Commemorative Works in the District of Columbia: Background and Practice

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Commemorative Works in the District of
~~January 27, 2021~~May 8, 2023
Columbia: Background and Practice
Jacob R. Straus
In 1783, the Continental Congress authorized the first memorial in American history, an In 1783, the Continental Congress authorized the first memorial in American history, an
Specialist on the Congress Specialist on the Congress
equestrian statue to honor George Washington that was to be constructed by the “best artist” in equestrian statue to honor George Washington that was to be constructed by the “best artist” in

Europe. Since that time, Congress has authorized more than 100 commemorative works for Europe. Since that time, Congress has authorized more than 100 commemorative works for
placement in the District of Columbia. Even with multiple authorized works, however, no placement in the District of Columbia. Even with multiple authorized works, however, no

specific process existed for the creation of commemorative works for almost two centuries. specific process existed for the creation of commemorative works for almost two centuries.
While Congress has long been responsible for authorizing memorials on federal land, the process for approving site locations, While Congress has long been responsible for authorizing memorials on federal land, the process for approving site locations,
memorial design plans, and funding was historically haphazard. At times, Congress was involved in the entire design and memorial design plans, and funding was historically haphazard. At times, Congress was involved in the entire design and
building process. In other instances, that authority was delegated to executive branch officials, federal commissions were building process. In other instances, that authority was delegated to executive branch officials, federal commissions were
created, or Congress directly authorized a sponsor group to establish a memorial. created, or Congress directly authorized a sponsor group to establish a memorial.
In 1986, in an effort to create a statutory process for the creation, design, and construction of commemorative works in the In 1986, in an effort to create a statutory process for the creation, design, and construction of commemorative works in the
District of Columbia, Congress debated and passed the Commemorative Works Act (CWA). The CWA codified District of Columbia, Congress debated and passed the Commemorative Works Act (CWA). The CWA codified
congressional procedure for authorizing commemorative works when the location of a memorial is on federal land in congressional procedure for authorizing commemorative works when the location of a memorial is on federal land in ~~th e~~the
District of Columbia administered by the National Park Service (NPS) or the General Services Administration (GSA). The District of Columbia administered by the National Park Service (NPS) or the General Services Administration (GSA). The
act delegated responsibility for overseeing design, construction, and maintenance to the Secretary of the Interior or the act delegated responsibility for overseeing design, construction, and maintenance to the Secretary of the Interior or the
Administrator of GSA, and several other federal entities, including the National Capital Planning Commission (NCPC), the Administrator of GSA, and several other federal entities, including the National Capital Planning Commission (NCPC), the
U.S. Commission of Fine Arts (CFA), and the National Capital Memorial Advisory Commission. Additionally, the CWA U.S. Commission of Fine Arts (CFA), and the National Capital Memorial Advisory Commission. Additionally, the CWA
restricts placement of commemorative works to certain areas of the District of Columbia based on the subject’s historic restricts placement of commemorative works to certain areas of the District of Columbia based on the subject’s historic
importance. These areas include the Reserve (i.e., the National Mall), where no new commemorative works are permitted; importance. These areas include the Reserve (i.e., the National Mall), where no new commemorative works are permitted;
Area I, where new commemorative works must be of preeminent historical and lasting significance to the United States; and Area I, where new commemorative works must be of preeminent historical and lasting significance to the United States; and
Area II, which is reserved for subjects of lasting historical significance to the American people. The act further stipulates that Area II, which is reserved for subjects of lasting historical significance to the American people. The act further stipulates that
the Secretary of the Interior or the Administrator of the GSA provide recommendations to Congress on the placement of the Secretary of the Interior or the Administrator of the GSA provide recommendations to Congress on the placement of
works within Area I. works within Area I.
Pursuant to the CWA, the NPS and the NCPC outlined a 24-step process to guide the creation of a commemorative work in Pursuant to the CWA, the NPS and the NCPC outlined a 24-step process to guide the creation of a commemorative work in
the District of Columbia. The guidelines include initiation of a memorial, authorizing legislation, site selection and approval, the District of Columbia. The guidelines include initiation of a memorial, authorizing legislation, site selection and approval,
fundraising, design approval, construction, and memorial dedication. fundraising, design approval, construction, and memorial dedication.
Once authorized by Congress, the CWA provides a seven-year authorization for all commemorative works (with an Once authorized by Congress, the CWA provides a seven-year authorization for all commemorative works (with an
administrative extension available). Sponsor groups, however, sometimes ask Congress to extend a memorial’s authorization administrative extension available). Sponsor groups, however, sometimes ask Congress to extend a memorial’s authorization
beyond the initial period. Additionally, in some circumstances, groups ask Congress to provide appropriations to assist a beyond the initial period. Additionally, in some circumstances, groups ask Congress to provide appropriations to assist a
sponsor group’s fundraising. When provided, past appropriations for commemorative works have been in the form of both sponsor group’s fundraising. When provided, past appropriations for commemorative works have been in the form of both
direct appropriations and matching funds. direct appropriations and matching funds.
This report does not address memorials outside the District of Columbia. This report does not address memorials outside the District of Columbia.

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Introduction
Since approving an equestrian statue to George Washington in 1783,1 Congress has authorized Since approving an equestrian statue to George Washington in 1783,1 Congress has authorized
more than 100 other memorials for placement on federal land in the District of Columbia.2 Prior more than 100 other memorials for placement on federal land in the District of Columbia.2 Prior
to 1986, however, statutory criteria for authorizing commemorative works, including memorials, to 1986, however, statutory criteria for authorizing commemorative works, including memorials,
did not exist.3 Not only did Congress authorize commemorative works, but it also established did not exist.3 Not only did Congress authorize commemorative works, but it also established
how the sponsoring organizations would choose site locations and approve memorial designs. how the sponsoring organizations would choose site locations and approve memorial designs.
In In ~~some cases, special memorial commissions were established and given authority~~ some cases, special memorial commissions were established and given authority to to
select a location for the memorial. The Lincoln Memorial Commission and the Jefferson select a location for the memorial. The Lincoln Memorial Commission and the Jefferson
MemorialMemorial ~~Commission, for instance, were provided with su ch authority. Congress also~~
~~authorized private organizations to select a site, sometimes with the approval~~ Commission, for instance, were provided with such authority. Congress also authorized private organizations to select a site, sometimes with the approval of the of the
President, as in the case of the Washington Monument.4 President, as in the case of the Washington Monument.4
Although a general practice for the commemorative work creation process existed by the mid-20th Although a general practice for the commemorative work creation process existed by the mid-20th
century, impetus for a statutory commemorative work creation program was not realized until the century, impetus for a statutory commemorative work creation program was not realized until the
1980s.5 In 1986, Congress debated and passed the Commemorative Works Act to guide the 1980s.5 In 1986, Congress debated and passed the Commemorative Works Act to guide the
memorial creation process in the District of Columbia.6 memorial creation process in the District of Columbia.6
This report examines the evolving process by which memorials have been proposed, approved, This report examines the evolving process by which memorials have been proposed, approved,
and constructed in the District of Columbia. It begins with a discussion of the creation of the and constructed in the District of Columbia. It begins with a discussion of the creation of the
District and its unique place as the center of the U.S. government and the District and its unique place as the center of the U.S. government and the ~~loc ation~~location of numerous of numerous
memorials to individuals and historic events. The report then discusses the creation and operation memorials to individuals and historic events. The report then discusses the creation and operation
of the Commemorative Works Act that was enacted to guide the process for creating a of the Commemorative Works Act that was enacted to guide the process for creating a
commemorative work in the District of Columbia. It concludes with four appendixes: a summary commemorative work in the District of Columbia. It concludes with four appendixes: a summary
of the original Commemorative Works Act legislation; the 24-step process recommended for of the original Commemorative Works Act legislation; the 24-step process recommended for
creating a memorial in the District of Columbia; a map showing various areas eligiblecreating a memorial in the District of Columbia; a map showing various areas eligible for for
memorial construction in the District of Columbia; and a list of government agencies that might memorial construction in the District of Columbia; and a list of government agencies that might
be involved in the memorial creation process. be involved in the memorial creation process.

1 Arthur Lee (Virginia)1 Arthur Lee (Virginia) introduced a resolution on May 6, 1783, to erect an equestrian statue to Georgeintroduced a resolution on May 6, 1783, to erect an equestrian statue to George Washington. Washington.
Journals of the Continental Congress, 1774 -1789, (May 6, 1783), ed. Worthington C. Ford, et al. (Washington: GPO, , (May 6, 1783), ed. Worthington C. Ford, et al. (Washington: GPO,
1922), vol. 25, p. 963. 1922), vol. 25, p. 963. ~~T he~~The Continental Congress unanimously agreed Continental Congress unanimously agreed to the resolution on August 7, 1783, and to the resolution on August 7, 1783, and
authorized a bronze statue of Washington “represented in Roman dress, holding a truncheon in his right hand [and his authorized a bronze statue of Washington “represented in Roman dress, holding a truncheon in his right hand [and his
head encircled with a laurel wreath].” head encircled with a laurel wreath].” ~~T he~~The statue was statue was to be constructed by the “best artist” in Europe. to be constructed by the “best artist” in Europe. Journals of the
Continental Congress, 1774-1789, (August 7, 1783), ed. Worthington C. Ford, et al. (Washington: GPO, 1922), vol. 24, , (August 7, 1783), ed. Worthington C. Ford, et al. (Washington: GPO, 1922), vol. 24,
pp. 494-495. In 1853, Congress appropriated $50,000 and commissioned Clark Mills to buildpp. 494-495. In 1853, Congress appropriated $50,000 and commissioned Clark Mills to build the statue (10 Stat. 153). the statue (10 Stat. 153).
In 1860, In 1860, ~~t he~~the statue was dedicated statue was dedicated at Washington Circle (James M. Goode,at Washington Circle (James M. Goode, Washington Sculpture: A Cultural History of
Outdoor Sculpture in the Nation’s Capital [Baltimore, MD: [Baltimore, MD: ~~T he~~The Johns Hopkins University Press, 2008], p. 480). Johns Hopkins University Press, 2008], p. 480).
2 U.S.2 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, The Placement of Commemorative Works on
Federal Lands in the District ~~of Colum bia~~ of Columbia and its Environs, report to accompany H.R. 4378, 99th Cong., 2nd sess., , report to accompany H.R. 4378, 99th Cong., 2nd sess.,
AugustAugust 15, 1986, S.Rept. 99-421 (Washington: GPO, 1986), p. 4. 15, 1986, S.Rept. 99-421 (Washington: GPO, 1986), p. 4.
3 For the purposes of this report, commemorative works in the District of Columbia 3 For the purposes of this report, commemorative works in the District of Columbia and memorials are sometimes used and memorials are sometimes used
interchangeably becauseinterchangeably because most completed commemorative works are describedmost completed commemorative works are described as memorials to an individual,as memorials to an individual, a group, a group,
or an event. In 1910, Congress created the Commission of Fine Arts to “or an event. In 1910, Congress created the Commission of Fine Arts to “ advise upon the location of statues, fountains, advise upon the location of statues, fountains,
and monuments in the public squares,and monuments in the public squares, streets, and parks in the District of Columbia….”streets, and parks in the District of Columbia….” (P.L. 61(P.L. 61 -181, 36 Stat 371, May -181, 36 Stat 371, May
17, 1910). For more information on the Commission of Fine Arts, 17, 1910). For more information on the Commission of Fine Arts, ~~see Appe ndix D.~~
see Appendix D. 4 Michael H. Koby and Ash Jain, “Memorializing Our Nation’s Heroes: A Legislative Proposal to Amend the 4 Michael H. Koby and Ash Jain, “Memorializing Our Nation’s Heroes: A Legislative Proposal to Amend the
Commemorative Works Act,” Commemorative Works Act,” Journal of Law & Politics, vol. 17, no. 1 (Winter 2001), p. 107. , vol. 17, no. 1 (Winter 2001), p. 107.
5 5 ~~Ibid.,~~Koby and Jain, “Memorializing Our Nation’s Heroes,” p. 109. p. 109.
6 40 U.S.C.6 40 U.S.C. §§8901-8909. §§8901-8909.
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This report does not address memorials outside the District of Columbia.7 This report does not address memorials outside the District of Columbia.7
Creating the District of Columbia
On July 16, 1790, President George Washington signed the Residency Act into law. The measure On July 16, 1790, President George Washington signed the Residency Act into law. The measure
authorized the President to designate “a district of territory, not exceeding ten miles square, to be authorized the President to designate “a district of territory, not exceeding ten miles square, to be
located as hereafter directed on the river Potomac, at some place between the mouths of the located as hereafter directed on the river Potomac, at some place between the mouths of the
Eastern Branch and Connogochegue, be, and the same is hereby accepted for the permanent seat Eastern Branch and Connogochegue, be, and the same is hereby accepted for the permanent seat
of government of the United States.”8 Pursuant to the Residency Act, the President had a choice of government of the United States.”8 Pursuant to the Residency Act, the President had a choice
between two areas on the Potomac River—land where the Eastern Branch (now the Anacostia between two areas on the Potomac River—land where the Eastern Branch (now the Anacostia
River) met the Potomac River and the area around the River) met the Potomac River and the area around the ~~Vil age~~ Village of Georgetown.9 After ordering of Georgetown.9 After ordering
surveys of both areas,10 Washington chose the confluence of the Potomac River and Anacostia surveys of both areas,10 Washington chose the confluence of the Potomac River and Anacostia
Rivers as the capital site.11 Subsequently, he chose Major Pierre Charles L’Enfant, who had just Rivers as the capital site.11 Subsequently, he chose Major Pierre Charles L’Enfant, who had just
completed a successful refurbishment of Federal completed a successful refurbishment of Federal ~~Hal~~ Hall in New York City,12 as the city’s architect13 in New York City,12 as the city’s architect13
and commissioned Major Andrew and commissioned Major Andrew ~~El icott~~Ellicott to survey the 10-square-mile district.14 to survey the 10-square-mile district.14
L’Enfant Plan
Major L’Enfant was charged with designing the federal city, including spaces for the President’s Major L’Enfant was charged with designing the federal city, including spaces for the President’s
house, the Capitol Building,house, the Capitol Building, and the grid of streets that would transport political leaders from one and the grid of streets that would transport political leaders from one
part of the city to another. The federal spaces are widely considered to be the “most significant part of the city to another. The federal spaces are widely considered to be the “most significant
design feature of the plan for the nation’s capital.”15 Within the federal precinct, L’Enfant’s plan design feature of the plan for the nation’s capital.”15 Within the federal precinct, L’Enfant’s plan
deemphasized any single part of the federal government. Political scientist James Sterling Young, deemphasized any single part of the federal government. Political scientist James Sterling Young,

in his book The Washington Community, describes L’Enfant’s vision in creating the federal capital. 7 For more information on memorial construction outside of the District of Columbia, see7 For more information on memorial construction outside of the District of Columbia, see ~~CRS~~ CRS Report R45741, Report R45741,
~~Mem orials and Com m em orative~~Memorials and Commemorative Works Outside Washington, DC: Background, Federal Role, and Options for
Congress, by Jacob, by Jacob R. StrausR. Straus and Laura B. Comay. For information on national monuments established on federal land and Laura B. Comay. For information on national monuments established on federal land
under the Antiquities Act of 1906, see CRSunder the Antiquities Act of 1906, see CRS Report R41330, Report R41330, National ~~Monum ents~~Monuments and the Antiquities Act, by Carol , by Carol
Hardy VincentHardy Vincent . .
8 1 Stat. 130, July 16, 1790, as amended by 1 Stat. 214, March 3, 1791. 8 1 Stat. 130, July 16, 1790, as amended by 1 Stat. 214, March 3, 1791. ~~T he~~The Conococheague is “ Conococheague is “ a small Maryland a small Maryland
stream near Hagerstown, in the Cumberlandstream near Hagerstown, in the Cumberland Valley.” Valley.” Worthy of the Nation: Washington, DC from L'Enfant to the
National Capital Planning ~~Com m ission~~Commission, ed. Frederick Gutheim and Antoinette J. Lee, , ed. Frederick Gutheim and Antoinette J. Lee, ~~2 nd~~2nd ed. (Baltimore, MD: ed. (Baltimore, MD: ~~T he~~The
Johns Hopkins University Press, 2006), p. 10. 1 Stat. 214 amended the initial law to allowJohns Hopkins University Press, 2006), p. 10. 1 Stat. 214 amended the initial law to allow President Washington to President Washington to
includeinclude the town of Alexandria Virginiathe town of Alexandria Virginia to the south and place the city on a “convenient part of the Eastern Branch.”to the south and place the city on a “convenient part of the Eastern Branch.”
9 James 9 James ~~T homas~~Thomas Flexner, Flexner, George Washington and the New Nation (1783-1973) (Boston: Little, Brown and Company, (Boston: Little, Brown and Company,
1963), p. 326. For more information on the Eastern Branch, see National Park Service, “L’Enfant and McMillian 1963), p. 326. For more information on the Eastern Branch, see National Park Service, “L’Enfant and McMillian
Plans,” at http://www.nps.gov/nr/travel/wash/lenfant.htm; and Cornelius W. Heine, “Plans,” at http://www.nps.gov/nr/travel/wash/lenfant.htm; and Cornelius W. Heine, “~~T he~~The Washington City Canal,” Washington City Canal,”
Records of the ~~Colum bia~~Columbia Historical Society, Washington, D.C., vol. 53/56 (1953/1956), pp. 1-27. , vol. 53/56 (1953/1956), pp. 1-27.
10 Fergus 10 Fergus M. Bordewich,M. Bordewich, Washington: The Making of the American Capital (New (New York: Amistad, 2008), p. 65. York: Amistad, 2008), p. 65.
11 George11 George Washington Bicentennial Commission, Washington Bicentennial Commission, The Writings of George Washington from the Original Manuscript
Sources 1745-1799, ed. John C. Fitzpatrick, vol. 31, January 22, 1790, ed. John C. Fitzpatrick, vol. 31, January 22, 1790 -March 9, 1792 (Washington: GPO, 1939-March 9, 1792 (Washington: GPO, 1939 ), pp. ), pp.
202-204. 202-204.
12 Sarah Luria, 12 Sarah Luria, Capital Speculations: Writing and Building Washington, D.C. (Durham, NH: University of New (Durham, NH: University of New
Hampshire Press, 2006), p. 6. Hampshire Press, 2006), p. 6.
13 Les Standiford, 13 Les Standiford, Washington Burning: How a Frenchman’s Vision for Our Nation’s Capital Survived Congress, The
Founding Fathers, and the Invading British ~~Arm y~~Army (New (New York: York: ~~T hree~~Three Rivers Press, 2009). Rivers Press, 2009).
14 William Buckner McGroarty, “Major Andrew Ellicott and His 14 William Buckner McGroarty, “Major Andrew Ellicott and His Historic Border Lines,”Historic Border Lines,” The Virginia Magazine of
History and Biography, vol. 58, no. 1 (January 1950), pp. 101-102. , vol. 58, no. 1 (January 1950), pp. 101-102.
15 Michael Bednar, 15 Michael Bednar, L'Enfant’s Legacy: Public Open Spaces in Washington, D.C. (Baltimore, MD: Johns Hopkins (Baltimore, MD: Johns Hopkins
University Press, 2006), p. 12. University Press, 2006), p. 12.
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~~in his book The Washington Community, describes L’Enfant’s vision in creating the federal~~
~~capital.~~
There is no single center in the ground plan of the governmental community, no one focus There is no single center in the ground plan of the governmental community, no one focus
ofof ~~activity, no central place for the assembly of all its members. What catches the~~ activity, no central place for the assembly of all its members. What catches the eye eye
instead is a system of larger and lesser centers widely dispersed over the terrain, “seemingly instead is a system of larger and lesser centers widely dispersed over the terrain, “seemingly
connect,” as L’Enfant put it, by shared routes of communication. It is clear that the planner connect,” as L’Enfant put it, by shared routes of communication. It is clear that the planner
intended a community whose members were to work or live not together but apart from intended a community whose members were to work or live not together but apart from
each other, segregated into distinct units.16 each other, segregated into distinct units.16
Figure 1. L’Enfant Plan for Washington, DC (1792)

Source: National Park Service,National Park Service, “Plate II. L’Enfant Plan as Modified by Andrew El icott, 1792.” at “Plate II. L’Enfant Plan as Modified by Andrew El icott, 1792.” at
http://www.nps.gov/parkhistory/online_books/ncr/designing-capital/plates.html. http://www.nps.gov/parkhistory/online_books/ncr/designing-capital/plates.html.
As depicted As depicted inin Figure 1, ~~Major~~ Major L’Enfant worked to provide symbolic separation between L’Enfant worked to provide symbolic separation between
Congress, the President, and the Supreme Court as provided for by separation of powers Congress, the President, and the Supreme Court as provided for by separation of powers
principles found in the Constitution.17 In describing the decision to keep the constitutional centers principles found in the Constitution.17 In describing the decision to keep the constitutional centers
of powers separated, L’Enfant “argued that the distance between the two buildings [the of powers separated, L’Enfant “argued that the distance between the two buildings [the
President’s house and the Capitol] was not President’s house and the Capitol] was not al all that great in his plan and further that ‘no message that great in his plan and further that ‘no message
to nor from the President is to be made without a sort of decorum which to nor from the President is to be made without a sort of decorum which ~~wil~~ will doubtless point out doubtless point out

16 James Sterling16 James Sterling Young, Young, The Washington Community: 1800-1828 (New York: Columbia (New York: Columbia University Press, 1966), p. 3. University Press, 1966), p. 3.
17 U.S.17 U.S. Congress, House,Congress, House, The Constitution of the United States and the Declaration of Independence, 108th Cong., 1st , 108th Cong., 1st
sess.,sess., H.Doc. 108-96 (Washington: GPO, 2003). H.Doc. 108-96 (Washington: GPO, 2003).
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the propriety of Committee waiting on him in carriage should his palace be even contiguous to the propriety of Committee waiting on him in carriage should his palace be even contiguous to
Congress.’”18 Congress.’”18
The original boundaries of the District of Columbia extended beyond the federal city depicted in The original boundaries of the District of Columbia extended beyond the federal city depicted in
Figure 1. A 10-mile square, created from land ceded from Maryland and Virginia, it also included A 10-mile square, created from land ceded from Maryland and Virginia, it also included
much of modern-day Alexandria, Virginia, and Arlington County.19 Following Congress’s move much of modern-day Alexandria, Virginia, and Arlington County.19 Following Congress’s move
to the District in 1800,20 proposals were introduced to retrocede (return) portions of the District to the District in 1800,20 proposals were introduced to retrocede (return) portions of the District
south of the Potomac River to Virginia.21 In 1846, Congress determined that “the portion of the south of the Potomac River to Virginia.21 In 1846, Congress determined that “the portion of the
District of Columbia ceded to the United States by the State of Virginia has not been, or is ever District of Columbia ceded to the United States by the State of Virginia has not been, or is ever
~~likely~~ likely to be, necessary for that purpose…” and passed legislation returning Alexandriato be, necessary for that purpose…” and passed legislation returning Alexandria to Virginia. to Virginia.
President James Polk signed the President James Polk signed the ~~bil~~ bill into law on July 9, 1846.22 into law on July 9, 1846.22
McMillan Plan
For nearly a century, Congress and city planners ignored many elements of L’Enfant’s plan for For nearly a century, Congress and city planners ignored many elements of L’Enfant’s plan for
Washington, DC, until a new Washington, DC, until a new ~~cal~~ call for planning was developed to celebrate the city’s 100th for planning was developed to celebrate the city’s 100th
anniversary in 1900.23 Led by Senator James anniversary in 1900.23 Led by Senator James ~~McMil an~~McMillan, the effort to review and create a new , the effort to review and create a new
comprehensive plan for the District of Columbia was undertaken by the Senate Park comprehensive plan for the District of Columbia was undertaken by the Senate Park
Commission.24 Created in March 1901, as part of a Senate resolution directing the Committee on Commission.24 Created in March 1901, as part of a Senate resolution directing the Committee on
the District of Columbia to study the park system in the District,25 the commission was instructed the District of Columbia to study the park system in the District,25 the commission was instructed
to examine questions that had “arisen as to the location of public buildings, of preserving spaces to examine questions that had “arisen as to the location of public buildings, of preserving spaces
for parks in the portion of the District beyond the limits of the city of Washington, of connecting for parks in the portion of the District beyond the limits of the city of Washington, of connecting
and developing existing parks by attractive drives, and of providing for the recreation and health and developing existing parks by attractive drives, and of providing for the recreation and health
of a constantly growing population.”26of a constantly growing population.”26

