiction for the Army’s two national cemeteries to VA is  feasible based on historical precedent for the national cemeteries and  examples of other reorganization efforts in the federal government. However, we identified several factors that may affect the advisability of  making such a change, including the potential costs and benefits,  potential transition challenges, and the potential effect on Arlington’s  unique characteristics. In addition, given that the Army has taken steps to  address deficiencies at Arlington and has improved its management, it  may be premature to move forward with a change in jurisdiction,  particularly if other options for improvement exist that entail less  disruption. During our review, we identified opportunities for enhancing  collaboration between the Army and VA that could leverage their  strengths and potentially lead to improvements at all national cemeteries. Additionally, the Army’s national cemeteries are funded through a  different appropriations structure than VA’s national cemeteries. Since the Army IG issued its findings in June 2010,  the Army and VA have taken steps to partner more effectively. Summary of Recommendations for Further Improvements at Arlington National Cemetery

The success of the Army’s efforts to improve contracting and  management at Arlington will depend on continued focus in various  areas. With regard to other management challenges at Arlington, we  recommended that the Army implement its enterprise architecture and  reassess ongoing and planned information-technology investments;  update its assessment of ANCP’s workforce needs; develop and  implement a program for assessing and improving cemetery operations;  develop memorandums of understanding with Arlington’s key operational  partners; develop a strategic plan; and develop written guidance to help  determine the types of assistance that will be provided to families affected  by burial errors. DOD partially  agreed with our other recommendations. Both DOD and VA concurred with this recommendation.
Why GAO Did This Study

Arlington National Cemetery (Arlington) contains the remains of more than 330,000 military servicemembers, their family members, and others. In June 2010, the Army Inspector General identified problems at the cemetery, including deficiencies in contracting and management, burial errors, and a failure to notify next of kin of errors. In response, the Secretary of the Army issued guidance creating the position of the Executive Director of the Army National Cemeteries Program (ANCP) to manage Arlington and requiring changes to address the deficiencies and improve cemetery operations. In response to Public Law 111-339, GAO assessed several areas, including (1) actions taken to improve contract management and oversight, (2) the Armys efforts to address identified management deficiencies and provide information and assistance to families regarding efforts to detect and correct burial errors, and (3) factors affecting the feasibility and advisability of transferring jurisdiction for the Armys national cemeteries to the Department of Veterans Affairs (VA). The information in this testimony summarizes GAOs recent reports on Arlington contracting (GAO-12-99) and management (GAO-12-105). These reports are based on, among other things, analyzing guidance, policies, plans, contract files, and other documentation from the Army, Arlington, and other organizations and interviews with Army and VA officials.

What GAO Found

GAO identified 56 contracts and task orders that were active during fiscal year 2010 and the first three quarters of fiscal year 2011 under which contracting offices obligated roughly $35.2 million on Arlingtons behalf. These contracts supported cemetery operations, construction and facility maintenance, and new efforts to enhance information technology systems for the automation of burial operations. The Army has taken a number of steps since June 2010 at different levels to provide for more effective management and oversight of contracts, establishing new support relationships, formalizing policies and procedures, and increasing the use of dedicated contracting staff to manage and improve its acquisition processes. However, GAO found that ANCP does not maintain complete data on its contracts, responsibilities for contracting support are not yet fully defined, and dedicated contract staffing arrangements still need to be determined. The success of Arlingtons acquisition outcomes will depend on continued management focus from ANCP and its contracting partners to ensure sustained attention to contract management and institutionalize progress made to date. GAO made three recommendations to continue improvements in contract management. The Department of Defense (DOD) partially concurred and noted actions in progress to address these areas.
The Army has taken positive steps and implemented improvements to address other management deficiencies and to provide information and assistance to families. It has implemented improvements across a broad range of areas at Arlington, including developing procedures for ensuring accountability over remains and improving its capability to respond to the public and to families inquiries. Nevertheless, the Army has remaining management challenges in several areasmanaging information technology investments, updating workforce plans, developing an organizational assessment program, coordinating with key partners, developing a strategic plan, and developing guidance for providing assistance to families. GAO made six recommendations to help address these areas. DOD concurred or partially concurred and has begun to take some corrective actions.
A transfer of jurisdiction for the Armys two national cemeteries to VA is feasible based on historical precedent for the national cemeteries and examples of other reorganization efforts in the federal government. However, several factors may affect the advisability of making such a change, including the potential costs and benefits, potential transition challenges, and the potential effect on Arlingtons unique characteristics. In addition, given that the Army has taken steps to address deficiencies at Arlington and has improved its management, it may be premature to move forward with a change in jurisdiction, particularly if other options for improvement exist that entail less disruption. GAO identified opportunities for enhancing collaboration between the Army and VA that could leverage their strengths and potentially lead to improvements at all national cemeteries. GAO recommended that the Army and VA develop a mechanism to formalize collaboration between these organizations. DOD and VA concurred with this recommendation.

What GAO Recommends

In the reports, GAO made several recommendations to help Arlington sustain progress made to date.