I think there's more to it than that. Hopefully the cost includes America's Army as a Platform. I know military training has been trying to enforce compliance to standards (e.g. SCORM) and Learning Management Systems so they can track who has what training. Something like this can bring it all together, and that cost over 10 years sounds like an excellent investment considering they took the time to proof something out, then extend functionality as opposed to the typical requirements swirl that ends up with programs that never actually come to fruition.