18 Frederick Gutheim and Antoinette J. Lee, 18 Frederick Gutheim and Antoinette J. Lee, Worth of the Nation: Washington, DC, from L'Enfant to the National
Capital Planning ~~Com m ission~~Commission, 2nd ed. (Baltimore, MD: Johns Hopkins University Press, 2006), p. 25., 2nd ed. (Baltimore, MD: Johns Hopkins University Press, 2006), p. 25.
19 J. Valerie 19 J. Valerie Fifer, “Washington, D.C.: Fifer, “Washington, D.C.: ~~T he~~The Political Geography of the Federal Capital,” Political Geography of the Federal Capital,” Journal of American Studies, ,
vol. 15, no. 1 (April 1981), pp. 7-8. vol. 15, no. 1 (April 1981), pp. 7-8.
20 20 Annals of the Congress of the United States, vol. 10 (May 14, 1800), p. 720. , vol. 10 (May 14, 1800), p. 720. ~~T he~~The Sixth Congress reconvened for its Sixth Congress reconvened for its
second session in the District of Columbia in November 1800. For more information, see James Sterling Young,second session in the District of Columbia in November 1800. For more information, see James Sterling Young, The
Washington ~~Com m unity~~Community: 1800-1828 (New York: Columbia (New York: Columbia University Press, 1966). University Press, 1966).
21 21 Annals of the Congress of the United States, vol. 12 (January 27, 1803), pp. 426-427. For more information, see , vol. 12 (January 27, 1803), pp. 426-427. For more information, see
Mark David Richards,Mark David Richards, ~~“T he~~ “The Debates Over the Retrocession of the District of Columbia, 1801-2004,” Debates Over the Retrocession of the District of Columbia, 1801-2004,” Washington
History, vol. 16, no. 1 (Spring/Summer, vol. 16, no. 1 (Spring/Summer 2004), pp. 572004), pp. 57 -60; and Amos B. Casselman,-60; and Amos B. Casselman, ~~“ T he~~ “The Virginia Portion of the Virginia Portion of the
District of Columbia,”District of Columbia,” Records of the Columbia Historical Society, vol. 12 (1909), pp. 115-141. , vol. 12 (1909), pp. 115-141.
22 9 Stat. 35, July22 9 Stat. 35, July 9, 1946. 9, 1946.
23 Geoffrey G.23 Geoffrey G. Drutchas, “Gray Eminence in a GildedDrutchas, “Gray Eminence in a Gilded ~~Age: T he~~ Age: The Forgotten Career of Senator James McMillan of Forgotten Career of Senator James McMillan of
Michigan,” Michigan,” Michigan Historical Review, vol. 28, no. 2 (Fall 2002), p. 98. , vol. 28, no. 2 (Fall 2002), p. 98.
24 24 ~~T he~~The McMillan plan is considered McMillan plan is considered to be part of the larger “City Beautiful Movement.” to be part of the larger “City Beautiful Movement.” ~~T he~~The City Beautiful Movement City Beautiful Movement
existed at the turn of the 20th Century as an effort to reconfigure the urban landscapeexisted at the turn of the 20th Century as an effort to reconfigure the urban landscape by “by “ grouping and uniting public grouping and uniting public
buildingsbuildings with one another and with the landscape” (Daniel M. Bluestone, “Detroit’s City Beautiful and the Problem of with one another and with the landscape” (Daniel M. Bluestone, “Detroit’s City Beautiful and the Problem of
Commerce,” Commerce,” Journal of the Society of Architectural Historians, vol. 47, no. 3 (September 1988), p. 245). For more , vol. 47, no. 3 (September 1988), p. 245). For more
information see, William H. Wilson, information see, William H. Wilson, The City ~~Beautiful Movem ent~~ Beautiful Movement (Baltimore, MD: (Baltimore, MD: ~~T he~~The Johns Hopkins University Johns Hopkins University
Press, 1994), pp. 9-34. Press, 1994), pp. 9-34.
25 “Park System of the District of Columbia,” Senate debate, 25 “Park System of the District of Columbia,” Senate debate, Congressional Record, vol. 35, part 1 (March 8, 1901), p. , vol. 35, part 1 (March 8, 1901), p.
30. Senator McMillan had previously introduced a joint resolution authorizing the creation of a 30. Senator McMillan had previously introduced a joint resolution authorizing the creation of a ~~commissi on~~commission to study to study
the “arrangement of public buildingsthe “arrangement of public buildings in Washington and the development of a comprehensive park system.” in Washington and the development of a comprehensive park system.” ~~T he~~The joint joint
resolution wasresolution was defeated in the House under the opposition of Speaker of the House Joseph Cannon.defeated in the House under the opposition of Speaker of the House Joseph Cannon.
26 U.S. 26 U.S. Congress, Senate Committee on the District of Columbia, Congress, Senate Committee on the District of Columbia, The Improvement of the Park System of the District of
~~Colum bia~~ of Columbia, 57th Cong., 1st sess.,, 57th Cong., 1st sess., S.Rept. 57-166 (Washington: GPO, 1902), p. 7. S.Rept. 57-166 (Washington: GPO, 1902), p. 7.
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The committee hired Daniel Burnham27 and Frederick Law Olmsted28 as consultants to study the The committee hired Daniel Burnham27 and Frederick Law Olmsted28 as consultants to study the
design of the city and the landscaping of the National design of the city and the landscaping of the National ~~Mal . The McMil an~~Mall. The McMillan Commission plan Commission plan
examined examined al all aspects of L’Enfant’s original design and made recommendations to return the aspects of L’Enfant’s original design and made recommendations to return the
monumental core of the city, particularly the monumental core of the city, particularly the ~~Mal~~ Mall, to the intent of L’Enfant’s plans. In their , to the intent of L’Enfant’s plans. In their
report to the Senate Committee on the District of Columbia, the commission summarized why report to the Senate Committee on the District of Columbia, the commission summarized why
such a plan was necessary. such a plan was necessary.
Now that the demand for new public buildings and memorials has reached an acute stage, Now that the demand for new public buildings and memorials has reached an acute stage,
there has been hesitation and embarrassment in locating them because of the uncertainty in there has been hesitation and embarrassment in locating them because of the uncertainty in
securingsecuring ~~appropriate sites. The Commission were thus brought face to~~ appropriate sites. The Commission were thus brought face to face with the face with the
problem of devising such a plan as shall tend to restore that unity of design which was the problem of devising such a plan as shall tend to restore that unity of design which was the
fundamentalfundamental ~~conception of those who first laid out the city as a national capital,~~ conception of those who first laid out the city as a national capital, and of and of
formulating definite principles for the placing of those future structures which, in order to formulating definite principles for the placing of those future structures which, in order to
becomebecome ~~effective, demand both a landscape setting and a visible orderly relation one~~ effective, demand both a landscape setting and a visible orderly relation one to to
another for their mutual support and enhancement.29 another for their mutual support and enhancement.29
Figure 2 shows the shows the ~~McMil an~~McMillan Commission plan for the National Commission plan for the National ~~Mal .~~

Mall. 27 Daniel Burnham served as27 Daniel Burnham served as the Director of Works for the 1893 World’s Columbian Exposition (i.e., the World’s Fair) the Director of Works for the 1893 World’s Columbian Exposition (i.e., the World’s Fair)
in Chicago and as the director of numerous other city design projects including the city of Chicago in 1909. For more in Chicago and as the director of numerous other city design projects including the city of Chicago in 1909. For more
information on Daniel Burnham, see Carlinformation on Daniel Burnham, see Carl Smith, Smith, The Plan of Chicago: Daniel Burnham and the ~~Rem aking~~Remaking of the
~~Am erican~~American City (Chicago: University of Chicago Press, 2007); and (Chicago: University of Chicago Press, 2007); and ~~T homas~~Thomas S. Hines and Neil Harris, S. Hines and Neil Harris, Burnham of
Chicago: Architect and Planner, 2nd ed. (Chicago:, 2nd ed. (Chicago: University of Chicago Press, 2008). University of Chicago Press, 2008).
28 Frederick Law28 Frederick Law Olmsted wasOlmsted was a renowned landscape architect. He created the design of Central Park in Newa renowned landscape architect. He created the design of Central Park in New York York
City, the Biltmore Estate, the grounds of the 1893 World’s ColumbiaCity, the Biltmore Estate, the grounds of the 1893 World’s Columbia Exposition, and the U.S. Capitol grounds.Exposition, and the U.S. Capitol grounds. For For
more information on Frederick Law Olmsted, seemore information on Frederick Law Olmsted, see Witold Rybczynski, Witold Rybczynski, A Clearing in the Distance: Frederick Law
~~Olm sted and Am erica~~Olmsted and America in the 19th Century (New (New York: Scribner,York: Scribner, 2000); and Charles Beveridge2000); and Charles Beveridge and Paul Rocheleau, and Paul Rocheleau,
Frederick Law ~~Olm sted~~Olmsted: Designing the ~~Am erican~~American Landscape (New York: Rizzoli, 2005). (New York: Rizzoli, 2005).
29 U.S. 29 U.S. Congress, Senate Committee on the District of Columbia, Congress, Senate Committee on the District of Columbia, The Improvement of the Park System of the District of
~~Colum bia~~ of Columbia, 57th Cong., 1st sess.,, 57th Cong., 1st sess., S.Rept. 57-166 (Washington: GPO, 1902), p. 24. S.Rept. 57-166 (Washington: GPO, 1902), p. 24.
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Commemorative Works in the District of Columbia: Background and Practice

Figure 2. The McMillan Plan (1901)

Source: National Capital Planning Commission,National Capital Planning Commission, “The McMil an Plan of 1901,” “The McMil an Plan of 1901,” Images, at http://www.ncpc.gov. , at http://www.ncpc.gov.
While the While the ~~McMil an~~ McMillan plan was never fully implemented, it laid the foundation for additional plan was never fully implemented, it laid the foundation for additional
studies and plans for further development in the District of Columbia over the next 100 years.30 studies and plans for further development in the District of Columbia over the next 100 years.30
~~Additional y, the McMil an~~Additionally, the McMillan plan included concepts for the creation of monuments within the plan included concepts for the creation of monuments within the
federal landscape. The federal landscape. The ~~McMil an~~McMillan Plan also emphasized various design features of the federal core Plan also emphasized various design features of the federal core
including the National including the National ~~Mal~~ Mall, Federal Triangle, the area that is now the Lincoln Memorial, and the , Federal Triangle, the area that is now the Lincoln Memorial, and the
~~El ipse~~Ellipse. In recent years, the . In recent years, the ~~McMil an~~McMillan Plan’s concepts have been codified through plans and Plan’s concepts have been codified through plans and
studies by the National Capitalstudies by the National Capital Planning Commission (NCPC), the official planning agency Planning Commission (NCPC), the official planning agency
authorized by Congress in 1924.31 authorized by Congress in 1924.31

30 Ed Hatcher, “Washington’s Nineteenth-Century Citizens’ Associations and the Senate Park Commission Plan,” 30 Ed Hatcher, “Washington’s Nineteenth-Century Citizens’ Associations and the Senate Park Commission Plan,”
Washington History, vol. 14, no. 2 (Fall/Winter 2002/2003), p. 92. , vol. 14, no. 2 (Fall/Winter 2002/2003), p. 92.
31 For more information on the National Capital Planning Commission, see 31 For more information on the National Capital Planning Commission, see “ National Capital Memorial Advisory
Commission” ~~in Appe ndix D.~~ ~~T he~~in Appendix D. The National Capital Planning Commission’s studies National Capital Planning Commission’s studies include the Comprehensive Plan include the Comprehensive Plan
for the National Capital (https://www.ncpc.gov/plans/compplan/), the Federal Capital Improvements Program for the National Capital (https://www.ncpc.gov/plans/compplan/), the Federal Capital Improvements Program
(https://www.ncpc.gov/plans/fcip/), and the Memorials and Museums(https://www.ncpc.gov/plans/fcip/), and the Memorials and Museums Master Plan (https://www.ncpc.gov/plans/Master Plan (https://www.ncpc.gov/plans/
memorials/#:~:text=memorials/#:~:text=
~~T he~~The%20Memorials%20and%20Museums%20Master,general%20guidelines%20for%20their%20development%20Memorials%20and%20Museums%20Master,general%20guidelines%20for%20their%20development .). Other, .). Other,
not-for-profit entities have been established in recent years to advocate for the “not-for-profit entities have been established in recent years to advocate for the “ integrity of the National Mall.” integrity of the National Mall.” ~~T hese~~These
includedincluded the National Coalition to Save Our Mall, a 501(c)(3) nonprofit organization that “seeks to preserve the the National Coalition to Save Our Mall, a 501(c)(3) nonprofit organization that “seeks to preserve the
integrity of the National Mall as our national gathering place and symbol of foundingintegrity of the National Mall as our national gathering place and symbol of founding ideals” ideals”
(http://www.savethemall.org); and the (http://www.savethemall.org); and the ~~T rust~~Trust for the National Mall, which “ for the National Mall, which “ is the official nonprofit partner of the is the official nonprofit partner of the
National Park Service dedicated to restoring and improving the National Mall whileNational Park Service dedicated to restoring and improving the National Mall while providing newproviding new educational and educational and
volunteer opportunities to connect visitors to the Mall’s rich history.” For more information on the volunteer opportunities to connect visitors to the Mall’s rich history.” For more information on the ~~T rust~~Trust for the for the
National Mall, seeNational Mall, see http://www.nationalmall.org. http://www.nationalmall.org.
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Commemorative Works Act
In 1986, the Commemorative Works Act (CWA) was enacted to guide the creation of memorials In 1986, the Commemorative Works Act (CWA) was enacted to guide the creation of memorials
in the District of Columbia. Congress created the act in an effort in the District of Columbia. Congress created the act in an effort
(1) (1) to preserve the integrity of the comprehensive design of the L’Enfant and to preserve the integrity of the comprehensive design of the L’Enfant and ~~McMilan~~
McMillan plans for the Nation’s Capital; (2) to ensure the continued public use and enjoyment of plans for the Nation’s Capital; (2) to ensure the continued public use and enjoyment of
open space in the District of Columbia and its environs, and to open space in the District of Columbia and its environs, and to ~~en courage~~encourage the location of the location of
commemorative works within the urban fabric of the District of Columbia; (3) to preserve, commemorative works within the urban fabric of the District of Columbia; (3) to preserve,
protect,protect, ~~and maintain the limited amount of open space available to residents of,~~ and maintain the limited amount of open space available to residents of, and and
visitors to, the Nation’s Capital; and (4) to ensure that futurevisitors to, the Nation’s Capital; and (4) to ensure that future commemorative works in commemorative works in
areas administered by the National Park Service and the Administrator of General Services areas administered by the National Park Service and the Administrator of General Services
in the District of Columbia and its environs are…appropriately designed, constructed, and in the District of Columbia and its environs are…appropriately designed, constructed, and
located; and…reflect a consensus of lasting national significance of the subjects involved.32 located; and…reflect a consensus of lasting national significance of the subjects involved.32
The act further defined a commemorative work as “any statue, monument, sculpture, memorial, The act further defined a commemorative work as “any statue, monument, sculpture, memorial,
plaque, inscription, or other structure of landscape feature, including a garden or memorial grove, plaque, inscription, or other structure of landscape feature, including a garden or memorial grove,
designed to perpetuate in a permanent manner the memory of an individual, group, event or other designed to perpetuate in a permanent manner the memory of an individual, group, event or other
significant element of American history, except that the term does not include any such item significant element of American history, except that the term does not include any such item
which is located within the interior of a structure or a structure which is primarily used for other which is located within the interior of a structure or a structure which is primarily used for other
purposes.”33 The CWA does not apply to military properties, such as the Pentagon, Arlington purposes.”33 The CWA does not apply to military properties, such as the Pentagon, Arlington
National Cemetery, or Fort McNair, nor does the act apply to land under the jurisdiction of the National Cemetery, or Fort McNair, nor does the act apply to land under the jurisdiction of the
Smithsonian or the Architect of the Capitol. Smithsonian or the Architect of the Capitol.
Initial Passage
On March 11, 1986, Representative On March 11, 1986, Representative ~~Wil iam~~ William Hughes introduced H.R. 4378 “a Hughes introduced H.R. 4378 “a ~~bil~~ bill to govern the to govern the
establishment of commemorative works within the National Capitalestablishment of commemorative works within the National Capital Region of the National Park Region of the National Park
System.”34 It was referred to the House Committee on Interior and Insular Affairs, then to the System.”34 It was referred to the House Committee on Interior and Insular Affairs, then to the
Subcommittee on National Parks and Recreation, which held a hearing on AprilSubcommittee on National Parks and Recreation, which held a hearing on April 15 and reported 15 and reported
the the ~~bil~~ bill to the full committee.35 On April 23, the full committee approved H.R. 4378, and on May to the full committee.35 On April 23, the full committee approved H.R. 4378, and on May
5 recommended its enactment by the House.36 5 recommended its enactment by the House.36
The committee’s report indicated that legislation was necessary because of the “numerous The committee’s report indicated that legislation was necessary because of the “numerous
groups” seeking to place additional commemorative works in the District of Columbia and the groups” seeking to place additional commemorative works in the District of Columbia and the
need to strike a balance between different uses of parkland. The report also indicated that need to strike a balance between different uses of parkland. The report also indicated that
“[b]alance needs to be achieved between commemorative works on National Park land and the “[b]alance needs to be achieved between commemorative works on National Park land and the
myriad of activities that occur there. Commemorative works erected in the future should meet the myriad of activities that occur there. Commemorative works erected in the future should meet the
appropriate tests of being of lasting national significance, and designed and constructed to be appropriate tests of being of lasting national significance, and designed and constructed to be
~~physical y durable.”37~~

physically durable.”37 32 40 U.S.C.32 40 U.S.C. §8901. §8901.
33 40 U.S.C.33 40 U.S.C. §8902. §8902.
34 “Public Bills34 “Public Bills and Resolutions,” and Resolutions,” Congressional Record, vol. 132, part 3 (March 11, 1986), p. 4268. , vol. 132, part 3 (March 11, 1986), p. 4268.
35 U.S.35 U.S. Congress, HouseCongress, House Committee on Interior and Insular Affairs, Governing the Establishment of Commemorative Committee on Interior and Insular Affairs, Governing the Establishment of Commemorative
Works with the National Capital Region of the National Park System, and for Other Purposes, report to accompany Works with the National Capital Region of the National Park System, and for Other Purposes, report to accompany
H.R. 4378, 99th Cong., 2nd sess., May 5, 1986, H.Rept. 99-574 (Washington: GPO, 1986), p. 5. H.R. 4378, 99th Cong., 2nd sess., May 5, 1986, H.Rept. 99-574 (Washington: GPO, 1986), p. 5.
36 36 ~~Ibid.~~
~~37 Ibid.~~H.Rept. 99-574, p. 5. 37 H.Rept. 99-574, pp. 4-5. , pp. 4-5.
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On May 5, the House debated H.R. 4378. Representative Bruce Vento, one of the On May 5, the House debated H.R. 4378. Representative Bruce Vento, one of the ~~bil~~ bill’s ’s
supporters, linked the placement of commemorative works to the L’Enfant and supporters, linked the placement of commemorative works to the L’Enfant and ~~McMil an~~McMillan plans plans
for the District of Columbia. for the District of Columbia.
Mr. Speaker, as Americans, we are fortunate as a nation to have a capital city Mr. Speaker, as Americans, we are fortunate as a nation to have a capital city ~~specificaly~~specifically
planned and designed to embody our ideals, a city of both magnificence and practicality. planned and designed to embody our ideals, a city of both magnificence and practicality.
The design we now have comes to us only because of the diligence and vigilance of our The design we now have comes to us only because of the diligence and vigilance of our
predecessors. Through their efforts we can still see the city that Pierre L’Enfant planned predecessors. Through their efforts we can still see the city that Pierre L’Enfant planned
and that the 1902 U.S. Senate Park Commission with the McMillan plan restored, with its and that the 1902 U.S. Senate Park Commission with the McMillan plan restored, with its
vistas, its orderly but grand street patterns and its open space.38 vistas, its orderly but grand street patterns and its open space.38
Other Members expressed reservations about aspects of the Other Members expressed reservations about aspects of the ~~bil~~ bill. For example, Representative . For example, Representative
Michael Strang focused on placing commemorative works within the context of the city’s design, Michael Strang focused on placing commemorative works within the context of the city’s design,
and the importance of finding balance among uses of public lands. and the importance of finding balance among uses of public lands.
I believe the major goal of this legislation—to limit the proliferation of insignificant works I believe the major goal of this legislation—to limit the proliferation of insignificant works
in D.C.—is certainly meritorious. As additional works are located in this area, the open in D.C.—is certainly meritorious. As additional works are located in this area, the open
space which is used by numerous residents and visitors for a variety of activities, is lost space which is used by numerous residents and visitors for a variety of activities, is lost
forever.forever. ~~While I strongly support commemorating worthy individuals and events in~~ While I strongly support commemorating worthy individuals and events in our our
Nation’s history, I also feel a balance of uses for the public lands in our Nation’s Capital Nation’s history, I also feel a balance of uses for the public lands in our Nation’s Capital
must be established shortly.39 must be established shortly.39
H.R. 4378 passed the House by voice vote later that day. Subsequently, H.R. 4378 was referred to H.R. 4378 passed the House by voice vote later that day. Subsequently, H.R. 4378 was referred to
the Senate Committee on Energy and Natural Resources.40 the Senate Committee on Energy and Natural Resources.40
On June 24, the Senate Energy and Natural Resources Committee’s Subcommittee on Public On June 24, the Senate Energy and Natural Resources Committee’s Subcommittee on Public
Lands, Reserved Water, and Resource Conservation held a hearing on both S. 2522,41 a “Lands, Reserved Water, and Resource Conservation held a hearing on both S. 2522,41 a “~~bil~~ bill to to
provide standards for placement of commemorative works on certain federal lands in the District provide standards for placement of commemorative works on certain federal lands in the District
of Columbia and its environs, and for other purposes,”42 and H.R. 4378.43 The committee reported of Columbia and its environs, and for other purposes,”42 and H.R. 4378.43 The committee reported
H.R. 4378, replacing the House language with the text of S. 2522.44 The Senate debated H.R. H.R. 4378, replacing the House language with the text of S. 2522.44 The Senate debated H.R.
4378 on September 10 and passed the 4378 on September 10 and passed the ~~bil~~ bill by voice vote.45 by voice vote.45
On September 29, the House took up H.R. 4378, agreed to the Senate amendments with a few On September 29, the House took up H.R. 4378, agreed to the Senate amendments with a few
additionaladditional House amendments, and passed H.R. 4378, as amended, by voice vote.46 On October House amendments, and passed H.R. 4378, as amended, by voice vote.46 On October

38 Rep. Bruce Vento, “Advisory Board for Selection of Commemorative Works within the National Capital Region of 38 Rep. Bruce Vento, “Advisory Board for Selection of Commemorative Works within the National Capital Region of
the National Park System,” House debate, the National Park System,” House debate, Congressional Record, vol. 132, part 7 (May 5, 1986), p. 9432. , vol. 132, part 7 (May 5, 1986), p. 9432.
39 Rep. Michael Strang, “Advisory Board for Selection of Commemorative Works within the National Capital Region 39 Rep. Michael Strang, “Advisory Board for Selection of Commemorative Works within the National Capital Region
of the National Park System,” House debate, of the National Park System,” House debate, Congressional Record, vol. 132, part 7 (May 5, 1986), pp. 9432-9433. , vol. 132, part 7 (May 5, 1986), pp. 9432-9433.
40 “Measures Referred,” 40 “Measures Referred,” Congressional Record, vol.132, part 7 (May 7, 1986), p. 9899. , vol.132, part 7 (May 7, 1986), p. 9899.
41 U.S.41 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, Subcommittee on PublicSubcommittee on Public Lands, Reserved Lands, Reserved
Water and ResourceWater and Resource Conservation, Conservation, Standards for the ~~Establishm ent of Com m em orative~~Establishment of Commemorative Works in the Nation’s Capital, ,
hearing on S. 2522 and H.R. 4378, 99th Cong., 2nd sess., Junehearing on S. 2522 and H.R. 4378, 99th Cong., 2nd sess., June 24, 1986, S.Hrg. 99-896 (Washington: GPO, 1986). 24, 1986, S.Hrg. 99-896 (Washington: GPO, 1986).
42 S. 42 S. 2522 (99th Congress), introduced June 5, 1986 by Senator Malcolm Wallop. 2522 (99th Congress), introduced June 5, 1986 by Senator Malcolm Wallop.
43 U.S.43 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, The Placement of Commemorative Works on
Federal Lands in the District ~~of Colum bia~~ of Columbia and its Environs, report to accompany H.R. 4378, 99th Cong., 2nd sess., , report to accompany H.R. 4378, 99th Cong., 2nd sess.,
AugustAugust 15, 1986, S.Rept. 99-421 (Washington: GPO, 1986), p. 5. 15, 1986, S.Rept. 99-421 (Washington: GPO, 1986), p. 5.
44 “Reports of Committees,” 44 “Reports of Committees,” Congressional Record, vol. 132, part 15 (August 15, 1986), p. 21917. , vol. 132, part 15 (August 15, 1986), p. 21917.
45 “Commemorative Works in the District of Columbia,” Senate debate, 45 “Commemorative Works in the District of Columbia,” Senate debate, Congressional Record, vol. 132, part 16 , vol. 132, part 16
(September 10, 1986), pp. 22616-22618. One series of amendments was(September 10, 1986), pp. 22616-22618. One series of amendments was offered in the Senate. Senator Jamesoffered in the Senate. Senator James McClure McClure
introduced amendments to allow for fundsintroduced amendments to allow for funds donated for commemorative works to be considereddonated for commemorative works to be considered outside of the outside of the
sequestration process requiredsequestration process required by P.L. 99-177. Senator McClure’s amendments wereby P.L. 99-177. Senator McClure’s amendments were agreed to by voice vote. For more agreed to by voice vote. For more
information, see Sen. Alan Simpson, “Placement of Commemorative Works in the District of Columbia, McClure information, see Sen. Alan Simpson, “Placement of Commemorative Works in the District of Columbia, McClure
Amendment No. 2793,” Amendment No. 2793,” Congressional Record, vol. 132, part 16 (September 10, 1986), p. 22591. , vol. 132, part 16 (September 10, 1986), p. 22591.
46 “Providing Standards for Commemorative Works on Lands Administered by the National Park Service in the District 46 “Providing Standards for Commemorative Works on Lands Administered by the National Park Service in the District
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16, the Senate concurred with the House amendments and passed the 16, the Senate concurred with the House amendments and passed the ~~bil~~ bill.47 On November 14, .47 On November 14,
1986, President Ronald Reagan signed the CWA1986, President Ronald Reagan signed the CWA into law.48 The CWA, as enacted, contained 10 into law.48 The CWA, as enacted, contained 10
sections covering the purposes of the sections covering the purposes of the ~~bil~~ bill, definitions, congressional authorization for memorials, , definitions, congressional authorization for memorials,
creation of the National Capital Memorial Commission, conditions for memorial placement in creation of the National Capital Memorial Commission, conditions for memorial placement in
different parts of the District of Columbia, site design and approval, issuance of construction different parts of the District of Columbia, site design and approval, issuance of construction
permits, creation of a temporary memorial site, and other administrative provisions.permits, creation of a temporary memorial site, and other administrative provisions.4949 Table A-1, ,
iin Appendix A, ~~provides~~ provides a summary of the original provisions contained in the CWA for each a summary of the original provisions contained in the CWA for each
section of the section of the ~~bil .~~
bill. Extending Legislative Authority
By 1991, Congress realized that many authorized sponsor groups were not able to complete By 1991, Congress realized that many authorized sponsor groups were not able to complete
memorial construction in the memorial construction in the ~~al ocated~~allocated time. Pursuant to Section 10(b) of the CWA, legislative time. Pursuant to Section 10(b) of the CWA, legislative
authority for commemorative works expired within five years of its enactment, unless a authority for commemorative works expired within five years of its enactment, unless a
construction permit was issued.50 Of the eight commemorative works authorized between the 99th construction permit was issued.50 Of the eight commemorative works authorized between the 99th
Congress (1985-1986) and the 101st Congress (1989-1990), only one, the American Armored Congress (1985-1986) and the 101st Congress (1989-1990), only one, the American Armored
Force Memorial, had met the five-year deadline.51 To address this issue, Representative Force Memorial, had met the five-year deadline.51 To address this issue, Representative ~~Wil iam~~William
Clay introduced H.R. 3169, “To lengthen from five to seven years the expiration period Clay introduced H.R. 3169, “To lengthen from five to seven years the expiration period
applicable to legislativeapplicable to legislative authority relating to construction of commemorative works on Federal authority relating to construction of commemorative works on Federal
land in the District of Columbia and its environs.”52 land in the District of Columbia and its environs.”52
During the House debate, Representative Wayne During the House debate, Representative Wayne ~~Al ard~~ Allard argued that lengthening the time required argued that lengthening the time required
to complete a commemorative work was necessary: to complete a commemorative work was necessary:
As the subcommittee chairman has described, the Commemorative Works Act was enacted As the subcommittee chairman has described, the Commemorative Works Act was enacted
in 1986 in orderin 1986 in order ~~to address the numerous requests received by Congress to authorize~~
~~commemorative works on public space in the D.C. area. Overall this act has been~~ to address the numerous requests received by Congress to authorize commemorative works on public space in the D.C. area. Overall this act has been very very
successful in ensuring that only the most important works are constructed and that those successful in ensuring that only the most important works are constructed and that those
works constructed are of the highest quality. works constructed are of the highest quality.

