I can only speculate, and I will again use myself as an example.
I came to the Department of Veterans Affairs in 2001. I am a veteran; almost everybody in my family is a veteran. We all served our time, we got out, and we went on with our lives and never really thought much more about it. I did not know until I came to the Department of Veterans Affairs that I was eligible for these benefits.
So of that 59% of people whom you're talking about, I suspect that probably the majority of them simply are not aware. They served their time, they got out, and they went about their lives. When they reached an old age and were ready to pass on, they were making their decisions on that, and it just never occurred to them that they might be eligible for a burial benefit. That goes back, I believe, to our having the responsibility of doing a better job of getting the information out about what people are eligible for.