Benefits are now rectified for the Fort Hood Victims; why was it so hard?

Why were they not given from the get go?
I am glad that the right thing was done but do not understand why there had to be National coverage for it to be rectified.

http://www.reuters.com/article/2015/04/16/us-usa-army-forthood-idUSKBN0N72FV20150416

I did not see any other thread on this.