of Columbia,”of Columbia,” ~~House~~ House debate, debate, Congressional Record, vol. 132, part 19 (September 29, 1986), pp. 27070-27076. , vol. 132, part 19 (September 29, 1986), pp. 27070-27076. ~~T he~~The
HouseHouse amendments to the Senate amendments added the names of House and Senate committees with jurisdiction over amendments to the Senate amendments added the names of House and Senate committees with jurisdiction over
commemorative works, set conditions for works to be placed in different geographic areas of the District, and rewrote commemorative works, set conditions for works to be placed in different geographic areas of the District, and rewrote
~~requirement s~~requirements for the creation of a temporary site for the placement of memorials before a permanent home was located. for the creation of a temporary site for the placement of memorials before a permanent home was located.
47 “Standards for Placement of Commemorative Works in the District of Columbia,” Senate debate, 47 “Standards for Placement of Commemorative Works in the District of Columbia,” Senate debate, Congressional
Record, vol. 132, part 22 (October 16, 1986), p. 32373. , vol. 132, part 22 (October 16, 1986), p. 32373.
48 P.L. 99-652, 100 Stat. 365048 P.L. 99-652, 100 Stat. 3650~~, November 14, 1986~~ (1986); 40 U.S.C. §8901 et seq. ; 40 U.S.C. §8901 et seq.
49 40 U.S.C.49 40 U.S.C. §§8901-8909. §§8901-8909.
50 P.L. 99-652, 100 Stat. 365450 P.L. 99-652, 100 Stat. 3654~~, November 14, 1986~~ (1986). .
51 U.S.51 U.S. Congress, HouseCongress, House Committee on Interior and Insular Affairs, Committee on Interior and Insular Affairs, Lengthening the Period for Construction of
~~Com m em orative~~Commemorative Works on Federal Land in the District ~~of Colum bia~~ of Columbia, report to accompany H.R. 3169, 102nd Cong., 1st , report to accompany H.R. 3169, 102nd Cong., 1st
sess.,sess., October 21, 1991, H.Rept. 102-257 (Washington: GPO, 1991), p. 2. October 21, 1991, H.Rept. 102-257 (Washington: GPO, 1991), p. 2.
52 H.R. 3169 (102nd Congress), introduced August 52 H.R. 3169 (102nd Congress), introduced August 1, 1991. See also “Public Bills1, 1991. See also “Public Bills and Resolutions,” and Resolutions,” Congressional
Record, vol. 137, part 15 (August 1, 1991), p. 21069. For more information on, vol. 137, part 15 (August 1, 1991), p. 21069. For more information on H.R. 3169, see U.S. Congress, House H.R. 3169, see U.S. Congress, House
Committee on Interior and Insular Affairs, Committee on Interior and Insular Affairs, Lengthening the Period for Construction of ~~Com m em orative~~Commemorative Works on
Federal Land in D.C., report to accompany H.R. 3169, 102nd Cong., 1st sess., October 21, 1991, H.Rept. 102-257 , report to accompany H.R. 3169, 102nd Cong., 1st sess., October 21, 1991, H.Rept. 102-257
(Washington: GPO, 1991); and U.S.(Washington: GPO, 1991); and U.S. Congress,Congress, Senate Committee on Energy and Natural Resources,Senate Committee on Energy and Natural Resources, Lengthening the
Period for Construction of ~~Com m em orative~~Commemorative Works on Federal Land in D.C. , report to accompany H.R. 3169, 102nd , report to accompany H.R. 3169, 102nd
Cong., 1st sess.,Cong., 1st sess., November 12, 1991, S.Rept. 102November 12, 1991, S.Rept. 102 -211 (Washington: GPO, 1991). -211 (Washington: GPO, 1991).
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Of course, Of course, it takesit takes time to developtime to develop ~~an outstanding proposal and it appears that~~ an outstanding proposal and it appears that when when
Congress enacted this law 5 years ago, we underestimated the amount of time required to Congress enacted this law 5 years ago, we underestimated the amount of time required to
secure the necessary approvals and raise funds for these projects.53 secure the necessary approvals and raise funds for these projects.53
Following debate, the House passed H.R. 3169 by voice vote.54 The Senate Committee on Energy Following debate, the House passed H.R. 3169 by voice vote.54 The Senate Committee on Energy
and Natural Resources reported the and Natural Resources reported the ~~bil~~ bill on November 12,55 and the full Senate passed the measure on November 12,55 and the full Senate passed the measure
without debate on November 27.56 President George H.W. Bush signed the without debate on November 27.56 President George H.W. Bush signed the ~~bil~~ bill into law on into law on
December 11, 1991.57 December 11, 1991.57
Further Extending Legislative Authority
Following the extension of authority to complete a commemorative work to seven years,58 on Following the extension of authority to complete a commemorative work to seven years,58 on
August 6, 1993, Representative Nancy Johnson introduced H.R. 2947 to further extend the August 6, 1993, Representative Nancy Johnson introduced H.R. 2947 to further extend the
legislativelegislative authority of the Black Revolutionary War Patriots Foundation to nine years from the authority of the Black Revolutionary War Patriots Foundation to nine years from the
date of initialdate of initial enactment.59 The Committee on Natural Resources reported the enactment.59 The Committee on Natural Resources reported the ~~bil~~ bill on November on November
20 with amendments to not only extend the legislative20 with amendments to not only extend the legislative authority for the Black Revolutionary War authority for the Black Revolutionary War
Patriots Foundation, but also for the Women in MilitaryPatriots Foundation, but also for the Women in Military Service for America Memorial, and the Service for America Memorial, and the
National Peace Garden. In addition, the committee included other technical amendments to the National Peace Garden. In addition, the committee included other technical amendments to the
CWA at the request of the National Capital Memorial Commission.60CWA at the request of the National Capital Memorial Commission.60
During the ensuing floor debate, Representative Bruce Vento summarized the committee’s During the ensuing floor debate, Representative Bruce Vento summarized the committee’s
rationale for further extending legislative authorities of the three memorials and the necessity of rationale for further extending legislative authorities of the three memorials and the necessity of
further amending the CWA. further amending the CWA.
Mr. Speaker, Mr. Speaker, H.R. 2947 asH.R. 2947 as ~~originally introduced by~~ originally introduced by Congresswoman Nancy Johnson, Congresswoman Nancy Johnson,
would extend the authorization for the Black Revolutionary War Patriots Memorial…. As would extend the authorization for the Black Revolutionary War Patriots Memorial…. As
amended by the Committee on Natural Resources, H.R. 2947 extends the authorization for amended by the Committee on Natural Resources, H.R. 2947 extends the authorization for
the establishment of three commemorative works to be constructed here in the Nation’s the establishment of three commemorative works to be constructed here in the Nation’s
Capital andCapital and makes various technicalmakes various technical ~~amendments to the~~ amendments to the Commemorative WorksCommemorative Works Act. Act.
…The…The Black Revolutionary WarBlack Revolutionary War ~~Patriots Memorial, the~~ Patriots Memorial, the women in military servicewomen in military service to to
America and the National Peace Garden have all been authorized under the America and the National Peace Garden have all been authorized under the
Commemorative Works Act. All three have obtained the initial site and design approvals Commemorative Works Act. All three have obtained the initial site and design approvals
as required by the law. But for various reasons, particularly because of the difficulty of as required by the law. But for various reasons, particularly because of the difficulty of
fundraising,fundraising, each of them has requestedeach of them has requested an extensionan extension for the completionfor the completion of their of their
commemorativecommemorative works. This legislationworks. This legislation ~~extends~~ extends their authorizations to 10their authorizations to 10 ~~years—an~~

years—an additional 3 years for each. I support this extension with the understanding that there will be no further extensions. 53 Rep. Wayne Allard, “Lengthening Expiration Period for Construction of Commemorative Works on Federal Land,” 53 Rep. Wayne Allard, “Lengthening Expiration Period for Construction of Commemorative Works on Federal Land,”
HouseHouse debate, debate, Congressional Record, vol. 137, part 19 (October 21, 1991), p. 26895. , vol. 137, part 19 (October 21, 1991), p. 26895.
54 “Lengthening Expiration Period for Construction of Commemorative Works on Federal Land,” House debate, 54 “Lengthening Expiration Period for Construction of Commemorative Works on Federal Land,” House debate,
Congressional Record, vol. 137, part 19 (October 21, 1991), p. 26896. , vol. 137, part 19 (October 21, 1991), p. 26896.
55 U.S.55 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, Lengthening the Period for Construction of
~~Com m em orative~~Commemorative Works on Federal Land in the District ~~of Colum bia~~ of Columbia, report to accompany H.R. 3169, 102nd Cong., 1st , report to accompany H.R. 3169, 102nd Cong., 1st
sess.,sess., November 12, 1991, S.Rept. 102-211 (Washington: GPO, 1991). November 12, 1991, S.Rept. 102-211 (Washington: GPO, 1991).
56 “Extension of Expiration of Legislative Authority Relating to Construction of Commemorative Works on Federal 56 “Extension of Expiration of Legislative Authority Relating to Construction of Commemorative Works on Federal
Lands in the District of Columbia or its Environs,” Lands in the District of Columbia or its Environs,” Congressional Record, vol. 137, part 24 (November 27, 1991), p. , vol. 137, part 24 (November 27, 1991), p.
36314. 36314.
57 P.L. 102-216, 105 Stat. 1666 57 P.L. 102-216, 105 Stat. 1666~~, December 11, 1991~~ (1991). .
58 Ibid. 58 Ibid.
59 H.R. 2947 (103rd Congress), introduced August59 H.R. 2947 (103rd Congress), introduced August 3, 1993. 3, 1993.
60 U.S.60 U.S. Congress, HouseCongress, House Committee on Natural Resources, Committee on Natural Resources, Commemorative Works Act Amendments, report to , report to
accompany H.R. 2947, 103rd Cong., 1st sess., November 20, 1993, H.Rept. 103accompany H.R. 2947, 103rd Cong., 1st sess., November 20, 1993, H.Rept. 103 -400 (Washington: GPO, 1993), pp. 3-4. -400 (Washington: GPO, 1993), pp. 3-4.
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~~additional 3 years for each. I support this extension with the understanding that there will~~
~~be no further extensions.~~
~~As amended by the Committee on Natural Resources, H.R. 2947 also makes various~~
~~changes to the Commemorative Works Act. Primarily technical, these changes were~~
~~requested by the National Capital Memorial Commission, and by those responsible~~ As amended by the Committee on Natural Resources, H.R. 2947 also makes various changes to the Commemorative Works Act. Primarily technical, these changes were requested by the National Capital Memorial Commission, and by those responsible for for
administrating the act. The most important of these changes adds provisions on administrating the act. The most important of these changes adds provisions on
accountability for fundraisers so that the public’s trust is not abused.61 accountability for fundraisers so that the public’s trust is not abused.61
The House passed H.R. 2947 by voice vote,62 and it was referred in the Senate to the Committee The House passed H.R. 2947 by voice vote,62 and it was referred in the Senate to the Committee
on Energy and Natural Resources.63 on Energy and Natural Resources.63
In the Senate, the Committee on Energy and Natural Resources reported a further amended In the Senate, the Committee on Energy and Natural Resources reported a further amended
version of the version of the ~~bil~~ bill that included changes to the National Capital Memorial Commission and that included changes to the National Capital Memorial Commission and
restoration of a previously deleted provision that “directed the Secretary of the Interior and the restoration of a previously deleted provision that “directed the Secretary of the Interior and the
Administrator of the General Services Administration to develop fundraising standards and to Administrator of the General Services Administration to develop fundraising standards and to
suspend a groups’ fundraising authority if the Secretary or Administrator … determined that the suspend a groups’ fundraising authority if the Secretary or Administrator … determined that the
group’s fundraising activities were not in compliance with those standards.”64 The Senate passed group’s fundraising activities were not in compliance with those standards.”64 The Senate passed
the the ~~bil~~ bill, as amended, by voice vote.65 , as amended, by voice vote.65
Upon its return to the House, H.R. 2947 was further debated. During the debate, Representative Upon its return to the House, H.R. 2947 was further debated. During the debate, Representative
Vento explained the Senate amendments and urged passage of the Vento explained the Senate amendments and urged passage of the ~~bil .~~
~~The Senate deleted a provision in the House-passed bill authorizing the Secretary to~~
~~suspend~~ bill. The Senate deleted a provision in the House-passed bill authorizing the Secretary to suspend a memorial organization’sa memorial organization’s activity if thereactivity if there are excessiveare excessive ~~administrative~~ administrative and and
fundraising expenses. It is the committee’s intent that the National Park Service develop fundraising expenses. It is the committee’s intent that the National Park Service develop
guidelines which provide direction to memorial organizations on the subject of guidelines which provide direction to memorial organizations on the subject of
unreasonableunreasonable or excessiveor excessive administrative costsadministrative costs ~~and fundraising fees.~~ and fundraising fees. The committee The committee
believes that guidelines from the National Park Service would also be helpful to avoiding believes that guidelines from the National Park Service would also be helpful to avoiding
problems in the future. The committee expects the National Park Service to monitor the problems in the future. The committee expects the National Park Service to monitor the
fundraising activities of the memorial organizations more closely and it intends that all of fundraising activities of the memorial organizations more closely and it intends that all of
thethe ~~provisions of~~ provisions of H.R. 2947 applyH.R. 2947 apply ~~to all commemorative works authorized under~~ to all commemorative works authorized under the the
Commemorative Works Act.66 Commemorative Works Act.66
The House passed H.R. 2947, as amended in the Senate, by a vote of 378 to 0.67 It became P.L. The House passed H.R. 2947, as amended in the Senate, by a vote of 378 to 0.67 It became P.L.
103-321 on August 26, 1994.68 103-321 on August 26, 1994.68

Creating the Reserve After receiving several requests for the placement of memorials on the National Mall, Congress recognized the need to preserve the L’Enfant and McMillan visions and prevent the Mall area from being overbuilt.69 In March 2000, the Senate Committee on Energy and Natural Resources 61 Rep. Bruce Vento, “Extending Authorization of Black Revolutionary War Patriots Foundation to Establish 61 Rep. Bruce Vento, “Extending Authorization of Black Revolutionary War Patriots Foundation to Establish
Memorial,” HouseMemorial,” House debate, debate, Congressional Record, vol. 139, part 22 (November 22, 1993), p. 32020. , vol. 139, part 22 (November 22, 1993), p. 32020.
62 “Extending Authorization of Black Revolutionary War Patriots Foundation to Establish Memorial,” 62 “Extending Authorization of Black Revolutionary War Patriots Foundation to Establish Memorial,” Congressional
Record, vol. 139, part 22 (November 22, 1993), p. 32022., vol. 139, part 22 (November 22, 1993), p. 32022.
63 “Measures Referred,” 63 “Measures Referred,” Congressional Record, vol. 139, part 22 (November 23, 1993), p. 32241. , vol. 139, part 22 (November 23, 1993), p. 32241.
64 U.S.64 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, Commemorative Works Act Amendments, report , report
to accompany H.R. 2947, 103rd Cong., 2nd sess., April 5, 1994, S.Rept. 103-247 (Washington: GPO, 1994), p. 3. to accompany H.R. 2947, 103rd Cong., 2nd sess., April 5, 1994, S.Rept. 103-247 (Washington: GPO, 1994), p. 3.
65 “Commemorative Works Act,” 65 “Commemorative Works Act,” Congressional Record, vol. 140, part 5 (April 12, 1994), p. 7143. , vol. 140, part 5 (April 12, 1994), p. 7143.
66 Rep. Bruce Vento, “Concurring in Senate Amendments to66 Rep. Bruce Vento, “Concurring in Senate Amendments to H.R. 2947, Commemorative Works Act Amendments,” H.R. 2947, Commemorative Works Act Amendments,”
HouseHouse debate, debate, Congressional Record, vol. 140, part 16 (August 16, 1994), p. 22532. , vol. 140, part 16 (August 16, 1994), p. 22532.
67 “Concurring in Senate Amendments to H.R. 2947, Commemorative Works Act Amendments,” House debate, 67 “Concurring in Senate Amendments to H.R. 2947, Commemorative Works Act Amendments,” House debate,
Congressional Record, vol. 140, part 16 (August 16, 1994), p. 22566. , vol. 140, part 16 (August 16, 1994), p. 22566.
68 P.L. 103-321, 108 Stat. 1793 68 P.L. 103-321, 108 Stat. 1793~~, August 26, 1994.~~
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~~Commemorative Works in the District of Columbia: Background and Practice~~

~~Creating the Reserve~~
~~After receiving several requests for the placement of memorials on the National Mal , Congress~~
~~recognized the need to preserve the L’Enfant and McMil an visions and prevent the Mal area~~
~~from being overbuilt.69 In March 2000, the Senate Committee on Energy and Natural Resources~~
(1994). 69 National Park Service, “Measures to Protect the Planning Vision,” A History of the National Mall and Pennsylvania Avenue National Historic Park, p. 12, at http://www.nps.gov/nationalmallplan/Documents/mallpaavhistory.pdf. Congressional Research Service 11 Commemorative Works in the District of Columbia: Background and Practice Subcommittee on National Parks, Historic Preservation, and Recreation held an oversight hearing Subcommittee on National Parks, Historic Preservation, and Recreation held an oversight hearing
on monuments and memorials in the District of Columbia. At the hearing, representatives from on monuments and memorials in the District of Columbia. At the hearing, representatives from
the NCPC, the U.S. Commission of Fine Arts (CFA), the NPS, the District of Columbia, and the the NCPC, the U.S. Commission of Fine Arts (CFA), the NPS, the District of Columbia, and the
Committee of 100 on the Federal City70 Committee of 100 on the Federal City70 al all testified on proposed amendments to the CWA.71 The testified on proposed amendments to the CWA.71 The
proposed amendments were the result of a 1997 report to Congress by the NPS, the NCPC, and proposed amendments were the result of a 1997 report to Congress by the NPS, the NCPC, and
the CFA.72 the CFA.72
In summarizing the need for the creation of a new “reserve” area, or no-build zone, on the In summarizing the need for the creation of a new “reserve” area, or no-build zone, on the
National National ~~Mal~~ Mall, J. Carter Brown, chair of the CFA, also testified that the Reserve should have a , J. Carter Brown, chair of the CFA, also testified that the Reserve should have a
building moratorium to protect the National building moratorium to protect the National ~~Mal~~ Mall area. area.
With the considerable pressures to add new memorials to the city, it is inevitable that many With the considerable pressures to add new memorials to the city, it is inevitable that many
sponsors of what they feel are preeminent causes would favor a location in the proposed sponsors of what they feel are preeminent causes would favor a location in the proposed
reserve. Under such a continuing threat, it makes sense to define this central precinct as a reserve. Under such a continuing threat, it makes sense to define this central precinct as a
no-build zone. no-build zone.
Even Even ~~with the substantial size of the reserve, there will still be many sites available for~~
~~memorials in the foreseeable future. The genius of L’Enfant’s plan … created~~ with the substantial size of the reserve, there will still be many sites available for memorials in the foreseeable future. The genius of L’Enfant’s plan … created literally literally
hundreds of sites across the city, and it is our hope their abundance and desirability will hundreds of sites across the city, and it is our hope their abundance and desirability will
lead to the placement of future memorials throughout the capital.73 lead to the placement of future memorials throughout the capital.73
In the 107th Congress (2001-2002), Senator Chuck Hagel introduced S. 281, the Vietnam Veterans In the 107th Congress (2001-2002), Senator Chuck Hagel introduced S. 281, the Vietnam Veterans
Memorial Education Act.74 Reported by the Senate Committee on Energy and Natural Resources, Memorial Education Act.74 Reported by the Senate Committee on Energy and Natural Resources,
it contained amendments to the CWA to create the Reserve and prohibit building of new it contained amendments to the CWA to create the Reserve and prohibit building of new
memorials within its boundaries.75 S. 281 did not receive further consideration by the Senate. memorials within its boundaries.75 S. 281 did not receive further consideration by the Senate.

~~69 National Park Service, “Measures to Protect the Planning Vision,”~~ ~~A History of the National Mall and Pennsylvania~~
~~Avenue National Historic Park, p. 12, at http://www.nps.gov/nationalmallplan/Documents/mallpaavhistory.pdf.~~
~~70 T he~~ The issue was reintroduced in the 108th Congress (2003-2004) by Representative Richard Pombo.76 Reported by the House Committee on Resources, H.R. 1442 authorized the design and construction of the Vietnam Visitor Center, 77 and following Senate amendment,78 contained 70 The Committee on 100 of the Federal City was founded Committee on 100 of the Federal City was founded in 1923 “to act as a force of conscience in the evolution of in 1923 “to act as a force of conscience in the evolution of
the nation’s capital city … [and] to sustain and to safeguardthe nation’s capital city … [and] to sustain and to safeguard the fundamental valuesthe fundamental values derived from the tradition of the derived from the tradition of the
L'Enfant Plan and the McMillan Commission….L'Enfant Plan and the McMillan Commission…. (~~Com m ittee~~ (Committee on 100 of the Federal City: Its History and Its Service to
the Nation’s Capital, prepared by Richard Striner, Ph.D, at http://www.committeeof100.net/Who-We-Are/history. , prepared by Richard Striner, Ph.D, at http://www.committeeof100.net/Who-We-Are/history.
71 U.S.71 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, Subcommittee on National Parks, Historic Subcommittee on National Parks, Historic
Preservation and Recreation, Preservation and Recreation, DC Area ~~Monum ents and Mem orials~~Monuments and Memorials, hearing on the Status of Monuments and , hearing on the Status of Monuments and
Memorials, and NewMemorials, and New Policies that have been Adopted for Locating NewPolicies that have been Adopted for Locating New ~~Commemorative Wo rks~~ Commemorative Works in and Around in and Around
Washington, DC, 106th Cong., 2nd sess., March 23, 2000, S.Hrg. 106-578 (Washington: GPO, 2000). [Hereinafter, Washington, DC, 106th Cong., 2nd sess., March 23, 2000, S.Hrg. 106-578 (Washington: GPO, 2000). [Hereinafter, DC
Area ~~Monum ents and Mem orials~~Monuments and Memorials]. ].
72 U.S. 72 U.S. Joint Joint ~~T ask~~Task Force on Memorials, Force on Memorials, Report, at https://www.ncpc.gov/docs/, at https://www.ncpc.gov/docs/
~~2M_Joint_T ask_Force_on_Memorials~~2M_Joint_Task_Force_on_Memorials.pdf. .pdf.
73 73 DC Area Monuments and Memorials, p. 6. , p. 6.
74 Companion legislation, H.R. 510, was introduced in the House of Representative by Representative John Murtha. 74 Companion legislation, H.R. 510, was introduced in the House of Representative by Representative John Murtha.
75 U.S.75 U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, Vietnam Veterans Memorial Education Act, ,
report to accompany S. 281, 107th Cong., 2nd sess., Junereport to accompany S. 281, 107th Cong., 2nd sess., June 25, 2002, S.Rept. 107-177 (Washington: GPO, 2002). For 25, 2002, S.Rept. 107-177 (Washington: GPO, 2002). For
more information on S. 281, see U.S.more information on S. 281, see U.S. Congress,Congress, Senate Committee on Energy and Natural Resources,Senate Committee on Energy and Natural Resources, Subcommittee on Subcommittee on
National Parks, National Parks, Miscellaneous National Park and ~~Monum ent~~Monument Measures, hearing on S., hearing on S. 281, S.281, S. 386, H.R. 146, S.386, H.R. 146, S. 513, 513,
H.R. 182, S. 921, H.R. 1000, S. 1097, and H.R. 1668, 107th Cong., 1st sess.,H.R. 182, S. 921, H.R. 1000, S. 1097, and H.R. 1668, 107th Cong., 1st sess., July 19, 2001, S.Hrg. 107-219 July 19, 2001, S.Hrg. 107-219
(Washington: GPO, 2001), pp. 20-37. (Washington: GPO, 2001), pp. 20-37.
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~~link to page 23~~ ~~Commemorative Works in the District of Columbia: Background and Practice~~

