You're speaking about our “Spotlight” report where we list every recommendation that's still valid. “Partially Agree” means that there might be some aspect of the recommendation that the department concurs with and some aspect that it doesn't agree with.
We spent a great deal of time working on this report, and we were back and forth with Veterans Affairs. With regard to implementation, if we find that they've made enough progress that we can say that it looks like it's going to come to completion, then we say that it's “In Progress” or “Partially Implemented”.