~~The issue was reintroduced in the 108th Congress (2003-2004) by Representative Richard~~
~~Pombo.76 Reported by the House Committee on Resources, H.R. 1442 authorized the design and~~
~~construction of the Vietnam Visitor Center, 77 and following Senate amendment,78 contained~~
76 H.R. 1442 (108th Congress), introduced March 26, 2003. 77 U.S. Congress, House Committee on Resources, To Authorize the Design and Construction of a Visitor Center for the Vietnam Veterans Memorial, report to accompany H.R. 1442, 108th Cong., 1st sess., October 2, 2003, H.Rept. 108-295 (Washington: GPO, 2003). 78 “Text of Amendments,” Congressional Record, daily edition, vol. 149 (November 5, 2003), p. S14070. Congressional Research Service 12 link to page 22 Commemorative Works in the District of Columbia: Background and Practice language to amend the CWA to create a “reserve” area.79 Enacted as P.L. 108-126, a reserve area language to amend the CWA to create a “reserve” area.79 Enacted as P.L. 108-126, a reserve area
and buildingand building moratorium were established on the National moratorium were established on the National ~~Mal~~ Mall.80 .80
Pursuant to P.L. 108-126, no additional commemorative works, unless they were authorized prior Pursuant to P.L. 108-126, no additional commemorative works, unless they were authorized prior
to P.L. 108-126, are permitted in the Reserve. As a result, the definitions proscribed for memorial to P.L. 108-126, are permitted in the Reserve. As a result, the definitions proscribed for memorial
placement in Area I, where new commemorative works must be of preeminent historical and placement in Area I, where new commemorative works must be of preeminent historical and
lasting significance to the United States, and Area II, which is reserved for subjects of lasting lasting significance to the United States, and Area II, which is reserved for subjects of lasting
historical significance to the American people, became more important when deciding where a historical significance to the American people, became more important when deciding where a
commemorative work should be placed. More information about the placement of commemorative work should be placed. More information about the placement of
commemorative works is contained below undercommemorative works is contained below under “Designation of Areas of Washington, DC.” ”
Permitting On-Site Donor Acknowledgment
~~Historical y~~Historically, commemorative works have been expensive.81 Sponsor groups are often statutorily , commemorative works have been expensive.81 Sponsor groups are often statutorily
prohibited from using federal funds to design, construct, or dedicate the monuments or prohibited from using federal funds to design, construct, or dedicate the monuments or
memorials.82 Consequently, to raise the necessary funds, groups sometimes turn not only to the memorials.82 Consequently, to raise the necessary funds, groups sometimes turn not only to the
general public for donations, but also to corporations and foundations. general public for donations, but also to corporations and foundations. ~~Occasional y~~Occasionally, ,
contributors—contributors—~~especial y~~especially corporate and foundation donors—request recognition for donation. corporate and foundation donors—request recognition for donation.
Whether groups sponsoring monuments and memorials are Whether groups sponsoring monuments and memorials are ~~al owed~~allowed to recognize donations could to recognize donations could
affect the sponsor groups’ ability to raise the necessary funds.83 affect the sponsor groups’ ability to raise the necessary funds.83

~~76 H.R. 1442 (108th Congress), introduced March 26, 2003.~~
~~77 U.S. Congress, House Committee on Resources,~~ ~~To Authorize the Design and Construction of a Visitor Center for~~
~~the Vietnam Veterans Mem orial, report to accompany H.R. 1442, 108th Cong., 1st sess., October 2, 2003, H.Rept. 108-~~
~~295 (Washington: GPO, 2003).~~
~~78 “T ext of Amendments,” Congressional Record, daily edition, vol. 149 (November 5, 2003), p. S14070.~~
Donor recognition for monuments and memorials can generally be divided into two categories: on-site and off-site donor recognition. On-site donor recognition is the acknowledgment—either permanent or temporary—of contributions at the location of a monument or memorial. Off-site donor recognition is the acknowledgement of contributions in a manner that does not involve the monument or memorial location. This recognition can include, but is not limited to, thank you letters, awards, publicity, press conferences, mementos, and online acknowledgment.84 Additionally, policies on recognizing donations differ for works authorized under the CWA and for non-CWA monuments and memorials. 79 “Authorizing Design and Construction of Visitor Center for the Vietnam Veterans Memorial,” 79 “Authorizing Design and Construction of Visitor Center for the Vietnam Veterans Memorial,” Congressional
Record, daily edition, vol. 149 (November 5, 2003), p. S14075., daily edition, vol. 149 (November 5, 2003), p. S14075.
80 P.L. 108-126, 117 Stat. 1348 80 P.L. 108-126, 117 Stat. 1348~~, November 17, 2003~~ (2003). .
81 81 ~~T wo~~Two recent memorials had construction costs in excess of $50 million. recent memorials had construction costs in excess of $50 million. ~~T he~~The World War II Memorial ( World War II Memorial ( P.L. 103-32) P.L. 103-32)
had total construction costs of $66.4 million. According to the sponsor group, the American Battle Monuments had total construction costs of $66.4 million. According to the sponsor group, the American Battle Monuments
Commission (ABMC), the total cost for the World War II Memorial project, including site selection, memorial design, Commission (ABMC), the total cost for the World War II Memorial project, including site selection, memorial design,
fundraising,fundraising, administration, and dedication, wasadministration, and dedication, was approximately $182 million. Similarly, the National Park Service approximately $182 million. Similarly, the National Park Service
reports, based on the 10% of memorial construction costs collected pursuant to 40 U.S.C. §8906(b)(1), that the Martin reports, based on the 10% of memorial construction costs collected pursuant to 40 U.S.C. §8906(b)(1), that the Martin
Luther King Jr., Memorial Project Foundation spent approximately $55Luther King Jr., Memorial Project Foundation spent approximately $55 .2 million on construction of the Reverend Dr. .2 million on construction of the Reverend Dr.
Martin Luther King Jr. Memorial (P.L. 104-333). Further, the Martin Luther King, Jr., Memorial Project Foundation, Martin Luther King Jr. Memorial (P.L. 104-333). Further, the Martin Luther King, Jr., Memorial Project Foundation,
Inc., has a goalInc., has a goal to raise $120 million for the memorial. Martin Luther King, Jr., Memorial Project Foundation Inc., to raise $120 million for the memorial. Martin Luther King, Jr., Memorial Project Foundation Inc.,
“Washington, D.C. Martin Luther King, Jr., National Memorial,” at https://www.thememorialfoundation.org/. “Washington, D.C. Martin Luther King, Jr., National Memorial,” at https://www.thememorialfoundation.org/.
82 For example, P.L. 112-239 §2859, 126 Stat. 2164, January 2, 2013, authorizes the Gold Star Mothers National 82 For example, P.L. 112-239 §2859, 126 Stat. 2164, January 2, 2013, authorizes the Gold Star Mothers National
Monument Foundation to establish a commemorative work in the District of Columbia. Pursuant to this law, the Gold Monument Foundation to establish a commemorative work in the District of Columbia. Pursuant to this law, the Gold
Star Mothers National Monument Foundation is explicitly prohibited from using federal funds to designStar Mothers National Monument Foundation is explicitly prohibited from using federal funds to design or buildor build the the
memorial. memorial. ~~T herefore~~Therefore, the foundation is required to raise all money , the foundation is required to raise all money ~~necessar y to “~~ necessary to “establish” the commemorative work. establish” the commemorative work.
83 In his testimony before the House Committee on Natural Resources, Subcommittee on Public Lands 83 In his testimony before the House Committee on Natural Resources, Subcommittee on Public Lands and and
Environmental Regulation, Jan Scruggs,Environmental Regulation, Jan Scruggs, president and founder of the Vietnam Veterans Memorial Fund, articulated president and founder of the Vietnam Veterans Memorial Fund, articulated ~~hi s~~his
viewview of why donor recognition is essential to raising sufficient money toward buildingof why donor recognition is essential to raising sufficient money toward building the Vietnam Veterans Memorial the Vietnam Veterans Memorial
Visitor Center. SeeVisitor Center. See ~~T estimony~~ Testimony of Jan D. Scruggs, of Jan D. Scruggs, president, Vietnam Veterans Memorial Fund, U.S.president, Vietnam Veterans Memorial Fund, U.S. Congress,Congress, House House
Committee on Natural Resources, Subcommittee on PublicCommittee on Natural Resources, Subcommittee on Public Lands and Environmental Regulations, Lands and Environmental Regulations, Hearing on H.R.
588, H.R. 716, and H.R. 819, 113th Cong., 1st sess., March 14, 2013, p. 2. , 113th Cong., 1st sess., March 14, 2013, p. 2.
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~~Commemorative Works in the District of Columbia: Background and Practice~~

~~Donor recognition for monuments and memorials can general y be divided into two categories:~~
~~on-site and off-site donor recognition. On-site donor recognition is the acknowledgment—either~~
~~permanent or temporary—of contributions at the location of a monument or memorial. Off-site~~
~~donor recognition is the acknowledgement of contributions in a manner that does not involve the~~
~~monument or memorial location. This recognition can include, but is not limited to, thank you~~
~~letters, awards, publicity, press conferences, mementos, and online acknowledgment.84~~
~~Additional y, policies on recognizing donations differ for works authorized under the CWA and~~
~~for non-CWA monuments and memorials.~~84 U.S. Department of the Interior, National Park Service, Director’s Order #21: Donations and Fundraising, July 11, 2008, pp. 20-21, at https://www.nps.gov/policy/DOrders/DO_21.htm. Congressional Research Service 13 Commemorative Works in the District of Columbia: Background and Practice
When it was enacted in 1986, the CWA prohibited the on-site recognition of donors at memorial When it was enacted in 1986, the CWA prohibited the on-site recognition of donors at memorial
sites in the District of Columbia. Between 1986 and 2013, memorial sponsors were not sites in the District of Columbia. Between 1986 and 2013, memorial sponsors were not ~~al owed~~allowed to to
recognize donors on-site. In the 113th Congress, the first exemption to the on-site ban on donor recognize donors on-site. In the 113th Congress, the first exemption to the on-site ban on donor
acknowledgement was provided to the Vietnam Veterans Memorial Fund to aid its effort to build acknowledgement was provided to the Vietnam Veterans Memorial Fund to aid its effort to build
the Vietnam Veterans Memorial Visitor Center.85 The law provided the sponsor group with the the Vietnam Veterans Memorial Visitor Center.85 The law provided the sponsor group with the
abilityability to recognize donors on-site, subject to the approval of the Secretary of the Interior, and at to recognize donors on-site, subject to the approval of the Secretary of the Interior, and at
the expense of the sponsor group. the expense of the sponsor group.
At the same time that the Vietnam Veterans Memorial Visitor Center was granted permission to At the same time that the Vietnam Veterans Memorial Visitor Center was granted permission to
recognize donors, Representative Doc Hastings introduced H.R. 2395, “to provide for donor recognize donors, Representative Doc Hastings introduced H.R. 2395, “to provide for donor
contribution acknowledgements to be displayed at projects authorized under the Commemorative contribution acknowledgements to be displayed at projects authorized under the Commemorative
Works Act.”86 The Works Act.”86 The ~~bil~~ bill would have amended 40 U.S.C. §8905(b) to would have amended 40 U.S.C. §8905(b) to ~~al ow~~allow acknowledgement of acknowledgement of
donor contributions, subject to several conditions. donor contributions, subject to several conditions. ~~Additional y, the bil~~ Additionally, the bill would have retroactively would have retroactively
applied to applied to al all memorials dedicated after January 1, 2010.87 memorials dedicated after January 1, 2010.87
In testimony on the In testimony on the ~~bil~~ bill before the House Natural Resources Committee, Subcommittee on Public before the House Natural Resources Committee, Subcommittee on Public
Lands and Environmental Regulation, Stephen Lands and Environmental Regulation, Stephen ~~Whitesel~~ Whitesell, regional director of the National , regional director of the National
Capital Region for the National Park Service, supported the on-site recognition of donors. He Capital Region for the National Park Service, supported the on-site recognition of donors. He
said, said,
Although the Department has supported the CWA ban on donor recognition, this ban has Although the Department has supported the CWA ban on donor recognition, this ban has
proven to be impractical, given the challenge of funding new memorials and the reliance proven to be impractical, given the challenge of funding new memorials and the reliance
of the memorial sponsors on the generosity of the public in order to establish and construct of the memorial sponsors on the generosity of the public in order to establish and construct
memorials that Congress has authorized. We recognize the importance of acknowledging memorials that Congress has authorized. We recognize the importance of acknowledging
largelarge ~~donations for effective fundraising and, therefore, support donor recognition~~ donations for effective fundraising and, therefore, support donor recognition with with
appropriate limitations as described below. We do not support permanent donor appropriate limitations as described below. We do not support permanent donor
recognition.88 recognition.88
After the subcommittee hearing on July 19, 2013, H.R. 2395 did not receive further After the subcommittee hearing on July 19, 2013, H.R. 2395 did not receive further
consideration. As part of the National Defense Authorization Act for FY2015, however, the consideration. As part of the National Defense Authorization Act for FY2015, however, the
language from H.R. 2395 was included as §3054. Pursuant to P.L. 113-291, §3054(c), the CWA language from H.R. 2395 was included as §3054. Pursuant to P.L. 113-291, §3054(c), the CWA
was amended to was amended to ~~al ow~~allow donor recognition “inside an donor recognition “inside an ~~ancil ary~~ancillary structure associated with the structure associated with the
commemorative work or as part of a manmade landscape feature at the commemorative work.”89 commemorative work or as part of a manmade landscape feature at the commemorative work.”89

~~84 U.S. Department of the Interior, National Park Service, Director’s Order #21: Donations and Fundraising, July 11,~~
~~2008, pp. 20-21, at https://www.nps.gov/policy/DOrders/DO_21.htm.~~
~~85 P.L. 113-21, 127 Stat. 490, July 18, 2013.~~
~~86 H.R. 2395 (113th Congress), introduced June 17, 2013.~~
~~87 Ibid.~~
~~88 T estimony~~Further, donor acknowledgement applies to all commemorative works dedicated after January 1, 2010,90 is to be paid for by the sponsor,91 and is subject to the permission of the Secretary of the Interior or the Administrator of General Services.92 The acknowledgment also must (A) be limited to an appropriate statement or credit recognizing the contribution; (B) be displayed in a form in accordance with National Park Service and General Services Administration guidelines; 85 P.L. 113-21, 127 Stat. 490 (2013). 86 H.R. 2395 (113th Congress), introduced June 17, 2013. 87 H.R. 2395 (113th Congress). 88 Testimony of Stephen E. Whitesell, regional director of the National Capital Region, of Stephen E. Whitesell, regional director of the National Capital Region, ~~Natio nal~~National Park Service, July 19, Park Service, July 19,
2013; and U.S.2013; and U.S. Congress,Congress, House Committee on Natural Resources,House Committee on Natural Resources, Subcommittee on Public Lands and Environmental Subcommittee on Public Lands and Environmental
Regulation, Regulation, Legislative Hearing on H.R. 587, H.R. 1168, H.R. 1170, H.R. 1684, H.R. 2068, H.R. 2095, S. 130, S. 304,
and S. 459, 113th Cong., 1st sess.,, 113th Cong., 1st sess., July 19, 2013. July 19, 2013.
89 P.L. 113-291, §3054(c)(2) 89 P.L. 113-291, §3054(c)(2), 128 Stat. 3806 (2014). 90 P.L. 113-291, §3054(c)(5). 91 P.L. 113-291, §3054(c)(3). 92 P.L. 113-291, §3054(c)(4). .
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~~Further, donor acknowledgement applies to al commemorative works dedicated after January 1,~~
~~2010,90 is to be paid for by the sponsor,91 and is subject to the permission of the Secretary of the~~
~~Interior or the Administrator of General Services.92 The acknowledgment also must~~
~~(A) be limited to an appropriate statement or credit recognizing the contribution;~~
~~(B) be displayed in a form in accordance with National Park Service and General Services~~
~~Administration guidelines;~~
(C) be displayed for a period of up to 10 years, with the display period to be commensurate (C) be displayed for a period of up to 10 years, with the display period to be commensurate
with the level of the contribution, as determined in accordance with the plan and guidelines with the level of the contribution, as determined in accordance with the plan and guidelines
described in subparagraph (B); described in subparagraph (B);
(D) be freestanding; and (D) be freestanding; and
(E) (E) not be affixed to—(i) any landscape feature at the commemorative work; or (ii) any not be affixed to—(i) any landscape feature at the commemorative work; or (ii) any
object in a museum collection.93 object in a museum collection.93
Establishing a Memorial in the Nation’s Capital
The standards for consideration and placement of commemorative works in areas administered by The standards for consideration and placement of commemorative works in areas administered by
the National Park Service (NPS) and the General Services Administration (GSA) in the District of the National Park Service (NPS) and the General Services Administration (GSA) in the District of
Columbia and its environs are contained in the Commemorative Works Act (CWA) of 1986, as Columbia and its environs are contained in the Commemorative Works Act (CWA) of 1986, as
amended.94 The following sections examine how commemorative works are established and amended.94 The following sections examine how commemorative works are established and
maintained. maintained.
Pursuant to the CWA, the National Park Service (NPS) has developed a 24-step outline to guide Pursuant to the CWA, the National Park Service (NPS) has developed a 24-step outline to guide
groups interested in creating a commemorative work in the District of Columbia. The NPS groups interested in creating a commemorative work in the District of Columbia. The NPS
outline guides initiation, legislation,outline guides initiation, legislation, site election and approval, design approval, fundraising, site election and approval, design approval, fundraising,
construction, and dedication of commemorative works.95 In addition, groups have asked for, and construction, and dedication of commemorative works.95 In addition, groups have asked for, and
been granted, extensions to their initialbeen granted, extensions to their initial authorization to authorization to ~~al ow~~allow additional additional time to complete the time to complete the
memorial creation process. The full guidelines from NCPC are found memorial creation process. The full guidelines from NCPC are found inin Appendix B.
Initiation
Since 1986, legislation authorizing most commemorative works in the District of Columbia has Since 1986, legislation authorizing most commemorative works in the District of Columbia has
authorized nongovernmental sponsors.96 Sponsors interested in creating a commemorative work authorized nongovernmental sponsors.96 Sponsors interested in creating a commemorative work

~~90 P.L. 113-291, §3054(c)(5).~~
~~91 P.L. 113-291, §3054(c)(3).~~
~~92 P.L. 113-291, §3054(c)(4).~~
to an individual, group, or event must find a congressional sponsor to introduce authorizing legislation.97 The National Capital Memorial Advisory Commission offers consultative services to potential sponsors.98 93 P.L. 113-291, §3054(c)(1). 93 P.L. 113-291, §3054(c)(1).
94 40 U.S.C.94 40 U.S.C. §§8901-8909. §§8901-8909.
95 95 ~~T he~~The National Park Service 24-step outline, as provided by the National Capital Memorial Commission, September National Park Service 24-step outline, as provided by the National Capital Memorial Commission, September
2001, is published2001, is published as Appendix A of the National Capital Planning Commission’s Museumas Appendix A of the National Capital Planning Commission’s Museum and Master Plan, published and Master Plan, published
December 2001. For more information, see National Capital Planning Commission, “Appendix A: Steps for December 2001. For more information, see National Capital Planning Commission, “Appendix A: Steps for
Establishing a Memorial in the Nation’s Capital,” Establishing a Memorial in the Nation’s Capital,” Memorials and Museums Master Plan, (September 2001, updated , (September 2001, updated
2006), pp. 167-168, at https://www.ncpc.gov/docs/Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173. 2006), pp. 167-168, at https://www.ncpc.gov/docs/Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173.
96 96 ~~T he~~The Dwight D. Eisenhower Memorial is an exception to this standard. Congress created the Eisenhower Memorial Dwight D. Eisenhower Memorial is an exception to this standard. Congress created the Eisenhower Memorial
Commission to create “an appropriate permanent memorial to Dwight D. Eisenhower.” Commissioners includeCommission to create “an appropriate permanent memorial to Dwight D. Eisenhower.” Commissioners include four four
Senators, four Representatives, and four individualsSenators, four Representatives, and four individuals appointed by the President (P.L. 106-79, 113 Stat. 1274, appointed by the President (P.L. 106-79, 113 Stat. 1274,
September 30, 2000). September 30, 2000). ~~T he~~The Eisenhower Memorial Commission is not unlike previous commissions authorized to create Eisenhower Memorial Commission is not unlike previous commissions authorized to create
Presidential commemorative works to Franklin Delano Roosevelt or Presidential commemorative works to Franklin Delano Roosevelt or ~~T homas~~Thomas Jefferson, whose funds, including Jefferson, whose funds, including
planning, design,planning, design, and construction were appropriated by Congress. 97 40 U.S.C. §8902(a)(4). “The term ‘sponsor’ means a public agency, or an individual, group or organization that is described in section 501(c)(3) of the Internal Revenue Code of 1986 [26 U.S.C. §501(c)(3)] and exempt from tax under section 501 (a) of such Code [26 U.S.C. §501(a)], and which is authorized by Congress to establish a commemorative work in the District of Columbia and its environs.” 98 National Capital Planning Commission, “Appendix A: Steps for Establishing a Memorial in the Nation’s Capital,” Memorials and Museums Master Plan, (September 2001, updated 2006), pp. 167-168, at https://www.ncpc.gov/docs/Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173. For more information on NCMAC, see National Park Service, “National Capital Memorial Advisory Commission (NCMAC,” at https://parkplanning.nps.gov/projectHome.cfm?parkID=463&projectID=44217. Congressional Research Service 15 link to page 34 link to page 22 link to page 22 Commemorative Works in the District of Columbia: Background and Practice ~~and construction were appropriated by Congress.~~
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~~to an individual, group, or event must find a congressional sponsor to introduce authorizing~~
~~legislation.97 The National Capital Memorial Advisory Commission offers consultative services to~~
~~potential sponsors.98~~
Legislation
The CWA provides that no “commemorative work may be established in the District of Columbia The CWA provides that no “commemorative work may be established in the District of Columbia
unless unless ~~specifical y~~specifically authorized by Congress.”99 The CWA further specifies requirements for authorized by Congress.”99 The CWA further specifies requirements for
military works and works commemorating events, individuals, or groups. For military works, the military works and works commemorating events, individuals, or groups. For military works, the
CWA requires Congress to consider legislation only for the commemoration of “a war or similar CWA requires Congress to consider legislation only for the commemoration of “a war or similar
major military conflict or a branch of the armed forces” that has been designated as major military conflict or a branch of the armed forces” that has been designated as ~~official y~~officially
ended for at least 10 years.100 Works proposed to commemorate a limited military engagement or ended for at least 10 years.100 Works proposed to commemorate a limited military engagement or
a unit of the armed forces are not a unit of the armed forces are not ~~al owed~~allowed.101 For works commemorating events, individuals, or .101 For works commemorating events, individuals, or
groups, the CWA specifies that Congress groups, the CWA specifies that Congress ~~wil~~ will not consider legislationnot consider legislation “until after the 25th “until after the 25th
anniversary of the event, death of the individual, or death of the last surviving member of the anniversary of the event, death of the individual, or death of the last surviving member of the
group.”102 group.”102
Legislation authorizing a commemorative work Legislation authorizing a commemorative work ~~typical y~~typically contains three sections: authorization to contains three sections: authorization to
establish the work, payment of expenses, and deposit of excess funds. Authorizing legislation establish the work, payment of expenses, and deposit of excess funds. Authorizing legislation
does not designate a specific site or design for the commemorative work, and additional does not designate a specific site or design for the commemorative work, and additional
information, such as findings, can be included, but is not a standard part of most commemorative information, such as findings, can be included, but is not a standard part of most commemorative
works legislation.103 Once introduced, legislation is works legislation.103 Once introduced, legislation is ~~general y~~generally referred to the House Committee on referred to the House Committee on
Natural Resources104 and to the Senate Committee on Energy and Natural Resources.105Natural Resources104 and to the Senate Committee on Energy and Natural Resources.105
Following authorization, additional Following authorization, additional ~~legislation~~ legislation is required to designate a commemorative work in is required to designate a commemorative work in
Area I (see map iArea I (see map in Appendix C). For example, the Adams Memorial Foundation was authorized . For example, the Adams Memorial Foundation was authorized
to consider sites in Area I by Congress following the recommendation of the National Capital to consider sites in Area I by Congress following the recommendation of the National Capital
Memorial Advisory Commission and the Secretary of the Interior.106 Memorial Advisory Commission and the Secretary of the Interior.106

~~97 40 U.S.C. §8902(a)(4). “The term ‘sponsor’ means a public agency, or an individual, group or organization that is~~
~~described in section 501(c)(3) of the Internal Revenue Code of 1986 [26 U.S.C. §501(c)(3)] and exempt from tax under~~
~~section 501 (a) of such Code [26 U.S.C. §501(a)], and which is authorized by Congress to establish a commemorative~~
~~work~~ Commemorative Works Authorization The first section of most commemorative works authorization bills includes specific mention of the group authorized to establish the memorial; and the individual, event, or group that is to be honored. The legislation also typically provides for the memorial’s general location (i.e., in the District of Columbia in the District of Columbia ~~and~~ or its environs), but does not provide for a specific site location. For example, the authorization language for the group authorized to create the memorial to President John Adams and his family stated, 99 40 U.S.C. §8903(a)(1). 100 40 U.S.C. §8903(b). 101 40 U.S.C. §8903(b). 102 2 U.S.C. ~~its environs.”~~
~~98 National Capital Planning Commission, “Appendix A: Steps for Establishing a Memorial in the Nation’s Capital,”~~
Mem orials and Museum s Master Plan, (September 2001, updated 2006), pp. 167-168, at https://www.ncpc.gov/docs/
~~Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173. For more information on NCMAC, see National~~
~~Park Service, “National Capital Memorial Advisory Commission (NCMAC,” at https://parkplanning.nps.gov/~~
~~projectHome.cfm?parkID=463&projectID=44217.~~
~~99 40 U.S.C. §8903(a)(1).~~
~~100 40 U.S.C. §8903(b).~~
~~101 Ibid.~~
~~102 2 U.S.C.~~ §8903(c). §8903(c).
103 For example, the Adams Memorial authorizing legislation (P.L. 107-62, 115 Stat. 411103 For example, the Adams Memorial authorizing legislation (P.L. 107-62, 115 Stat. 411~~, November 5, 2001~~ [2001]) contains ) contains
10 findings10 findings by Congressby Congress on the importance of creating a memorial to the Adams family.on the importance of creating a memorial to the Adams family.
104 House Rule104 House Rule X, clauseX, clause 1 (l)(10). U.S. Congress,1 (l)(10). U.S. Congress, House, House, Constitution, Jefferson’s Manual, and Rules of the House of
Representatives One Hundred Eleventh Congress, prepared by John V., prepared by John V. Sullivan,Sullivan, Parliamentarian, Parliamentarian, ~~110 th~~110th Cong., 2nd Cong., 2nd
sess.,sess., H.Doc. 110-162 (Washington: GPO, 2009), §731, p. 455. H.Doc. 110-162 (Washington: GPO, 2009), §731, p. 455.
105 Senate Rule 105 Senate Rule ~~XXV, clause~~ XXV, clause 1 (g). U.S.1 (g). U.S. Congress, Senate Committee on Rules and Administration, Congress, Senate Committee on Rules and Administration, Senate Manual
Containing the Standing Rules, Orders, Laws, and Resolutions Affecting the Business of the United States Senate , 110th , 110th
Cong., 2nd sess., S.Doc.Cong., 2nd sess., S.Doc. 110-1 (Washington: GPO, 2008), §25.1(g), p. 29. 110-1 (Washington: GPO, 2008), §25.1(g), p. 29.
106 P.L. 107-315, 116 Stat. 2763106 P.L. 107-315, 116 Stat. 2763~~, December 2, 2002~~ (2002). For more information about Area I, see . For more information about Area I, see “ Designation of Areas of
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~~Commemorative Works Authorization~~
~~The first section of most commemorative works authorization bil s includes specific mention of~~
~~the group authorized to establish the memorial; and the individual, event, or group that is to be~~
~~honored. The legislation also typical y provides for the memorial’s general location (i.e., in the~~
~~District of Columbia or its environs), but does not provide for a specific site location. For~~
~~example, the authorization language for the group authorized to create the memorial to President~~
~~John Adams and his family stated,~~
Congress approves the location for the commemorative work to honor former President John Congress approves the location for the commemorative work to honor former President John
Adams and his legacy, as authorized by P.L. 107-62 (115 Stat. 411), within Area I as described in Adams and his legacy, as authorized by P.L. 107-62 (115 Stat. 411), within Area I as described in
Section 8908 of title 40, United States Code, subject to the limitation in Section 2.107 Section 8908 of title 40, United States Code, subject to the limitation in Section 2.107
Payment of Expenses
Other sections of commemorative works authorization Other sections of commemorative works authorization ~~bil s~~bills provide the sponsor with authority to provide the sponsor with authority to
accept contributions and requires the group to make payment for accept contributions and requires the group to make payment for al all expenses related to site expenses related to site
selection, design, and construction of the memorial.108 Further, the CWA requires that the sponsor selection, design, and construction of the memorial.108 Further, the CWA requires that the sponsor
must donate an amount “equal to 10 percent of the total estimated cost of construction to offset must donate an amount “equal to 10 percent of the total estimated cost of construction to offset
the costs of perpetual maintenance and preservation”109 of the commemorative work. the costs of perpetual maintenance and preservation”109 of the commemorative work.
Many statutes authorizing commemorative works also contain a statement Many statutes authorizing commemorative works also contain a statement ~~specifical y~~specifically prohibiting prohibiting
the use of federal funds. For example, the payment language for the Benjaminthe use of federal funds. For example, the payment language for the Benjamin Banneker Banneker
memorial stated, memorial stated,
The Washington Interdependence Council shall be solely responsible for the acceptance of The Washington Interdependence Council shall be solely responsible for the acceptance of
contributions for, and payment of the expenses of, the establishment of the memorial. No contributions for, and payment of the expenses of, the establishment of the memorial. No
federal funds may be used to pay any expense of the establishment of the memorial.110 federal funds may be used to pay any expense of the establishment of the memorial.110
Deposit of Excess Funds
Legislation to authorize a commemorative work often provides for disposal of excess funds raised Legislation to authorize a commemorative work often provides for disposal of excess funds raised
by the authorized group. Excess funds raised are often directed to be delivered to the Department by the authorized group. Excess funds raised are often directed to be delivered to the Department
of the Interior and the National Park Service for deposit with the National Park Foundation as of the Interior and the National Park Service for deposit with the National Park Foundation as
provided for pursuant to 40 U.S.C. §8906 (b). For example, the excess funds language for the provided for pursuant to 40 U.S.C. §8906 (b). For example, the excess funds language for the
Brigadier General Francis Marion memorial stated, Brigadier General Francis Marion memorial stated,
If, upon If, upon ~~payment~~ payment of all expensesof all expenses of the establishment ofof the establishment of ~~the commemorative~~ the commemorative work work
authorized by subsection (b) (including the maintenance and preservation amount provided authorized by subsection (b) (including the maintenance and preservation amount provided
for in section 8906(b) of title 40, United States Code), or upon expiration of the authority for in section 8906(b) of title 40, United States Code), or upon expiration of the authority
for thefor the ~~commemorative work under chapter~~ commemorative work under chapter 89 of title 40, United89 of title 40, United States Code,States Code, there there
remains a balance of funds received for the establishment of that commemorative work, remains a balance of funds received for the establishment of that commemorative work,
thethe ~~Marion Park Project, a committee of the Palmetto Conservation Foundation, shal~~

~~Washington, DC.”~~
~~107 P.L. 107-315, 116 Stat. 2763, December 2, 2002. Section 2 of the act reiterated that the work was not to be placed in~~
~~the Reserve.~~
~~108 T he CWA requires~~ Marion Park Project, a committee of the Palmetto Conservation Foundation, shall transmit the amount of the balance to the Secretary of the Treasury for deposit in the account provided for in section 8906 (b)(1) of such title.111 Extension of Statutory Authority In some instances, Congress has chosen to extend the legislative authority for a commemorative work. All authorized commemorative works are provided a seven-year period to complete the work unless the group has a construction permit issued by the Secretary of the Interior (Secretary) or the Administrator of the General Services Administration (Administrator).112 In some circumstances, an administrative extension may be provided by the Secretary or Administrator if final design approvals have been received from the National Capital Planning Commission 107 P.L. 107-315. Section 2 of the act reiterated that the work was not to be placed in the Reserve. 108 The CWA requires that groups authorized to construct a memorial demonstrate that it “has available sufficient that groups authorized to construct a memorial demonstrate that it “has available sufficient
amounts to complete construction of the project” [40 U.S.C. §8906(a)(4)]. amounts to complete construction of the project” [40 U.S.C. §8906(a)(4)].
109 40 U.S.C.109 40 U.S.C. §8906(b)(1). §8906(b)(1).
110 P.L. 105-355, §512, 112 Stat. 3266110 P.L. 105-355, §512, 112 Stat. 3266~~, November 6, 1998~~ (1998). 111 P.L. 110-229, 122 Stat. 782 (2008). 112 40 U.S.C. §8903(e)(1). .
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~~transmit the amount of the balance to the Secretary of the Treasury for deposit in the~~
~~account provided for in section 8906 (b)(1) of such title.111~~
~~Extension of Statutory Authority~~
~~In some instances, Congress has chosen to extend the legislative authority for a commemorative~~
~~work. Al authorized commemorative works are provided a seven-year period to complete the~~
~~work unless the group has a construction permit issued by the Secretary of the Interior (Secretary)~~
~~or the Administrator of the General Services Administration (Administrator).112 In some~~
~~circumstances, an administrative extension may be provided by the Secretary or Administrator if~~
~~final design approvals have been received from the National Capital Planning Commission~~
(NCPC) and the Commission of Fine Arts and 75% of the amount estimated to be required has (NCPC) and the Commission of Fine Arts and 75% of the amount estimated to be required has
been raised.113 been raised.113
If an authorized commemorative works legislative authority expires, Congress may extend that If an authorized commemorative works legislative authority expires, Congress may extend that
authority by amending the initialauthority by amending the initial authorizing statute. For example, the Adams Memorial authorizing statute. For example, the Adams Memorial
Foundation was Foundation was ~~initial y~~ initially authorized to create a commemorative work to the Adams family in authorized to create a commemorative work to the Adams family in
2001.114 In 2009, Congress extended the authority until September 30, 2010,115 and in 2010, it 2001.114 In 2009, Congress extended the authority until September 30, 2010,115 and in 2010, it
was further extended until December 2, 2013.116 The amendment to the legislative authority was further extended until December 2, 2013.116 The amendment to the legislative authority
stated, stated,
Section 1(c) of P.L. 107-62 is amended by striking “accordance with” and Section 1(c) of P.L. 107-62 is amended by striking “accordance with” and al all that follows through that follows through
the period at the end and inserting the following: “according with chapter 89 of title 40, United the period at the end and inserting the following: “according with chapter 89 of title 40, United
States Code, except that any reference in section 8903(e) of that chapter to the expiration at the States Code, except that any reference in section 8903(e) of that chapter to the expiration at the
end of or extension beyond a seven-year period end of or extension beyond a seven-year period ~~shal~~ shall be considered to be a reference to an be considered to be a reference to an
expiration on or extension beyond December 2, 2013.”117 expiration on or extension beyond December 2, 2013.”117
Site Selection and Approval
Based on the criteria discussed below Based on the criteria discussed below in in “Designation of Areas of Washington, DC~~,” the~~
,” the Secretary or the Administrator may, after consultation with the National Capital Memorial Secretary or the Administrator may, after consultation with the National Capital Memorial
Advisory Commission,118 recommend the location of a commemorative work in either Area I or Advisory Commission,118 recommend the location of a commemorative work in either Area I or
Area II (depicted iArea II (depicted in Figure C-1). If the Secretary or Administrator agrees with the . If the Secretary or Administrator agrees with the
recommendation and finds that the subject of the commemorative work is of preeminent recommendation and finds that the subject of the commemorative work is of preeminent
historical and lasting significance to the nation, he or she historical and lasting significance to the nation, he or she ~~wil~~ will recommend placement in Area I recommend placement in Area I
and notify Congress of his or her determination. The location of a commemorative work in Area I and notify Congress of his or her determination. The location of a commemorative work in Area I
~~shal~~ shall be deemed disapproved unless it has been approved by law within 150 calendar days.119 If be deemed disapproved unless it has been approved by law within 150 calendar days.119 If

~~111 P.L. 110-229, 122 Stat. 782, May 8, 2008.~~
~~112 40 U.S.C. §8903(e)(1).~~
~~113 40 U.S.C.~~ the commemorative work is of lasting historical significance it may be located in Area II, and Congress does not require notification, nor is further legislation needed.120 Designation of Areas of Washington, DC The CWA divides the District of Columbia and its environs into three sections for the placement of memorials: the Reserve, Area I, and Area II. For each area the standards for memorial placement are specified in law and enforced through a requirement for congressional approval of monument location through the passage of a joint resolution. For a map of the District marked with these sections, see Appendix C. 113 40 U.S.C. §8903(e)(2). If a commemorative work has been authorized for Area I, the legislation authorizing the site §8903(e)(2). If a commemorative work has been authorized for Area I, the legislation authorizing the site
serves as a default extension to the sponsor group’s authority. serves as a default extension to the sponsor group’s authority.
114 P.L. 107-62, 115 Stat. 411114 P.L. 107-62, 115 Stat. 411~~, November 5, 2011~~ (2011). .
115 P.L. 111-88, §130, 123 Stat. 2933115 P.L. 111-88, §130, 123 Stat. 2933~~, October 30, 2009~~ (2009). .
116 P.L. 111-169, 124 Stat. 1192116 P.L. 111-169, 124 Stat. 1192~~, May 24, 2010.~~
~~117 Ibid~~ (2010). 117 P.L. 111-169. .
118 40 U.S.C.118 40 U.S.C. §8905(a). Members of the National Capital Memorial Advisory Commission include§8905(a). Members of the National Capital Memorial Advisory Commission include the Director, the Director,
National Park Service (chair); Architect of the Capitol; Chair, American Battle Monuments Commission; Chair, National Park Service (chair); Architect of the Capitol; Chair, American Battle Monuments Commission; Chair,
Commission of Fine Arts; Chair, National Capital Planning Commission; Mayor, District of Columbia;Commission of Fine Arts; Chair, National Capital Planning Commission; Mayor, District of Columbia; Commissioner, Commissioner,
PublicPublic ~~Building~~ Building Service, GeneralService, General Services Administration; and Secretary of Defense.Services Administration; and Secretary of Defense.
119 40 U.S.C. 119 40 U.S.C. §8908(b)(1). §8908(b)(1).
120 40 U.S.C. §8908(b)(2). Congressional Research Service Congressional Research Service

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~~the commemorative work is of lasting historical significance it may be located in Area II, and~~
~~Congress does not require notification, nor is further legislation needed.120~~
~~Designation of Areas of Washington, DC~~
~~The CWA divides the District of Columbia and its environs into three sections for the placement~~
~~of memorials: the Reserve, Area I, and Area II. For each area the standards for memorial~~
~~placement are specified in law and enforced through a requirement for congressional approval of~~
~~monument location through the passage of a joint resolution. For a map of the District marked~~
~~with these sections, see Appendix C.~~
The Reserve
The Reserve, created by P.L. 108-126, is defined as “the great cross-axis of the The Reserve, created by P.L. 108-126, is defined as “the great cross-axis of the ~~Mal~~ Mall, which , which
~~general y~~generally extends from the United States Capitol to the Lincoln Memorial, and from the White extends from the United States Capitol to the Lincoln Memorial, and from the White
House to the Jefferson Memorial”121 and “is a House to the Jefferson Memorial”121 and “is a ~~substantial y~~substantially completed work of civic art.”122 completed work of civic art.”122
Within this area, “to preserve the integrity of the Within this area, “to preserve the integrity of the ~~Mal~~ Mall … the siting of new commemorative works … the siting of new commemorative works
is prohibited.”123 Works authorized prior to the enactment of P.L. 108-126 in November 2003—is prohibited.”123 Works authorized prior to the enactment of P.L. 108-126 in November 2003—
the Dr. Martin Luther King Jr. Memorial is the only such work—continue to be eligible for the Dr. Martin Luther King Jr. Memorial is the only such work—continue to be eligible for
placement within the Reserve,124 pursuant to the process established by the National Park Service placement within the Reserve,124 pursuant to the process established by the National Park Service
and outlined below underand outlined below under “Establishing a Memorial in the Nation’s Capital.””
Area I
Area I is reserved for commemorative works of “preeminent historical and lasting significance to Area I is reserved for commemorative works of “preeminent historical and lasting significance to
the United States.”125 Shown the United States.”125 Shown on Figure C-1, Area I is roughly bounded by the West Front of the , Area I is roughly bounded by the West Front of the
Capitol; Pennsylvania Avenue N.W. (between 1st and 15th Street, N.W.); Lafayette Square; 17th Capitol; Pennsylvania Avenue N.W. (between 1st and 15th Street, N.W.); Lafayette Square; 17th
Street, N.W. (between H Street and Constitution Avenue); Constitution Avenue, N.W. (between Street, N.W. (between H Street and Constitution Avenue); Constitution Avenue, N.W. (between
17th and 23rd Streets); the John F. Kennedy Center for the Performing Arts waterfront area; 17th and 23rd Streets); the John F. Kennedy Center for the Performing Arts waterfront area;
Theodore Roosevelt Island; National Park Service land in VirginiaTheodore Roosevelt Island; National Park Service land in Virginia surrounding the George surrounding the George
Washington Memorial Parkway; the 14th Street Bridge area; and Maryland Avenue, S.W., from Washington Memorial Parkway; the 14th Street Bridge area; and Maryland Avenue, S.W., from
Maine Avenue, S.W., to Independence Avenue S.W., at the U.S. Botanic Garden. Maine Avenue, S.W., to Independence Avenue S.W., at the U.S. Botanic Garden.
Pursuant to 40 U.S.C. §8908, the Secretary of the Interior or the Administrator of General Pursuant to 40 U.S.C. §8908, the Secretary of the Interior or the Administrator of General
Services, after seeking the advice of the National Capital Memorial Advisory Commission, can Services, after seeking the advice of the National Capital Memorial Advisory Commission, can
recommend that a memorial be placed in Area I. If either the Secretary or the Administrator recommend that a memorial be placed in Area I. If either the Secretary or the Administrator
recommends placement in Area I, he or she must notify the House Committee on Natural recommends placement in Area I, he or she must notify the House Committee on Natural
Resources and the Senate Committee on Energy and Natural Resources.126 If the recommendation Resources and the Senate Committee on Energy and Natural Resources.126 If the recommendation
is not enacted into law within 150 calendar days, the recommendation is not adopted and the is not enacted into law within 150 calendar days, the recommendation is not adopted and the
memorial sponsor must consider sites in Area II. memorial sponsor must consider sites in Area II.

~~120 40 U.S.C. §8908(b)(2).~~
~~121 40 U.S.C. §8902.~~
~~122 P.L. 108-126, §202(a), 117 Stat. 1348, November 17, 2003.~~
~~123 40 U.S.C. §8901 note; and 40 U.S.C. §8908(c). T he~~ Area II Area II is reserved for “subjects of lasting historical significance to the American people.”127 Shown on Figure C-1, Area II encompasses all sections of the District of Columbia and its environs not part of the Reserve or Area I. Congressional Approval of Memorial Site Location In considering commemorative works legislation, both the House Committee on Resources and Senate Committee on Energy and Natural Resources128 solicit the views of the National Capital 121 40 U.S.C. §8902. 122 P.L. 108-126, §202(a), 117 Stat. 1348 (2003). 123 40 U.S.C. §8901 note; and 40 U.S.C. §8908(c). The placement of museums and visitors centers is also prohibited placement of museums and visitors centers is also prohibited
under the CWA [40 U.S.C.under the CWA [40 U.S.C. §8905 (b)(5) and 40 U.S.C.§8905 (b)(5) and 40 U.S.C. §8908(c)].§8908(c)].
124 P.L. 108-126124 P.L. 108-126~~, 117 Stat. 1349, November 17, 2003~~; 40 U.S.C. §8901 note. ; 40 U.S.C. §8901 note.
125 40 U.S.C.125 40 U.S.C. §8908(b)(1). §8908(b)(1).
126 126 ~~Ibid. T he~~40 U.S.C. §8908(b)(1). The Secretary or the Administrator notifies Congress by sending Secretary or the Administrator notifies Congress by sending a letter to the Speaker of the House and the a letter to the Speaker of the House and the
~~President of the Senate.~~
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~~Area II~~
~~Area II is reserved for “subjects of lasting historical significance to the American people.”127~~
~~Shown on Figure C-1, Area II encompasses al sections of the District of Columbia and its~~
~~environs not part of the Reserve or Area I.~~
~~Congressional Approval of Memorial Site Location~~
~~In considering commemorative works legislation, both the House Committee on Resources and~~
~~Senate Committee on Energy and Natural Resources128 solicit the views of the National Capital~~
President of the Senate. 127 40 U.S.C. §8908(b)(2). 128 Prior to the 104th Congress, the committees of jurisdiction were the Committee on House Administration and the (continued...) Congressional Research Service 19 Commemorative Works in the District of Columbia: Background and Practice Memorial Advisory Commission.129 The Secretary or the Administrator likewise seeks the advice Memorial Advisory Commission.129 The Secretary or the Administrator likewise seeks the advice
of the commission prior to recommending a location for a commemorative work.130 of the commission prior to recommending a location for a commemorative work.130
For example, the joint resolution approving the location of the Vietnam Women’s Memorial For example, the joint resolution approving the location of the Vietnam Women’s Memorial
stated, stated,
Whereas section 6(a) of the Act entitled “An Act to provide standards for placement of Whereas section 6(a) of the Act entitled “An Act to provide standards for placement of
commemorativecommemorative works onworks on ~~certain~~ certain Federal LandsFederal Lands in thein the District of Columbia andDistrict of Columbia and its its
environs, and for other purposes,” approved November 14, 1986 (100 Stat. 3650, 3651), environs, and for other purposes,” approved November 14, 1986 (100 Stat. 3650, 3651),
provides that the location of a commemorative work in the area described therein as area I provides that the location of a commemorative work in the area described therein as area I
shallshall ~~be deemed disapproved unless, not later than one hundred and fifty days after~~ be deemed disapproved unless, not later than one hundred and fifty days after the the
Secretary of the Interior or the Administrator of General Services notifies the Congress of Secretary of the Interior or the Administrator of General Services notifies the Congress of
his determination that the commemorative work should be located in area I, the location is his determination that the commemorative work should be located in area I, the location is
approved by law; approved by law;
Whereas the Act approved November 15, 1988 Whereas the Act approved November 15, 1988 (102 Stat. 3922),(102 Stat. 3922), authorizes the Vietnam authorizes the Vietnam
Women’s Memorial Project, Incorporated, to establish a memorial on Federal land in the Women’s Memorial Project, Incorporated, to establish a memorial on Federal land in the
District of Columbia or its environs to honor women who served in the Armed Forces of District of Columbia or its environs to honor women who served in the Armed Forces of
the United States in the Republic of Vietnam during the Vietnam era;the United States in the Republic of Vietnam during the Vietnam era;
Whereas section 3 of the said Act of November 15, 1988, Whereas section 3 of the said Act of November 15, 1988, states the sense of the Congress states the sense of the Congress
that it would be most fitting and appropriate to place the memorial within the two and two-that it would be most fitting and appropriate to place the memorial within the two and two-
tenths acre site of the Vietnam Veterans Memorial in the District of Columbia which is tenths acre site of the Vietnam Veterans Memorial in the District of Columbia which is
within area I; andwithin area I; and
Whereas the Secretary of the Interior has notified the Congress of his determination that Whereas the Secretary of the Interior has notified the Congress of his determination that
the memorial authorized by the said Act of November 15, 1988, should be located in area the memorial authorized by the said Act of November 15, 1988, should be located in area
I: Now, therefore, be it I: Now, therefore, be it
Resolved by the Senate and House of Representatives of the United States Of America in Resolved by the Senate and House of Representatives of the United States Of America in
Congress assembled, That the location of a commemorative work to honor women who Congress assembled, That the location of a commemorative work to honor women who
served in the Armed Forces of the United States in theserved in the Armed Forces of the United States in the Republic of Vietnam during the Republic of Vietnam during the
Vietnam era, authorized by the Act approved November 15, 1988 (102 Stat. 3922),Vietnam era, authorized by the Act approved November 15, 1988 (102 Stat. 3922), in the in the
area described in the Act approved November 14, 1986 (100 Stat. 3650), as area I, is hereby area described in the Act approved November 14, 1986 (100 Stat. 3650), as area I, is hereby
approved.131 approved.131

~~127 40 U.S.C. §8908(b)(2).~~
~~128 Prior to the 104th Congress, the committees of jurisdiction were the Committee on House Administration and the~~
Design Approval Following site selection, the memorial planners begin the process of hiring a designer and work with National Park Service (NPS) to get plans approved by the NCPC and the Commission of Fine Arts.132 Memorial sponsors, in the development of a concept(s), are to consult with the National Capital Memorial Advisory Commission, which in turn provides advice to the Secretary or to Members of Congress.133 Senate Committee on Energy and Natural Resources. At the outset of the Senate Committee on Energy and Natural Resources. At the outset of the ~~104 th~~104th Congress, House Congress, House jurisdiction was jurisdiction was
transferred to the Committee on Resources. “Rules of the House,” transferred to the Committee on Resources. “Rules of the House,” Congressional Record, daily, daily edition, vol. 141, part 1 edition, vol. 141, part 1
(January 4, 1995), p. H27. (January 4, 1995), p. H27.
129 40 U.S.C.129 40 U.S.C. §8903(d). §8903(d).
130 40 U.S.C.130 40 U.S.C. §8905(a)(1). 131 P.L. 101-187, 103 Stat. 1350 (1989). 132 In addition, the National Capital Planning Commission solicits comment from the DC State Historic Preservation Office. For more information, see National Capital Planning Commission, “Appendix A: Steps for Establishing a Memorial in the Nation’s Capital,” Memorials and Museums Master Plan (September 2001, updated 2006). On Department of Interior properties, the National Park Service, on behalf of memorial planners, requests design approvals from the National Capital Planning Commission~~§8905(a)(1).~~
~~131 P.L. 101-187, 103 Stat. 1350, November 28, 1989.~~
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~~Design Approval~~
~~Following site selection, the memorial planners begin the process of hiring a designer and work~~
~~with National Park Service (NPS) to get plans approved by the NCPC~~ and the Commission of and the Commission of
~~Fine Arts.132 Memorial sponsors, in the development of a concept(s), are to consult with the~~
~~National Capital Memorial Advisory Commission, which in turn provides advice to the Secretary~~
~~or to Members of Congress.133~~Fine Arts. 133 40 U.S.C. §8905(a)(1). Congressional Research Service 20 link to page 21 Commemorative Works in the District of Columbia: Background and Practice
Once the memorial sponsor has chosen a designer and selected a concept design plan, those plans Once the memorial sponsor has chosen a designer and selected a concept design plan, those plans
are presented to the NPS or General Services Administration, the Commission of Fine Arts, and are presented to the NPS or General Services Administration, the Commission of Fine Arts, and
the NCPC. In considering the plans, these entities are guided by several criteria established by the the NCPC. In considering the plans, these entities are guided by several criteria established by the
CWA. The design reviews include, but are not limitedCWA. The design reviews include, but are not limited to, the memorial’s surroundings,134 to, the memorial’s surroundings,134
location,135 materials,136 landscape features,137 site specific guidelines,138 and the prohibition of location,135 materials,136 landscape features,137 site specific guidelines,138 and the prohibition of
donor contributions.139 Final designs and specifications are completed in coordination with NPS donor contributions.139 Final designs and specifications are completed in coordination with NPS
or GSA (as appropriate).140 or GSA (as appropriate).140
Fundraising
As discussed above As discussed above in in “Payment of Expenses,,” authorizing legislation often contains a statement ” authorizing legislation often contains a statement
that the commemorative work is to be created pursuant to the CWA and that the use of federal that the commemorative work is to be created pursuant to the CWA and that the use of federal
funds is not funds is not ~~general y~~generally authorized or appropriated for the creation of commemorative works. authorized or appropriated for the creation of commemorative works.
Subsequently, sponsor groups are statutorily authorized to raise funds for the completion of the Subsequently, sponsor groups are statutorily authorized to raise funds for the completion of the
commemorative work.141 commemorative work.141
Fundraising for the creation of commemorative works can sometimes be difficult. In some Fundraising for the creation of commemorative works can sometimes be difficult. In some
instances, Congress has appropriated federal funds to assist with the creation of the instances, Congress has appropriated federal funds to assist with the creation of the
commemorative work. For example, in 2005, Congress appropriated $10 commemorative work. For example, in 2005, Congress appropriated $10 ~~mil ion~~million to the Secretary to the Secretary
of the Interior “for necessary expenses for the Memorial to Martin Luther King, Jr.”142 The of the Interior “for necessary expenses for the Memorial to Martin Luther King, Jr.”142 The

~~132 In addition, the National Capital Planning Commission solicits comment from the DC State Historic Preservation~~
~~Office. For more information, see National Capital Planning Commission, “Appendix A: Steps for Establishing a~~
~~Memorial in the Nation’s Capital,” Memorials and Museums Master Plan (September 2001, updated 2006). On~~
~~Department of Interior properties, the National Park Service, on behalf of memorial planners, requests design approvals~~
~~from the National Capital Planning Commission and the Commission o f Fine Arts.~~
~~133 40 U.S.C. §8905(a)(1).~~
~~134 40 U.S.C. §8905(b)(1). “T o~~appropriation was designated as matching funds and available only after being matched by nonfederal contributions.143 Construction The CWA specifies four criteria that the Secretary or the Administrator must determine prior to issuing a construction permit: 1. Approval of site and design by the Secretary or Administrator, the National Capital Planning Commission, and the Commission of Fine Arts 2. Consultation of “knowledgeable individuals qualified in the field of preservation and maintenance … to determine structural soundness and durability of the 134 40 U.S.C. §8905(b)(1). “To the maximum extent possible, a commemorative work shall be located in surroundings the maximum extent possible, a commemorative work shall be located in surroundings
that are relevant to the subject of the work.” that are relevant to the subject of the work.”
135 40 U.S.C.135 40 U.S.C. §8905(b)(2). “A commemorative work shall be located so that – (A) it does not interfere with, or §8905(b)(2). “A commemorative work shall be located so that – (A) it does not interfere with, or
encroach on, an existing commemorative work; and (B) to the maximum extent practicable, it protects open space, encroach on, an existing commemorative work; and (B) to the maximum extent practicable, it protects open space,
existing publicexisting public space, and cultural and natural resources.” space, and cultural and natural resources.”
136 40 U.S.C.136 40 U.S.C. §8905(b)(3). “A commemorative work shall be constructed of durable§8905(b)(3). “A commemorative work shall be constructed of durable material suitable to an outdoor material suitable to an outdoor
environment.” environment.”
137 40 U.S.C.137 40 U.S.C. §8905(b)(4). “Landscape features of commemorative works shall be compatible with the climate.”§8905(b)(4). “Landscape features of commemorative works shall be compatible with the climate.”
138 40 U.S.C.138 40 U.S.C. §8905(b)(6). “§8905(b)(6). “~~T he~~The National Capital Planning National Capital Planning ~~Co mmission~~Commission and the Commission of Fine Arts may develop and the Commission of Fine Arts may develop
such criteria or guidelinessuch criteria or guidelines specific to each site that are mutually agreed upon to ensure that the design of the specific to each site that are mutually agreed upon to ensure that the design of the
commemorative work carries out the purposes of this chapter [commemorative work carries out the purposes of this chapter [ 40 U.S.C. §§8901-8909].” ].”
139 40 U.S.C. 139 40 U.S.C. §8905(b)(7). “Donor contributions to commemorative works shall not be acknowledged§8905(b)(7). “Donor contributions to commemorative works shall not be acknowledged in any manner as in any manner as
part of the commemorative work or its site.” part of the commemorative work or its site.”
140 National Capital Planning Commission, “Appendix A: Steps for Establishing140 National Capital Planning Commission, “Appendix A: Steps for Establishing a Memorial in the Nation’s Capital,” a Memorial in the Nation’s Capital,”
~~Mem orials and Museum s~~Memorials and Museums Master Plan (September 2001, updated 2006). (September 2001, updated 2006).
141 40 U.S.C. 141 40 U.S.C. §8906(a)(4). §8906(a)(4).
142 P.L. 109-54, §134, 119 Stat. 526142 P.L. 109-54, §134, 119 Stat. 526~~, August 2, 2005~~ (2005). 143 P.L. 109-54, §134, 119 Stat. 527 (2005). .
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Commemorative Works in the District of Columbia: Background and Practice

~~appropriation was designated as matching funds and available only after being matched by~~
~~nonfederal contributions.143~~
~~Construction~~
~~The CWA specifies four criteria that the Secretary or the Administrator must determine prior to~~
~~issuing a construction permit:~~
~~1. Approval of site and design by the Secretary or Administrator, the National~~
~~Capital Planning Commission, and the Commission of Fine Arts~~
~~2. Consultation of “knowledgeable individuals qualified in the field of preservation~~
~~and maintenance … to determine structural soundness and durability of the~~
commemorative work and to ensure that the commemorative work meets high commemorative work and to ensure that the commemorative work meets high
professional standards”144 professional standards”144
3. Submission of construction documents by authorized memorial sponsor to the 3. Submission of construction documents by authorized memorial sponsor to the
Secretary or Administrator Secretary or Administrator
4. Proof that sufficient funds exist to complete project construction145 4. Proof that sufficient funds exist to complete project construction145
5. In advance of receiving a permit, the sponsor must donate an amount equal to 5. In advance of receiving a permit, the sponsor must donate an amount equal to
10% of the estimated cost of construction to offset the costs of perpetual 10% of the estimated cost of construction to offset the costs of perpetual
maintenance and preservation146 maintenance and preservation146
Memorial construction can begin once the Secretary or Administrator issues a construction Memorial construction can begin once the Secretary or Administrator issues a construction
permit. permit.
Dedication
Following the memorial’s completion, the sponsor schedules a dedication and transfer ceremony Following the memorial’s completion, the sponsor schedules a dedication and transfer ceremony
to NPS or GSA. The President has sometimes attended past dedications, but no specific ceremony to NPS or GSA. The President has sometimes attended past dedications, but no specific ceremony
requirements exist. For example, President George W. Bush dedicated the World War II Memorial requirements exist. For example, President George W. Bush dedicated the World War II Memorial
in 2004. In his remarks, President Bush briefly commented on the memorial creation process and in 2004. In his remarks, President Bush briefly commented on the memorial creation process and
on the importance of honoring World War II veterans. on the importance of honoring World War II veterans.
Raising up this Memorial took skill and vision and patience. Now the work is done, and it Raising up this Memorial took skill and vision and patience. Now the work is done, and it
is a fitting tribute,is a fitting tribute, ~~open~~ open and expansiveand expansive like America, grandlike America, grand and enduringand enduring like the like the
achievements we honor. The years of World War II were a hard, heroic, and gallant time achievements we honor. The years of World War II were a hard, heroic, and gallant time
in the life of our country. When it mattered most, an entire generation of Americans showed in the life of our country. When it mattered most, an entire generation of Americans showed
the finest qualities of our Nation and of humanity. On this day, in their honor, we will raise the finest qualities of our Nation and of humanity. On this day, in their honor, we will raise
the American flag over a monument that will stand as long as America itself.147 the American flag over a monument that will stand as long as America itself.147
In November 2000, Attorney General Janet Reno and Secretary of Commerce Norman Mineta In November 2000, Attorney General Janet Reno and Secretary of Commerce Norman Mineta
represented President represented President ~~Bil~~ Bill Clinton at the dedication ceremony for the National Japanese-Clinton at the dedication ceremony for the National Japanese-
American Memorial to Patriotism during World War II. In a statement following the dedication, American Memorial to Patriotism during World War II. In a statement following the dedication,

~~143 P.L. 109-54, §134, 119 Stat. 527, August 2, 2005.~~
~~144 T he determination of soundness of the commemorative work is a review of the materials to be used~~ President Clinton recognized the importance of the memorial and the presence of his Cabinet secretaries. Earlier today America honored the patriotism of Japanese-Americans during World War II with the dedication of the National Japanese-American Memorial in the Nation’s Capital. Attorney General Janet Reno and Commerce Secretary Norman Mineta joined distinguished members of the Japanese-American community and Americans of all ancestries in reminding us of a time when this county lost sight of the very foundations of democracy it was defending abroad. This Nation must never forget the difficult lessons of the Japanese-American internment camps during World War II and the inspirational lessons of patriotism in the face of that injustice.148 144 The determination of soundness of the commemorative work is a review of the materials to be used for the memorial for the memorial
and the memorial’s landscaping to ensure they are compatible with the climate. and the memorial’s landscaping to ensure they are compatible with the climate.
145 40 U.S.C.145 40 U.S.C. §8906(a). §8906(a).
146 40 U.S.C.146 40 U.S.C. §8906(b)(1). §8906(b)(1).
147 U.S.147 U.S. President (George W. Bush),President (George W. Bush), “Remarks at the Dedication of the National World War II Memorial,” “Remarks at the Dedication of the National World War II Memorial,” Daily
~~Com pilation~~Compilation of Presidential ~~Docum ents~~Documents (May 29, 2004), p. 970. 148 U.S. President (William J. Clinton), “Statement on the Dedication of the National Japanese-American Memorial,” Daily Compilation of Presidential Documents (November 9, 2000), p. 2834. Congressional Research Service 22 link to page 27 link to page 27 link to page 27 link to page 27 link to page 27 Commemorative Works in the District of Columbia: Background and Practice Authorized Memorials Since the passage of the CWA in 1986, Congress has authorized 48 memorials on federal lands in the District of Columbia or its environs.149 Of these works, 22 have been dedicated and completed—19 under the auspices of the CWA and 3 outside the CWA process150—18 ~~(May 29, 2004), p. 970.~~
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~~President Clinton recognized the importance of the memorial and the presence of his Cabinet~~
~~secretaries.~~
~~Earlier today America honored the patriotism of Japanese-Americans during World War II~~
~~with the dedication of the National Japanese-American Memorial in the Nation’s Capital.~~
~~Attorney General Janet Reno and Commerce Secretary Norman Mineta joined~~
~~distinguished members of the Japanese-American community and Americans of all~~
~~ancestries in reminding us of a time when this county lost sight of the very foundations of~~
~~democracy it was defending abroad. This Nation must never forget the difficult lessons of~~
~~the Japanese-American internment camps during World War II and the inspirational~~
~~lessons of patriotism in the face of that injustice.148~~
~~Authorized Memorials~~
~~Since the passage of the CWA in 1986, Congress has authorized 42 memorials on federal lands in~~
~~the District of Columbia or its environs.149 Of these works, 20 have been dedicated and~~
~~completed—17 under the auspices of the CWA and 3 outside the CWA process150—14~~ are in- are in-
progress, 7 have lapsed authorizations, and 1 had its authorization repealed.progress, 7 have lapsed authorizations, and 1 had its authorization repealed.151 Table 1 provides provides
the number of memorials authorized per Congress, pursuant to the CWA, since the 99th Congress the number of memorials authorized per Congress, pursuant to the CWA, since the 99th Congress
(1985-1987). (1985-1987).
Table 1. Memorials Authorized by Congress
99th through 99th through ~~116th~~117th Congresses Congresses
Congress
Memorials
Congress
Memorials
99th (1985- 99th (1985-~~1987)a~~1987)a
5 5
~~108th (2003-2005~~109th (2005-2007) )
1 1
100th (1987-1989) 100th (1987-1989)
2 2
~~109th (2005-2007~~110th (2007-2009) )
1 1
101st (1989-1991) 101st (1989-1991)
1 1
~~110th (2007-2009)~~
1111th (2009-2011) 1b
102nd (1991-1993) 102nd (1991-1993)
3 3
~~111th (2009-2011~~112th (2011-2013) 2)
1b
103rd (1993-1995) 103rd (1993-1995)
3 3
~~112th (2011-2013)~~
2113th (2013-2015) 4
104th (1995-1997) 104th (1995-1997)
1 1
~~113th (2013-2015)~~
4114th (2015-2017) 1 105th (1997-1999) 2 115th (2017-2019) 3 106th (1999-2001) 5 116th (2019-2021) 4 107th (2001-2003) 2 117th (2022-2023) 6 108th (2003-2005) 1 Total 48c Source: CRS analysis of memorial legislation. Notes: a. Only memorials subject to the CWA are included in the total for the 99th Congress. b. In the 111th Congress, a plaque honoring Senator Robert J. Dole was placed at the World War II Memorial (P.L. 111-88, §128, 123 Stat. 2933 [2009]). The placement of the plaque was authorized outside of the CWA process, but is included because it was placed in the Reserve. c. P.L. 112-239, §2860 repealed an authorization to the Black Revolutionary War Patriots Foundation to create a Black Revolutionary War Veterans Memorial that had been authorized by P.L. 99-558 (100 Stat. 3144 [1986]). P.L. 112-239 provided a new authorization for the Slaves and Free Black Persons who Served 149 To
~~105th (1997-1999)~~
2
~~114th (2015-2017)~~
1

~~148 U.S. President (William J. Clinton), “Statement on the Dedication of the National Japanese-American Memorial,”~~
Daily Com pilation of Presidential Docum ents (November 9, 2000), p. 2834.
~~149 T o~~ compile the list of memorials, three different sources were compile the list of memorials, three different sources were consulted. First, a search of Congress.govconsulted. First, a search of Congress.gov was was
conducted for the terms “Commemorative Works Act” and “Federal Land in the District of Columbia.” Second,conducted for the terms “Commemorative Works Act” and “Federal Land in the District of Columbia.” Second, the list the list
provided through the Congress.gov search wasprovided through the Congress.gov search was then cross-referenced with legislative information provided by the then cross-referenced with legislative information provided by the
National Park Service Legislative and CongressionalNational Park Service Legislative and Congressional Affairs Office. Affairs Office. ~~T he~~The Office of Legislative and Congressional Office of Legislative and Congressional
Affairs provides compilations of lawsAffairs provides compilations of laws related to the National Park Service for each year. related to the National Park Service for each year. ~~T hese~~These documents include documents include a list a list
of memorials. (U.S.of memorials. (U.S. Department of the Interior, National Park Service, Legislative and Congressional Affairs, Department of the Interior, National Park Service, Legislative and Congressional Affairs,
“National Park Service Laws,”“National Park Service Laws,” at http://www.nps.gov/legal/). Finally, the list wasat http://www.nps.gov/legal/). Finally, the list was compared to a compilation of compared to a compilation of
memorials provided in 40 U.S.C.memorials provided in 40 U.S.C. §8903 note. Overall, Congress has authorized 38 memorials.§8903 note. Overall, Congress has authorized 38 memorials.
150 For more information on completed commemorative works, see CRS 150 For more information on completed commemorative works, see CRS Report R43743, Report R43743, Monuments and Memorials
Authorized and ~~Com pleted~~Completed Under the ~~Com m em orative~~Commemorative Works Act in the District ~~of Colum bia~~ of Columbia, by Jacob R., by Jacob R. Straus. Straus.
151 For more information on in-progress memorials and memorials with lapsed 151 For more information on in-progress memorials and memorials with lapsed ~~authorizat ions~~ authorizations, see CRS, see CRS ~~Report R43744,~~
~~Monum ents and Mem orials Authorized Under the Com m em orative~~ Report R43744, Monuments and Memorials Authorized Under the Commemorative Works Act in the District ~~of Colum bia~~ of Columbia: Current
~~Developm ent of In-~~Development of In Progress and Lapsed Works,, by Jacob R. Straus.by Jacob R. Straus. ~~T he~~ The Black Revolutionary War Patriots Memorial, Black Revolutionary War Patriots Memorial,
authorized in the 99th Congress (P.L. 99-558), had a lapsed authorization until Congress repealed it and authorized a authorized in the 99th Congress (P.L. 99-558), had a lapsed authorization until Congress repealed it and authorized a
newnew memorial to Slaves and Free Black Persons Who Servedmemorial to Slaves and Free Black Persons Who Served in the Revolution (in the Revolution ( P.L. 112-239). See note c oP.L. 112-239). See note c on Table 1
for more information. for more information.
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~~Congress~~
~~Memorials~~
~~Congress~~
~~Memorials~~
~~106th (1999-2001)~~
5
~~115th (2017-2019)~~
3
~~107th (2001-2003)~~
2
~~116th (2019-2021)~~
4

~~Total~~
~~42c~~
Source: CRS analysis of memorial legislation.
~~Notes:~~
~~a. Only memorials subject to the CWA are included in the total for the 99th Congress.~~
~~b. In the 111th Congress, a plaque honoring Senator Robert J. Dole was placed at the World War II Memorial~~
~~(P.L. 111-88, §128, 123 Stat. 2933, October 30, 2009). The placement of the plaqu e was authorized outside~~
~~of the CWA process, but is included because it was placed in the Reserve.~~
~~c. P.L. 112-239, §2860 repealed an authorization to the Black Revolutionary War Patriots Foundation to~~
~~create a Black Revolutionary War Veterans Memorial that had been authorized by P.L. 99-558 (100 Stat.~~
~~3144, October 27, 1986). P.L. 112-239 provided a new authorization for the Slaves and Free Black Persons~~
~~who Served in the American Revolution Memorial to the National Mal Liberty Fund. Both memorials are~~
included in this total, as P.L.included in this total, as P.L. 112-239 created a new authorization for the memorial. 112-239 created a new authorization for the memorial.
Memorials authorized by Congress since the passage of CWA have focused on a variety of Memorials authorized by Congress since the passage of CWA have focused on a variety of
individuals, groups, and events. Among the individuals recognized have been Francis Scott Key, individuals, groups, and events. Among the individuals recognized have been Francis Scott Key,
George Mason, and Dr. Martin Luther King Jr. Groups commemorated have included Black George Mason, and Dr. Martin Luther King Jr. Groups commemorated have included Black
Revolutionary War Patriots, Victims of Communism, and Ukrainian Famine-Genocide Victims. Revolutionary War Patriots, Victims of Communism, and Ukrainian Famine-Genocide Victims.
~~Stil~~ Still others have sought to memorialize events including the Korean War, World War II, and Dr. others have sought to memorialize events including the Korean War, World War II, and Dr.
Martin Luther King Jr.’s “I Have a Dream Martin Luther King Jr.’s “I Have a Dream ~~Speech.~~Speech.” Table 2 lists memorials authorized by lists memorials authorized by
Congress since 1986. Congress since 1986.
Table 2. Authorized Memorials in the District of Columbia and its Environs
Congress
Memorial
Citation
99 99
Francis Scott Key Francis Scott Key
P.L. 99-531, 100 Stat. 3022 P.L. 99-531, 100 Stat. 3022~~, October 27, 1986~~ (1986)
99 99
Black Revolutionary War Black Revolutionary War ~~Patriot~~saPatriotsa
P.L. 99-558, 100 Stat. 3144 P.L. 99-558, 100 Stat. 3144 ~~October 27, 1986~~(1986)
99 99
Korean War Veterans Korean War Veterans
P.L. 99-572, 100 Stat. 3226 P.L. 99-572, 100 Stat. 3226~~, October 28, 1986~~ (1986)
99 99
Women Women in Military Servicein Military Service for America for America
P.L. 99-610, 100 Stat. 3477 P.L. 99-610, 100 Stat. 3477~~, November 6, 1986~~ (1986)
99 99
American American ~~Armored~~ Armored Force Force
P.L. 99-620, 100 Stat. 3493 P.L. 99-620, 100 Stat. 3493~~, November 6, 1986~~ (1986)
100 100
National Peace National Peace ~~Garde~~naGardena
P.L. 100-63, 101 Stat. 379 P.L. 100-63, 101 Stat. 379~~, June 30, 1987~~ (1987)
100 100
Vietnam Women’s Vietnam Women’s Memorial Memorial
P.L. 100-660, 102 Stat. 3922 P.L. 100-660, 102 Stat. 3922~~, November 15, 1988~~ (1988)
101 101
George George Mason Mason
P.L. 101-358, 104 Stat. 419 P.L. 101-358, 104 Stat. 419~~, August 10, 1990~~ (1990)
102 102
Thomas Pain Thomas Painea
P.L. 102-407, 106 Stat. 1991 P.L. 102-407, 106 Stat. 1991~~, October 13, 1992~~ (1992)
102 102
African-American African-American ~~Civil~~ Civil War-Union Soldiers/Sailors War-Union Soldiers/Sailors
P.L. 102-412, 106 Stat. 2104 P.L. 102-412, 106 Stat. 2104~~, October 14, 1992~~ (1992)
102 102
Japanese American Japanese American ~~Patriotism~~ Patriotism in Worldin World War II War II
P.L. 102-502, 106 Stat. 3273 P.L. 102-502, 106 Stat. 3273~~, October 24, 1992~~ (1992)
103 103
World World War II Memorial War II Memorial
P.L. 103-32, 107 Stat. 90 P.L. 103-32, 107 Stat. 90~~, May 25, 1993~~ (1993)
103 103
Air Air ~~Forc~~eb Forceb
P.L. 103-163, 107 Stat. 1973 P.L. 103-163, 107 Stat. 1973~~, December 2, 1993~~ (1993)
103 103
Victims Victims of Communism of Communism
P.L. 103-199, title IX, §905, 107 Stat. 2331 P.L. 103-199, title IX, §905, 107 Stat. 2331,
~~December 17, 1993~~ (1993)
104 104
Dr. Martin Luther King, Jr. Dr. Martin Luther King, Jr.
P.L. 104-133, div I, title V, §508, 110 Stat. 4157 P.L. 104-133, div I, title V, §508, 110 Stat. 4157,
~~November 12, 1996~~ (1996)
105 105
Mahatma Gandhi Mahatma Gandhi
P.L. 105-284, 112 Stat. 2701 P.L. 105-284, 112 Stat. 2701~~, October 26, 1998~~
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~~Congress~~
~~Memorial~~
~~Citation~~ (1998)
105 105
Benjamin Benjamin BannekeBannekera
P.L. 105-355, title V, §512, 112 Stat. 3266 P.L. 105-355, title V, §512, 112 Stat. 3266,
~~November 6, 1998~~ (1998)
106 106
Dwight D. Eisenhower Dwight D. Eisenhower
P.L. 106-79, §8162, 113 Stat. 1274 P.L. 106-79, §8162, 113 Stat. 1274~~, October 25,~~
~~1999~~ (1999)
106 106
Veterans Who Died as a Result of Service Veterans Who Died as a Result of Service in the in the
P.L. 106-214, 114 Stat. 335 P.L. 106-214, 114 Stat. 335~~, June 15, 2000~~ (2000)
Vietnam War Vietnam War
106 106
Disabled Veterans’ for Life Memorial Disabled Veterans’ for Life Memorial
P.L. 106-348, 114 Stat. 1358 P.L. 106-348, 114 Stat. 1358~~, October 24, 2000~~ (2000)
106 106
Lincoln Memorial Lincoln Memorial “I Have a Dream“I Have a Dream Speech” Plaque Speech” Plaque
P.L. 106-365, 114 Stat. 1409 P.L. 106-365, 114 Stat. 1409~~, October 27, 2000~~ (2000)
106 106
Frederick Frederick ~~Douglas~~sa Douglassa
P.L. 106-479, 114 Stat. 2184 P.L. 106-479, 114 Stat. 2184~~, November 9, 2000~~ (2000)
107 107
Tomas G. Masaryk Tomas G. Masaryk
P.L. 107-61, 115 Stat. 410 P.L. 107-61, 115 Stat. 410~~, November 5, 2001~~ (2001)
107 107
John Adams John Adams
P.L. 107-62, 115 Stat. 411 P.L. 107-62, 115 Stat. 411~~, November 5, 2001~~ (2001)
108 108
Vietnam Veterans Memorial Vietnam Veterans Memorial ~~Visitors~~ Visitors Center Center
P.L. 108-126, 117 Stat. 1348 P.L. 108-126, 117 Stat. 1348~~, November 17, 2003~~ (2003)
109 109
Ukrainian Famine-Genocide Ukrainian Famine-Genocide Victims 1932-1933 Victims 1932-1933
P.L. 109-340, 120 Stat. 1864 P.L. 109-340, 120 Stat. 1864~~, October 13, 2006~~ (2006)
110 110
Brigadier Brigadier ~~General~~ General Francis Marion Francis Marion
P.L. 110-229, §331, 122 Stat. 781 P.L. 110-229, §331, 122 Stat. 781~~, May 8, 2008~~
~~111~~
~~Senator Robert J. Dole~~ (2008) Congressional Research Service 24 link to page 29 link to page 29 link to page 29 Commemorative Works in the District of Columbia: Background and Practice Congress Memorial Citation 111 Senator Robert J. Dole PlaquPlaquec
P.L. 111-88, §128, 123 Stat. 2933 P.L. 111-88, §128, 123 Stat. 2933~~, October 30,~~
~~2009~~ (2009)
112 112
Gold Star Mother Gold Star Mothersa
P.L. 112-239, §2859, 126 Stat. 2164 P.L. 112-239, §2859, 126 Stat. 2164~~, January 3,~~
~~2013~~ (2013)
112 112
Slaves and Free Slaves and Free Black Persons Who Served in the Black Persons Who Served in the
P.L. 112-239, §2860, 126 Stat. 2164, P.L. 112-239, §2860, 126 Stat. 2164, ~~January 3,~~(2013)
Revolution Revolution
~~2013~~
113 113
Peace Corp Peace Corpsa
P.L. 113-78, 127 Stat. 647 P.L. 113-78, 127 Stat. 647~~, January 25, 2013~~ (2013)
113 113
World World War II MemorialWar II Memorial Prayer Prayer
P.L. 113-123, 128 Stat. 1377 P.L. 113-123, 128 Stat. 1377~~, June 30, 2014~~ (2014)
113 113
World World War I War I
P.L. 113-291, §3091(b), P.L. 113-291, §3091(b), ~~December 19, 2014~~128 Stat. 3858 (2014)
113 113
Desert Desert Storm and Desert Shield Storm and Desert Shield
P.L. 113-291, §3093, P.L. 113-291, §3093, ~~December 19, 2014~~128 Stat. 3879 (2014)
114 114
Korean War Memorial Korean War Memorial ~~Wal~~ Wall of Remembrance of Remembrance
P.L. 114-230, 130 Stat. 947 P.L. 114-230, 130 Stat. 947~~, October 7, 2016~~ (2016)
115 115
Global War on Terrorism Global War on Terrorism
P.L. 115-51, 131 Stat. 1003 P.L. 115-51, 131 Stat. 1003~~, August 18, 2017~~ (2017)
115 115
Second Division Second Division ~~Memorial~~ Memorial Modifications Modifications
P.L. 115-141, Division G, §121(a)(1), P.L. 115-141, Division G, §121(a)(1), ~~March 23,~~
~~2018~~132 Stat. 661 (2018)
115 115
Emergency Medical Services Emergency Medical Services
P.L. 115-275, 132 Stat. 4164 P.L. 115-275, 132 Stat. 4164~~, November 3, 2018~~ (2018)
116 116
Women’s Women’s Suffrage and the 19th Amendment Suffrage and the 19th Amendment
P.L. 116-217, 134 Stat. 1052 P.L. 116-217, 134 Stat. 1052~~, December 17, 2020~~ (2020)
116 116
Republic of Texas Legation Republic of Texas Legation
P.L. 116-248, 134 Stat. 1124 P.L. 116-248, 134 Stat. 1124~~, December 22, 2020~~ (2020)
116 116
~~Fal en~~Fallen Journalists Journalists
P.L. 116-253, 134 Stat. 1135 P.L. 116-253, 134 Stat. 1135~~, December 23, 2020~~ (2020)
116 116
First Division First Division Monument Modifications Monument Modifications
P.L. 116-283, Title X, §1083, P.L. 116-283, Title X, §1083, ~~January 1, 2021~~
Source: 40 U.S.C. §8903 note, and CRS analysis of memorial legislation.
~~Notes:~~
~~a. Authority for this memorial lapsed prior to construction permits being issued to the sponsoring group.~~
~~b. The Air Force Memorial was constructed on land not governed by the Commemorative Works Act. For~~
~~more information, see the Air Force Memorial Foundation, http://www.airforcememorial.org/.~~
~~c. In the 111th Congress, Congress authorized the placement of a plaque honoring Senator Robert J. Dole to~~
~~be placed on the World War II Memorial (P.L. 111-88, §128, 123 Stat. 2933, October 30, 2009). The~~
134 Stat. 3875 (2021) 117 Medal of Honor Memorial P.L. 117-80, 135 Stat. 1538 (2021) 117 Women Who Worked on the Home Front in World P.L. 117-328, Division DD, Subtitle D, Title VII, War II §702 (2022) 117 Service Animals and Handlers P.L. 117-328, Division DD, Subtitle D, Title VII, §704 (2022) 117 Jean Monnet P.L. 117-328, Division DD, Subtitle D, Title VII, §705 (2022) 117 Enslaved Individuals who Endured the Middle Passage P.L. 117-328, Division DD, Subtitle D, Title VII, §707 (2022) 117 Thomas Paine P.L. 117-328, Division DD, Subtitle D, Title VII, §709 (2022) Source: 40 U.S.C. §8903 note, and CRS analysis of memorial legislation. Notes: a. Authority for this memorial lapsed prior to construction permits being issued to the sponsoring group. b. The Air Force Memorial was constructed on land not governed by the Commemorative Works Act. For more information, see the Air Force Memorial Foundation, http://www.airforcememorial.org/. c. In the 111th Congress, Congress authorized the placement of a plaque honoring Senator Robert J. Dole to be placed on the World War II Memorial (P.L. 111-88, §128, 123 Stat. 2933 [2009]). The placement of the plaque was authorized outside of the CWAplacement of the plaque was authorized outside of the CWA process, but is included because it was placed process, but is included because it was placed
~~in the Reserve.~~
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in the Reserve. d. P.L. 112-239, §2860 repealed an authorization to the Black Revolutionary War Patriots Foundation to d. P.L. 112-239, §2860 repealed an authorization to the Black Revolutionary War Patriots Foundation to
create a Black Revolutionary War Veterans Memorial create a Black Revolutionary War Veterans Memorial that had been authorized by P.L. 99-558 (100 Stat. that had been authorized by P.L. 99-558 (100 Stat.
31443144~~, October 27, 1986~~ [1986]). P.L. 112-239 provided a new authorization for the Slaves and Free Black Person ). P.L. 112-239 provided a new authorization for the Slaves and Free Black Person
Who Served in the AmericanWho Served in the American Revolution MemorialRevolution Memorial to the National to the National ~~Mal~~ Mall Liberty Fund DC. Liberty Fund DC.
e. P.L. 115-141 incorporated S. 1460, §7130 (115th Congress; Energy and Natural Resources e. P.L. 115-141 incorporated S. 1460, §7130 (115th Congress; Energy and Natural Resources Act of 2017) to Act of 2017) to
authorize modifications authorize modifications to the Second Divisionto the Second Division Memorial.Memorial.
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Appendix A. Summary of Original Commemorative
Works Act Provisions
The Commemorative Works Act (CWA), as enacted, contained 10 sections covering the purposes The Commemorative Works Act (CWA), as enacted, contained 10 sections covering the purposes
of the of the ~~bil~~ bill, definitions, congressional authorization for memorials, creation of the National Capital , definitions, congressional authorization for memorials, creation of the National Capital
Memorial Commission, conditions for memorial placement in different parts of the District of Memorial Commission, conditions for memorial placement in different parts of the District of
Columbia, site design and approval, issuance of construction permits, creation of a temporary Columbia, site design and approval, issuance of construction permits, creation of a temporary
memorial site, and other administrative provisions.memorial site, and other administrative provisions.152 Table A-1 provides a summary of the provides a summary of the
original provisions contained in the CWA for each section of the original provisions contained in the CWA for each section of the ~~bil~~ bill. .
Table A-1. Summary of Original Commemorative Works Act, 1986
Section
Provisions
Section 1 Section 1
Outlines the purposes of the act, including the Outlines the purposes of the act, including the
Purposes Purposes
preservation preservation of the L’Enfant and McMil an plans; ensuring of the L’Enfant and McMil an plans; ensuring
continued use of public spaces; preservationcontinued use of public spaces; preservation and and
(100 Stat. 3650) (100 Stat. 3650)
protection of open space for visitors protection of open space for visitors and residents; and and residents; and
ensuring that future commemorativeensuring that future commemorative ~~works~~ works meet certain meet certain
standards. standards.
Section 2 Section 2
Defines Defines terms used in the act including secretary terms used in the act including secretary
Definitions Definitions
(Secretary of the Interior), administrator (Secretary of the Interior), administrator (Administrator(Administrator of of
the General Servicesthe General Services ~~Administration~~ Administration [GSA]), [GSA]),
(100 Stat. 3650) (100 Stat. 3650)
commemorative commemorative work, person,work, person, and Districtand District of Columbia of Columbia
and its environs. and its environs.
Section 3 Section 3
Established that no commemorative Established that no commemorative work be established work be established
Congressional Congressional Authorization of Commemorative Authorization of Commemorative
without congressional authorization; and that the without congressional authorization; and that the
Works Works in the Districtin the District of Columbia and its Environs of Columbia and its Environs
Committee Committee on House Administrationon House Administration and Senate Energy and Senate Energy
and Natural Resourcesand Natural Resources ~~Committee~~ Committee are required to solicit are required to solicit
(100 Stat. 3651) (100 Stat. 3651)
the views of the National Capital Memorial the views of the National Capital Memorial Commission. Commission.
Section 4 Section 4
Created the National Capital Memorial Created the National Capital Memorial ~~Commission~~ Commission to to
National Capital Memorial National Capital Memorial Commission Commission
advise the Secretary of the Interior and the Administrator advise the Secretary of the Interior and the Administrator
of GSA on policy and proceduresof GSA on policy and procedures for commemorative for commemorative
(100 Stat. 3651) (100 Stat. 3651)
works. works.
Section 5 Section 5
Requires that the Secretary of the Interior and the Requires that the Secretary of the Interior and the
Availability Availability of Map Depicting Area I and Areaof Map Depicting Area I and Area II II
Administrator Administrator of the GSA makeof the GSA make available a map depicting available a map depicting
Area I and AreaArea I and Area II for public inspection. II for public inspection.
(100 Stat. 3651) (100 Stat. 3651)

152 P.L. 99-652, 100 Stat. 3650152 P.L. 99-652, 100 Stat. 3650~~, November 14, 1986~~ (1986); 40 U.S.C. §§8901; 40 U.S.C. §§8901 -8909. -8909.
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Section
Provisions
Section 6 Section 6
Area I requires Area I requires a commemorativea commemorative work to be of work to be of
Specific Conditions Applicable to Area Specific Conditions Applicable to Area I and Area II I and Area II
“preeminent historical “preeminent historical and lasting significance to the and lasting significance to the
Nation” and that designations for Area I be disapproved Nation” and that designations for Area I be disapproved
(100 Stat. 3651) (100 Stat. 3651)
unless the location is approved by law within 150 days. unless the location is approved by law within 150 days.
Area II requiresArea II requires a commemorativea commemorative ~~work~~ work to be of “lasting to be of “lasting
historicalhistorical significance.” significance.”
Individual or group commemorativeIndividual or group commemorative ~~works~~ works are not are not
permitted until 25 years “after the death of the individual permitted until 25 years “after the death of the individual
or last surviving group member.” or last surviving group member.”
Military commemorativeMilitary commemorative works can only commemorateworks can only commemorate a a
war or similarwar or similar ~~military~~ military conflict or a branch of the Armed conflict or a branch of the Armed
Forces.Forces. No commemorativeNo commemorative ~~works~~ works to a lesserto a lesser conflict or a conflict or a
single Armedsingle Armed ~~Forces~~ Forces unit are permitted.unit are permitted. Military Military
commemorativecommemorative works may not be authorized until at works may not be authorized until at
least 10 years after the officialleast 10 years after the official designated end of such war designated end of such war
or conflict. or conflict.
Section 7 Section 7
Establishes requirements Establishes requirements for individuals or groups for individuals or groups
Site and Design Approval Site and Design Approval
authorized to create a commemorative authorized to create a commemorative works,works, including including
consultation with the National Capital Memorial consultation with the National Capital Memorial
(100 Stat. 3652) (100 Stat. 3652)
Commission Commission and site and design proposal reviewand site and design proposal review by the by the
CommissionCommission of Fine Arts and the National Capital Planning of Fine Arts and the National Capital Planning
Commission. Commission.
Section 8 Section 8
Requires that the Secretary of the Interior or the Requires that the Secretary of the Interior or the
Criteria Criteria for Issuance of Construction Permit for Issuance of Construction Permit
Administrator Administrator of the GSA determineof the GSA determine that a site has been that a site has been
approved, that the soundness and durability of the work approved, that the soundness and durability of the work
(100 Stat. 3652) (100 Stat. 3652)
has been verified, has been verified, contracts and drawings have been contracts and drawings have been
submitted to the secretarysubmitted to the secretary or administrator,or administrator, and sufficient and sufficient
funds are available to completefunds are available to complete construction. construction.
Requires 10% of construction costs to be set aside for Requires 10% of construction costs to be set aside for
future maintenance and preservationfuture maintenance and preservation of the work. of the work.
Section 9 Section 9
Provides authority to the Secretary of the Interior Provides authority to the Secretary of the Interior to to
Temporary Site Designation Temporary Site Designation
create a site for the temporary create a site for the temporary display of commemorative display of commemorative
worksworks “to aid in the preservation of the limited“to aid in the preservation of the limited amount of amount of
(100 Stat. 3653) (100 Stat. 3653)
open space available….” open space available….” Cost of displaying a workCost of displaying a work in a in a
temporary area is at the soletemporary area is at the sole expense of the authorized expense of the authorized
party. party.
Section 10 Section 10
Complete Complete design and construction documentation is design and construction documentation is
~~Miscel aneous~~ Miscellaneous Provisions Provisions
provided to the Secretary of the Interior or the provided to the Secretary of the Interior or the
AdministratorAdministrator of the GSA; of the GSA;
(100 Stat. 3654) (100 Stat. 3654)
Legislative Legislative authority for a commemorativeauthority for a commemorative ~~work~~ work expires expires
after five years from the date of enactment, unless a after five years from the date of enactment, unless a
construction permit has been issued; construction permit has been issued;
The Secretary of the InteriorThe Secretary of the Interior or the Administratoror the Administrator of the of the
GSA assumesGSA assumes ~~responsibility~~ responsibility for works upon their for works upon their
completion; completion;
The Secretary of the InteriorThe Secretary of the Interior or the Administratoror the Administrator of the of the
GSA has the authority to promulgate regulations to carry GSA has the authority to promulgate regulations to carry
out the act; and out the act; and
The act did not apply to worksThe act did not apply to works authorized before the 99th authorized before the 99th
Congress. Congress.
Source: P.L. 99-652; 100 Stat. 3650P.L. 99-652; 100 Stat. 3650~~, November 14, 1986~~ (1986). .
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Appendix B. Steps for Establishing a Memorial in
the Nation’s Capital
In 1987, the National Park Service created a 24-step outline of the commemorative works In 1987, the National Park Service created a 24-step outline of the commemorative works
process. In 2001, the National Capital Planning Commission published the outline for process. In 2001, the National Capital Planning Commission published the outline for
establishing a monument or memorial in the District of Columbia as part of the Museums and establishing a monument or memorial in the District of Columbia as part of the Museums and
Memorials Master Plan.153 The 24 steps, reprinted verbatim below, are designed to guide Memorials Master Plan.153 The 24 steps, reprinted verbatim below, are designed to guide
interested groups and help ensure appropriate legislation, site selection, design approval, interested groups and help ensure appropriate legislation, site selection, design approval,
fundraising, and construction. fundraising, and construction.
1. Memorial 1. Memorial sponsor seeks National Capital Memorial Advisory Commission sponsor seeks National Capital Memorial Advisory Commission
(NCMAC) assistance to review the requirements and process established by the (NCMAC) assistance to review the requirements and process established by the
Commemorative Works Act (CWA)154 and its applicabilityCommemorative Works Act (CWA)154 and its applicability to the proposed to the proposed
memorial. memorial.
2. Memorial 2. Memorial sponsor seeks a Senator or Representative who is sponsor seeks a Senator or Representative who is ~~wil ing~~willing to draft and to draft and
introduce a introduce a ~~bil~~ bill to authorize establishment of the memorial. to authorize establishment of the memorial.
3. Staffs of NCMAC, Member of Congress who 3. Staffs of NCMAC, Member of Congress who ~~wil~~ will introduce the introduce the ~~bil ,~~ bill, and and
authorizing committees draft a authorizing committees draft a ~~bil~~ bill that conforms to the provisions of the CWA. that conforms to the provisions of the CWA.
4. Congressman and/or Senator introduce 4. Congressman and/or Senator introduce ~~bil~~ bill authorizing the memorial and authorizing the memorial and
designating the sponsor as the entity responsible for its erection at no cost to the designating the sponsor as the entity responsible for its erection at no cost to the
federal government. federal government.
5. NCMAC 5. NCMAC considers proposed authorizing legislationconsiders proposed authorizing legislation to establish its view pursuant to establish its view pursuant
to CWA.155 to CWA.155
6. Chairmen of House and Senate authorizing Subcommittees on National Parks 6. Chairmen of House and Senate authorizing Subcommittees on National Parks
solicit views of NCMAC, may hold hearings on proposed authorizing legislation, solicit views of NCMAC, may hold hearings on proposed authorizing legislation,
and take action on a and take action on a ~~bil~~ bill before sending it to the full House and Senate for a vote before sending it to the full House and Senate for a vote
on the on the ~~bil~~ bill. .
7. Congress passes 7. Congress passes ~~bil~~ bill, President signs , President signs ~~bil~~ bill into law, providing memorial sponsor into law, providing memorial sponsor
seven years in which to begin construction of memorial in Area II. seven years in which to begin construction of memorial in Area II.
8. Memorial 8. Memorial sponsor organizes the structure of the entity that sponsor organizes the structure of the entity that ~~wil~~ will establish the establish the
memorial and beings planning. memorial and beings planning.
9. The memorial sponsor may submit to the Secretary a request to be authorized to 9. The memorial sponsor may submit to the Secretary a request to be authorized to
consider sites in Area I. The Secretary seeks the advice of NCMAC to determine consider sites in Area I. The Secretary seeks the advice of NCMAC to determine
whether the memorial warrants placement in Area I. Based on the advice of whether the memorial warrants placement in Area I. Based on the advice of
NCMAC, the secretary notifies Congress of a determination that the subject is of NCMAC, the secretary notifies Congress of a determination that the subject is of
preeminent and lasting historical significance156 so that Congress can consider preeminent and lasting historical significance156 so that Congress can consider
passage of legislation authorizing an Area I location for enactment by the passage of legislation authorizing an Area I location for enactment by the
President.157 President.157

153 National Capital Planning Commission, “Steps for Establishing153 National Capital Planning Commission, “Steps for Establishing a Memorial in the Nation’s Capital,” a Memorial in the Nation’s Capital,” Memorials and
~~Museum s~~Museums Master Plan, September 2001, updated 2006, pp. 167, September 2001, updated 2006, pp. 167 -168, at https://www.ncpc.gov/docs/-168, at https://www.ncpc.gov/docs/
Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173. Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173.
154 40 U.S.C.154 40 U.S.C. §§8901-8909. §§8901-8909.
155 40 U.S.C.155 40 U.S.C. §8903(d). §8903(d).
156 40 U.S.C.156 40 U.S.C. §8908(b). §8908(b).
157 If legislation to authorize the commemorative work within Area I is157 If legislation to authorize the commemorative work within Area I is ~~n ot~~ not passed with the 150-calendar day period, passed with the 150-calendar day period,
Area I sites can no longer beArea I sites can no longer be considered by the sponsor group. considered by the sponsor group.
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10. 10. ~~Memorial~~ Memorial sponsor works with NPS staff to identify potential Area II sites (may sponsor works with NPS staff to identify potential Area II sites (may
include Area I if authorized) and prepare alternative site study and accompany include Area I if authorized) and prepare alternative site study and accompany
preliminary environmental analysis. preliminary environmental analysis.
11. 11. ~~Memorial~~ Memorial sponsor, for sites within Area II, or Area I if authorized, submits sponsor, for sites within Area II, or Area I if authorized, submits
alternative site study and accompanying preliminary environmental analysis to alternative site study and accompanying preliminary environmental analysis to
NPS for approval of preferred site and consultation with NCMAC. NPS for approval of preferred site and consultation with NCMAC.
12. 12. NPS submits recommended site and environmental document to the National NPS submits recommended site and environmental document to the National
Capital Planning Commission (NCPC) and the Commission of Fine Arts (CFA) Capital Planning Commission (NCPC) and the Commission of Fine Arts (CFA)
for approval. NPS initiates Section 106 consultation on its recommendation of for approval. NPS initiates Section 106 consultation on its recommendation of
site with the State Historic Preservation Officer (SHPO). site with the State Historic Preservation Officer (SHPO).
13. 13. After site approval by NCPC and CFAAfter site approval by NCPC and CFA and in consultation with the SHPO, the and in consultation with the SHPO, the
design process begins in accordance with any approved design guidelines. design process begins in accordance with any approved design guidelines.
14. 14. ~~Memorial~~ Memorial sponsors select a designer or initiate a design competition. sponsors select a designer or initiate a design competition.
15. 15. ~~Memorial~~ Memorial sponsor selects preferred design concept and meets with NPS to sponsor selects preferred design concept and meets with NPS to
discuss issues that design may present. After possible refinements, sponsor discuss issues that design may present. After possible refinements, sponsor
submits the design concept and draft environmental assessment to the NPS. submits the design concept and draft environmental assessment to the NPS.
16. 16. NPS reviews design concept and, upon concurrence, submits to NCPC and CFA NPS reviews design concept and, upon concurrence, submits to NCPC and CFA
with appropriate environmental document for approval. with appropriate environmental document for approval.
17. 17. ~~Memorial~~ Memorial sponsor, in close coordination with NPS, refines preliminary design sponsor, in close coordination with NPS, refines preliminary design
concept on the basis of NCPC, CFA, and SHPO comments and submits concept on the basis of NCPC, CFA, and SHPO comments and submits
preliminary design to NPS who, upon approval, submits it to NCPC and CFA for preliminary design to NPS who, upon approval, submits it to NCPC and CFA for
approval. approval.
18. 18. ~~Memorial~~ Memorial sponsor, in close coordination with NPS, refines preliminary design on sponsor, in close coordination with NPS, refines preliminary design on
the basis of comments and submits final design to NPS, who upon approval, the basis of comments and submits final design to NPS, who upon approval,
submits it to NCPC and CFA for approval. submits it to NCPC and CFA for approval.
19. 19. ~~Memorial~~ Memorial design team completes final drawings and specifications in close design team completes final drawings and specifications in close
coordination with NPS. coordination with NPS.
20. 20. ~~Memorial~~ Memorial sponsor completes fund-raising. sponsor completes fund-raising.
21. 21. ~~Memorial~~ Memorial sponsor submits final drawing and specifications, cost estimate and sponsor submits final drawing and specifications, cost estimate and
evidence of funds on hand plus 10% cash payment of design and construction evidence of funds on hand plus 10% cash payment of design and construction
costs for maintenance to NPS. costs for maintenance to NPS.
22. 22. NPS issues a construction permit on behalf of the Secretary of the Interior which NPS issues a construction permit on behalf of the Secretary of the Interior which
constitutes final approval by the Secretary and the start of construction. constitutes final approval by the Secretary and the start of construction.
23. 23. ~~Memorial~~ Memorial Sponsor begins construction and preparation of operation, Sponsor begins construction and preparation of operation,
maintenance, and preservation plans for the memorial. maintenance, and preservation plans for the memorial.
24. 24. ~~Memorial~~ Memorial is dedicated and transferred to NPS for management with is dedicated and transferred to NPS for management with
accompanying as-built operation, maintenance, and preservation plans. accompanying as-built operation, maintenance, and preservation plans.
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Appendix C. District of Columbia Map with Area
Designations
Figure C-1. Commemorative Areas Washington, DC and Environs

Source: National Park Service Map 869-86501 B (June 24, 2003). National Park Service Map 869-86501 B (June 24, 2003).
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Appendix D. Entities Responsible for Memorials in
the District of Columbia
The process established by the Commemorative Works Act (CWA) to create a commemorative The process established by the Commemorative Works Act (CWA) to create a commemorative
work in the District of Columbia involves the National Capitalwork in the District of Columbia involves the National Capital Memorial Advisory Commission, Memorial Advisory Commission,
the U.S. Commission of Fine Arts, the National Capital Planning Commission, the District of the U.S. Commission of Fine Arts, the National Capital Planning Commission, the District of
Columbia Historic Preservation Office, and sometimes the American Battle Monuments Columbia Historic Preservation Office, and sometimes the American Battle Monuments
Commission.158 Each entity is highlighted below. Commission.158 Each entity is highlighted below.
National Capital Memorial Advisory Commission
The National Capital Memorial Advisory Commission was created in 2001 to “advise the The National Capital Memorial Advisory Commission was created in 2001 to “advise the
Secretary of the Interior and the Administrator of General Services (as appropriate) on policy and Secretary of the Interior and the Administrator of General Services (as appropriate) on policy and
procedures for establishment of, and proposals to establish, commemorative works in the District procedures for establishment of, and proposals to establish, commemorative works in the District
of Columbia and its environs and on other matters concerning commemorative works in the of Columbia and its environs and on other matters concerning commemorative works in the
Nation’s Capital as the Commission considers appropriate.”159 The commission is comprised of Nation’s Capital as the Commission considers appropriate.”159 The commission is comprised of
eight members160 and meets at least two times a year to “examine … each memorial proposal for eight members160 and meets at least two times a year to “examine … each memorial proposal for
conformance to the Commemorative Works Act, and make … recommendations to the Secretary conformance to the Commemorative Works Act, and make … recommendations to the Secretary
and the Administrator and to Members and Committees of Congress. The Commission also serves and the Administrator and to Members and Committees of Congress. The Commission also serves
as a source of information for persons seeking to establish memorials in Washington, DC and its as a source of information for persons seeking to establish memorials in Washington, DC and its
environs.”161 environs.”161
U.S. Commission of Fine Arts
In 1910, Representative Samuel In 1910, Representative Samuel ~~McCal~~ McCall introduced a introduced a ~~bil~~ bill, H.R. 19962, to create a commission on , H.R. 19962, to create a commission on
fine arts.162 Reported by the Committee on the Library,163 the House debated the fine arts.162 Reported by the Committee on the Library,163 the House debated the ~~bil~~ bill on February on February
9. During the debate, Representative 9. During the debate, Representative ~~McCal~~ McCall explained why a permanent entity was needed to explained why a permanent entity was needed to
govern art within the District of Columbia. govern art within the District of Columbia.
We have had a very haphazard development of art in the city of Washington. We have had We have had a very haphazard development of art in the city of Washington. We have had
our streets and our squares filled up by art objects that are not always art. We have had our streets and our squares filled up by art objects that are not always art. We have had
commissions appointed—temporary, sporadic commissions—one commission to operate commissions appointed—temporary, sporadic commissions—one commission to operate

158 For more information on memorials outside of Washington, DC, see CRS158 For more information on memorials outside of Washington, DC, see CRS Report R45741, Report R45741, Memorials and
~~Com m em orative~~Commemorative Works Outside Washington, DC: Background, Federal Role, and Options for Congress,, by Jacob R. by Jacob R.
StrausStraus and Laura B. Comay. and Laura B. Comay.
159 40 U.S.C.159 40 U.S.C. §8904(c). §8904(c). ~~T he~~The commission was initially created in 1986 and called commission was initially created in 1986 and called the National Capital Memorial the National Capital Memorial
Commission. For more information on the National Capital Memorial Advisory Commission, see National Park Commission. For more information on the National Capital Memorial Advisory Commission, see National Park
Service, “National Capital Memorial Advisory Commission (NCMAC),” at https://parkplanning.nps.gov/Service, “National Capital Memorial Advisory Commission (NCMAC),” at https://parkplanning.nps.gov/
projectHome.cfm?parkID=463&projectID=44217. projectHome.cfm?parkID=463&projectID=44217.
160 160 ~~T he~~The National Capital Memorial Advisory commission consists of the Director of the National Park Service, the National Capital Memorial Advisory commission consists of the Director of the National Park Service, the
Architect of the Capitol, the Chair of the American Battle Monuments Commission, the Chair of the U.S. Commission Architect of the Capitol, the Chair of the American Battle Monuments Commission, the Chair of the U.S. Commission
of Fine Arts, the Chair of the National Capital Planning Commission, the Mayor of the District of Columbia, the of Fine Arts, the Chair of the National Capital Planning Commission, the Mayor of the District of Columbia, the
Commissioner of the Public BuildingCommissioner of the Public Building Service of the General ServicesService of the General Services Administration, and the Secretary of Defense [40 Administration, and the Secretary of Defense [40
U.S.C.U.S.C. §8904(a)]. §8904(a)].
161 Department of the Interior, “National Capital Memorial Advisory Commission,” 75161 Department of the Interior, “National Capital Memorial Advisory Commission,” 75 Federal Register 68823, 68823,
November 9, 2010. November 9, 2010.
162 “Public Bills, 162 “Public Bills, Resolutions, and Memorials,” Resolutions, and Memorials,” Congressional Record, vol. 45, part 2 (February 2, 1910), p. 1417. , vol. 45, part 2 (February 2, 1910), p. 1417.
163 U.S.163 U.S. Congress, HouseCongress, House Committee on the Library, Committee on the Library, Commission of Fine Arts, report to accompany H.R. 19962, 61st , report to accompany H.R. 19962, 61st
Cong., 2nd sess., FebruaryCong., 2nd sess., February 8, 1910, H.Rept. 61-407 (Washington: GPO, 1910). 8, 1910, H.Rept. 61-407 (Washington: GPO, 1910).
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upon one statue and another commission to operate upon another, and the result is that we upon one statue and another commission to operate upon another, and the result is that we
have had no uniform or well thought out development.164 have had no uniform or well thought out development.164
Speaking against the creation of the commission, Representative James Tawney argued that Speaking against the creation of the commission, Representative James Tawney argued that
creation of a Commission of Fine Arts amounted to an abdication of power over matters in the creation of a Commission of Fine Arts amounted to an abdication of power over matters in the
District of Columbia. District of Columbia.
I believe I believe ~~that the Congress of the United States should reserve some of its~~ that the Congress of the United States should reserve some of its legislative legislative
functions, some of its legislative power, and not delegate it to commissions or to any other functions, some of its legislative power, and not delegate it to commissions or to any other
body. We are responsible to the people for legislation, and cannot escape that responsibility body. We are responsible to the people for legislation, and cannot escape that responsibility
~~by the appointment of~~ by the appointment of commissions.commissions. ~~…We have control by virtue of the law over~~ …We have control by virtue of the law over the the
District of Columbia. When Congress authorizes the construction of a public building and District of Columbia. When Congress authorizes the construction of a public building and
fixes the location of that building and requires its erections within the authority and the fixes the location of that building and requires its erections within the authority and the
appropriation made therefore, or the limit of cost, I do not believe that there is any body of appropriation made therefore, or the limit of cost, I do not believe that there is any body of
men, or any man, or any executive officer, I care not how high in authority he maybe, who men, or any man, or any executive officer, I care not how high in authority he maybe, who
should have theshould have the power,power, or unlawfullyor unlawfully ~~exercise executive power, to defeat~~ exercise executive power, to defeat the will of the will of
Congress as express in the law it enacts.165 Congress as express in the law it enacts.165
Following debate, H.R. 19962 passed the House and was referred to the Senate.166 The Senate Following debate, H.R. 19962 passed the House and was referred to the Senate.166 The Senate
debated the debated the ~~bil~~ bill on May 2 and 3, 1910. During debate, the Senate amended the on May 2 and 3, 1910. During debate, the Senate amended the ~~bil~~ bill to give the to give the
commission the authority to “advise commission the authority to “advise ~~general y~~generally upon questions of art when required to do so by the upon questions of art when required to do so by the
President, or by any committee of either House of Congress” and specified commission President, or by any committee of either House of Congress” and specified commission
staffing.167 The Senate passed the staffing.167 The Senate passed the ~~bil~~ bill, as amended on May 3,168 and the House disagreed with the , as amended on May 3,168 and the House disagreed with the
Senate amendments and requested a conference.169 Senate amendments and requested a conference.169
The conference committee issued its report on May 9,170 Congress approved the The conference committee issued its report on May 9,170 Congress approved the ~~bil~~ bill,171 and ,171 and
President President ~~Wil iam~~ William Howard Taft signed the Howard Taft signed the ~~bil~~ bill on May 17, 1910.172 Pursuant to the act, the on May 17, 1910.172 Pursuant to the act, the
Commission of Fine Arts was Commission of Fine Arts was ~~initial y~~ initially charged with providing “advise upon the location of charged with providing “advise upon the location of
statues, fountains, and monuments in the public squares, streets, and parks in the District of statues, fountains, and monuments in the public squares, streets, and parks in the District of
Columbia, and upon the selection of models for statues, fountains, and monuments erected under Columbia, and upon the selection of models for statues, fountains, and monuments erected under
the authority of the United States and upon the selection of artists for the execution of the the authority of the United States and upon the selection of artists for the execution of the
same.”173 Comprised of seven “same.”173 Comprised of seven “~~wel~~ well-qualified judges of the fine arts, appointed by the -qualified judges of the fine arts, appointed by the
President,”174 the commission’s duties have subsequently been expanded to include “the selection President,”174 the commission’s duties have subsequently been expanded to include “the selection
of models for statues, fountains, and monuments erected under the authority of the Federal of models for statues, fountains, and monuments erected under the authority of the Federal
Government; the selection of artists to carry out [the creation of statues, fountains, and Government; the selection of artists to carry out [the creation of statues, fountains, and

~~164 Rep. Samuel~~ monuments]; and questions of art generally when required to do so by the President or a 164 Rep. Samuel McCall, “Commission of Fine Arts,” remarks in the House, McCall, “Commission of Fine Arts,” remarks in the House, Congressional Record, vol. 45, part 2 , vol. 45, part 2
(February 9, 1910), p. 1659. (February 9, 1910), p. 1659.
165 Rep. James 165 Rep. James ~~T awney~~Tawney, “Commission of Fine Arts,” remarks in the House, , “Commission of Fine Arts,” remarks in the House, Congressional Record, vol. 45, part 2 , vol. 45, part 2
(February 9, 1910), p. 1660. (February 9, 1910), p. 1660.
166 “Commission of Fine Arts,” 166 “Commission of Fine Arts,” Congressional Record, vol. 45, part 2 (February 9, 1910), p. 1675; and “House Bills , vol. 45, part 2 (February 9, 1910), p. 1675; and “House Bills
Referred,” Referred,” Congressional Record, vol. 45, part 2 (February 10, 1910), p. 1684. , vol. 45, part 2 (February 10, 1910), p. 1684.
167 “Proposed Commission of Fine Arts,” 167 “Proposed Commission of Fine Arts,” Congressional Record, vol. 45, part 5 (May 2, 1910), p. 5651. , vol. 45, part 5 (May 2, 1910), p. 5651.
168 “Proposed Commission of Fine Arts,” 168 “Proposed Commission of Fine Arts,” Congressional Record, vol. 45, part 6 (May 3, 1910), pp. 5703-5709. , vol. 45, part 6 (May 3, 1910), pp. 5703-5709.
169 “Commission of Fine Arts,” 169 “Commission of Fine Arts,” Congressional Record, vol. 45, part 6 (May 4, 1910), p. 5814. , vol. 45, part 6 (May 4, 1910), p. 5814.
170 U.S.170 U.S. Congress, HouseCongress, House Conference Committee, Conference Committee, Commission of Fine Arts, report to accompany H.R. 19962, 61st , report to accompany H.R. 19962, 61st
Cong., 2nd sess., May 9, 1910, H.Rept. 61-1292 (Washington: GPO, 1910). Cong., 2nd sess., May 9, 1910, H.Rept. 61-1292 (Washington: GPO, 1910).
171 “Commission of Fine Arts,” Senate debate, 171 “Commission of Fine Arts,” Senate debate, Congressional Record, vol. 45, part 6 (May 9, 1910), pp. 5960-5961; , vol. 45, part 6 (May 9, 1910), pp. 5960-5961;
and “Commission of Fine Arts,” House debate, and “Commission of Fine Arts,” House debate, Congressional Record, vol. 45, part 6 (May 12, 1910), p. 6151. , vol. 45, part 6 (May 12, 1910), p. 6151.
172 P.L. 61-183, 36 Stat. 371172 P.L. 61-183, 36 Stat. 371~~, May 17, 1910~~ (1910); 40 U.S.C. §§9101-9104. ; 40 U.S.C. §§9101-9104.
173 Ibid. 173 Ibid.
174 40 U.S.C.174 40 U.S.C. §9101(b). §9101(b).
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~~monuments]; and questions of art general y when required to do so by the President or a~~
committee of Congress.”175 The commission does not have authority over Capitol or Library of committee of Congress.”175 The commission does not have authority over Capitol or Library of
Congress buildings.176 Congress buildings.176
National Capital Planning Commission
In 1924, Congress established the National CapitalIn 1924, Congress established the National Capital Park and Planning Commission to implement Park and Planning Commission to implement
the the ~~McMil an~~ McMillan Plan for the District of Columbia (sePlan for the District of Columbia (see Figure 2).177 Pursuant to the act of June 6, 177 Pursuant to the act of June 6,
1924, the commission was to “preserve the flow of water in Rock Creek, to prevent pollution of 1924, the commission was to “preserve the flow of water in Rock Creek, to prevent pollution of
Rock Creek and the Potomac and Anacostia Rivers, to preserve forests and natural scenery in and Rock Creek and the Potomac and Anacostia Rivers, to preserve forests and natural scenery in and
about Washington, and to provide for the comprehensive systematic, and continuous development about Washington, and to provide for the comprehensive systematic, and continuous development
of the park, parkway, and playground system of the National Capital.”178 of the park, parkway, and playground system of the National Capital.”178
In 1952, Congress, in the National Capital In 1952, Congress, in the National Capital Planning Act, changed the commission’s name to the Planning Act, changed the commission’s name to the
National Capital Planning Commission.179 The act also expanded the commission’s geographic National Capital Planning Commission.179 The act also expanded the commission’s geographic
boundaries and recognized the creation of the national capital region in Maryland and Virginia.boundaries and recognized the creation of the national capital region in Maryland and Virginia. In In
the House report accompanying the the House report accompanying the ~~bil~~ bill, the Committee on the District of Columbia emphasized , the Committee on the District of Columbia emphasized
the new regional mission of the commission. the new regional mission of the commission.
The bill denominates and authorizes the Commission to be the central planning agency for The bill denominates and authorizes the Commission to be the central planning agency for
the Federal and District Governments within the National Capital region (the District and the Federal and District Governments within the National Capital region (the District and
its environs)its environs) and to be the official representative ofand to be the official representative of the aforesaidthe aforesaid ~~governments for~~
governments for collaboration with the Regional Planning Council.… The bill includes additional subjects, collaboration with the Regional Planning Council.… The bill includes additional subjects,
suchsuch as viaducts,as viaducts, subways,subways, major thoroughfares, major thoroughfares, monuments ~~and~~ and memorials,, public public
reservations, or property such as airports, parking areas, institutions, open spaces, public reservations, or property such as airports, parking areas, institutions, open spaces, public
utilitiesutilities ~~and surveys for transportation, redevelopment of obsolescent, blighted or~~ and surveys for transportation, redevelopment of obsolescent, blighted or slum slum
areas, and specifically adds the all-important subject of density or distribution of population areas, and specifically adds the all-important subject of density or distribution of population
[emphasis added].180 [emphasis added].180
Currently, the commission consists of 12 members. Three members are appointed by the Currently, the commission consists of 12 members. Three members are appointed by the
President, including the chair. Two of the three members appointed by the President must reside President, including the chair. Two of the three members appointed by the President must reside
in Virginiain Virginia and Maryland, respectively. The Mayor of the District of Columbia appoints two and Maryland, respectively. The Mayor of the District of Columbia appoints two
members who must be residents of the District. In addition, a number of regional officials serve members who must be residents of the District. In addition, a number of regional officials serve

~~175 40 U.S.C.~~ as ex-officio members. These include the Mayor of Washington, DC, the chair the Council of the District of Columbia; heads of executive branch agencies with significant land holdings in the 175 40 U.S.C. §9102(a). For more information on the U.S. Commission of Fine Arts, see U.S.§9102(a). For more information on the U.S. Commission of Fine Arts, see U.S. Commission of Fine Arts, Commission of Fine Arts,
at http://www.cfa.gov/. at http://www.cfa.gov/.
176 40 U.S.C. 176 40 U.S.C. §9102(c). §9102(c).
177 U.S.177 U.S. Congress, Senate Committee on the District of Columbia, Congress, Senate Committee on the District of Columbia, The Improvement of the Park System of the District
of ~~Colum bia~~Columbia, 57th Cong., 1st sess., S.Rept. 57-166 (Washington: GPO, 1902). Also, see U.S., 57th Cong., 1st sess., S.Rept. 57-166 (Washington: GPO, 1902). Also, see U.S. Congress, Senate Congress, Senate
Committee on the District of Columbia, Committee on the District of Columbia, ~~Com prehensive Developm ent~~Comprehensive Development of the Park and Playground System of the
National Capital, report to accompany S. 112, 68th Cong., 1st sess.,, report to accompany S. 112, 68th Cong., 1st sess., March 12, 1924, S.Rept. 68-245 (Washington: March 12, 1924, S.Rept. 68-245 (Washington:
GPO, 1924), p. 4; and U.S.GPO, 1924), p. 4; and U.S. Congress, HouseCongress, House Committee on the District ofCommittee on the District of Columbia, Columbia, ~~Com prehensive Developm ent~~Comprehensive Development of
the Park and Playground System of the National Capital, report to accompany S. 112, 68th Cong., 1st sess.,, report to accompany S. 112, 68th Cong., 1st sess., May 14, May 14,
1924, H.Rept. 68-755 (Washington: GPO, 1924), pp. 31924, H.Rept. 68-755 (Washington: GPO, 1924), pp. 3 -4. -4.
178 P.L. 68-202, chap. 270, 43 Stat. 463, June 6, 1924. For more information, see “Park and Playground System of the 178 P.L. 68-202, chap. 270, 43 Stat. 463, June 6, 1924. For more information, see “Park and Playground System of the
National Capital,” Senate debate, National Capital,” Senate debate, Congressional Record, vol. 65, part 8 (May 5, 1924), pp. 7828-7830; “Park and , vol. 65, part 8 (May 5, 1924), pp. 7828-7830; “Park and
Playground System of the National Capital,” House debate, Playground System of the National Capital,” House debate, Congressional Record, vol. 65, part 9 (May 26, 1924), p. , vol. 65, part 9 (May 26, 1924), p.
9558; and “Development of the Park and Playground System of the National Capital,” House debate,9558; and “Development of the Park and Playground System of the National Capital,” House debate, Congressional
Record, vol. 65, part 10 (May 27, 1924), pp. 9636, vol. 65, part 10 (May 27, 1924), pp. 9636 -9637. -9637.
179 P.L. 82-592, 66 Stat. 781 179 P.L. 82-592, 66 Stat. 781~~, July 19, 1952~~ (1952). .
180 U.S.180 U.S. Congress, HouseCongress, House Committee on the District of Columbia, Committee on the District of Columbia, Amending the Act of June 6, 1924, as Amended,
Relating to the National Capital Park and Planning ~~Com m ission~~ Commission, report to accompany H.R. 7502, 82nd Cong., 2nd sess., , report to accompany H.R. 7502, 82nd Cong., 2nd sess.,
June 12, 1952, H.Rept. 82-2164 (Washington: GPO, 1952), p. 3. June 12, 1952, H.Rept. 82-2164 (Washington: GPO, 1952), p. 3.
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~~as ex-officio members. These include the Mayor of Washington, DC, the chair the Council of the~~
~~District of Columbia; heads of executive branch agencies with significant land holdings in the~~
District;181 and leaders of the U.S. House and Senate committees with District oversight District;181 and leaders of the U.S. House and Senate committees with District oversight
responsibilities.182 responsibilities.182
In addition to providing guidance and approval at multiple steps of the monument and memorial In addition to providing guidance and approval at multiple steps of the monument and memorial
creation process in the District of Columbia, the NCPC also operates under the authority of other creation process in the District of Columbia, the NCPC also operates under the authority of other
laws for planning within the National Capital Region. These include the National Capital laws for planning within the National Capital Region. These include the National Capital
Planning Act,183 Height of Buildings Act of 1910,184 District of Columbia Zoning Act,185 Foreign Planning Act,183 Height of Buildings Act of 1910,184 District of Columbia Zoning Act,185 Foreign
Missions Act,186 International Center Act,187 National Historic Preservation Act,188 National Missions Act,186 International Center Act,187 National Historic Preservation Act,188 National

181 Executive Branch agencies with “significant land holdings in the District,” include the Department of Defense, the 181 Executive Branch agencies with “significant land holdings in the District,” include the Department of Defense, the
Department of the Interior, and the General ServicesDepartment of the Interior, and the General Services Administration.Administration.
182 Congressional representatives include 182 Congressional representatives include ~~t he~~the chair, Senate Committee on Homeland Security and Government Affairs chair, Senate Committee on Homeland Security and Government Affairs
and the chair, House Committee on Oversight and Government Reform. For a list of current members, see National and the chair, House Committee on Oversight and Government Reform. For a list of current members, see National
Capital Planning Commission, “Commission,” at http://www.ncpc.gov/ncpc/Main%Capital Planning Commission, “Commission,” at http://www.ncpc.gov/ncpc/Main%~~28T 2~~28T2%29/About_Us%28tr2%29/%29/About_Us%28tr2%29/
AboutUs.html. AboutUs.html.
183 40 U.S.C. 183 40 U.S.C. §8701, §8701, et. seq. . ~~T he~~The NCPC is the central planning agency for the federal government in the National NCPC is the central planning agency for the federal government in the National
Capital Region. “Capital Region. “ ~~T he~~The Act provides for the agency’s essential functions, including Act provides for the agency’s essential functions, including development of a Comprehensive development of a Comprehensive
Plan for the NCR; reviewPlan for the NCR; review of federal and some District of Columbiaof federal and some District of Columbia (DC) proposed developments and projects; review (DC) proposed developments and projects; review
of DCof DC zoning amendments; annual review of zoning amendments; annual review of ~~t he~~the Federal Capital Improvements Program and the DC Capital Federal Capital Improvements Program and the DC Capital
Improvements Program; and the development of special planning projects.” (NCPC, http://www.ncpc.gov/ncpc/Improvements Program; and the development of special planning projects.” (NCPC, http://www.ncpc.gov/ncpc/
Main%Main%~~28T 2~~28T2%29/About_Us%28tr2%29/About_Us%28tr3%29/LegislativeAuthorities.html. [Hereinafter, %29/About_Us%28tr2%29/About_Us%28tr3%29/LegislativeAuthorities.html. [Hereinafter, NCPC
Legislative Authorities]). ]).
184 P.L. 61-196, 36 Stat 184 P.L. 61-196, 36 Stat~~. 452, June 1, 1910. T he~~ (1910). The Height of Buildings Height of Buildings Act of 1910 set maximum buildingAct of 1910 set maximum building ~~h eights~~ heights for the for the
District of Columbia.District of Columbia. ~~“T he~~ “The height limit on residential streets is 90 feet. In business height limit on residential streets is 90 feet. In business areas, the buildingareas, the building height is height is
generally limited to the width of the adjacent street plus 20 feet. In addition, there is a general height limit of 130 feetgenerally limited to the width of the adjacent street plus 20 feet. In addition, there is a general height limit of 130 feet ,
, extended to 160 feet along certain portions of Pennsylvania Avenue” (extended to 160 feet along certain portions of Pennsylvania Avenue” (NCPC Legislative Authority). ).
185 “Set forth at D.C. Code §§6-641.01 et seq., [the District of Columbia Zoning Act] authorizes the DC Zoning 185 “Set forth at D.C. Code §§6-641.01 et seq., [the District of Columbia Zoning Act] authorizes the DC Zoning
Commission to regulate the location, height, bulk, number of stories, andCommission to regulate the location, height, bulk, number of stories, and size of buildingssize of buildings and other structures; lot and other structures; lot
occupancy; the sizes of open spaces; the density of population; and buildingoccupancy; the sizes of open spaces; the density of population; and building and land uses.and land uses. ~~Federal buildings~~ Federal buildings are are
exempt from zoning controls, but the act mandates that NCPC serve on exempt from zoning controls, but the act mandates that NCPC serve on ~~th e~~the DC Board DC Board of Zoning Adjustment, which of Zoning Adjustment, which
hears many cases involving land near, or affected by, federal landholdings.hears many cases involving land near, or affected by, federal landholdings. ~~T he~~ The DC Zoning Commission regulations DC Zoning Commission regulations
implementing this law may be found at http://dcoz.dc.gov/info/reg.shtm” (implementing this law may be found at http://dcoz.dc.gov/info/reg.shtm” (NCPC Legislative Authority). ).
186 22 U.S.C. 186 22 U.S.C. §4301, et. seq. §4301, et. seq. ~~T he~~The Foreign Missions Foreign Missions Act stipulates federal government jurisdiction over foreign mission Act stipulates federal government jurisdiction over foreign mission
operations and establishes criteria for placement of foreign missions in the District of Columbia. NCPC’soperations and establishes criteria for placement of foreign missions in the District of Columbia. NCPC’s Executive Executive
Director serves as a member of the DC Board of Zoning Adjustment when the board considersDirector serves as a member of the DC Board of Zoning Adjustment when the board considers foreign mission foreign mission
applications. applications.
187 P.L. 90-553, 82 Stat. 958187 P.L. 90-553, 82 Stat. 958~~, October 8, 1968~~ (1968); and P.L. 97-186, 96 Stat. 101; and P.L. 97-186, 96 Stat. 101~~, May 25, 1982~~ (1982). The International Center . The International Center
Act “authorizes the Secretary of State to sell or lease to foreign governments and international organizations federal Act “authorizes the Secretary of State to sell or lease to foreign governments and international organizations federal
property located within the International Center along Van Ness Street in Northwest Washington, DC. Development property located within the International Center along Van Ness Street in Northwest Washington, DC. Development
plans for all chanceries in the 47-acre International Center are subject to NCPC’s approval” (plans for all chanceries in the 47-acre International Center are subject to NCPC’s approval” ( NCPC Legislative
Authorities). ).
188 16 U.S.C. 188 16 U.S.C. §470. §470. ~~T he~~The National Historic Preservation Act created a program for preserving national historic National Historic Preservation Act created a program for preserving national historic
properties. NCPC acts as a “properties. NCPC acts as a “ steward of the region’s historic buildings,steward of the region’s historic buildings, districts, landscapes, and views”districts, landscapes, and views” ( (NCPC
Legislative Authority). ).
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Environmental Policy Act,189 District of Columbia Home Rule Act,190 and the Capper-Crampton Environmental Policy Act,189 District of Columbia Home Rule Act,190 and the Capper-Crampton
Act.191 Act.191
State Historic Preservation Office for the District of Columbia
Created pursuant to the National Historic Preservation Act of 1966,192 State Historic Preservation Created pursuant to the National Historic Preservation Act of 1966,192 State Historic Preservation
Officers “administer the national historic preservation program at the State level, review National Officers “administer the national historic preservation program at the State level, review National
Register of Historic Places nominations, maintain data on historic properties that have been Register of Historic Places nominations, maintain data on historic properties that have been
identified but not yet nominated, and consult with Federal agencies.”193 While not a statutory part identified but not yet nominated, and consult with Federal agencies.”193 While not a statutory part
of the memorial process, the National Capital Planning Commission recommends consultation of the memorial process, the National Capital Planning Commission recommends consultation
with the State Historic Preservation Office for the District of Columbia194 as part of the design with the State Historic Preservation Office for the District of Columbia194 as part of the design
approval process.195 approval process.195
American Battle Monuments Commission
The American BattleThe American Battle Monuments Commission was Monuments Commission was ~~original y~~originally created in 1923 to “prepare plans created in 1923 to “prepare plans
and estimates for the erection of suitable memorials to mark and commemorate the services of the and estimates for the erection of suitable memorials to mark and commemorate the services of the
American forces in Europe and erect memorials therein at such places as the commission American forces in Europe and erect memorials therein at such places as the commission ~~shal~~
shall determine, including works of architecture and art in the American cemeteries in Europe.”196 determine, including works of architecture and art in the American cemeteries in Europe.”196
~~General y~~Generally, the commission has statutory authority to design, construct, operate and maintain , the commission has statutory authority to design, construct, operate and maintain
permanent American cemeteries in foreign countries; establish and maintain U.S. military permanent American cemeteries in foreign countries; establish and maintain U.S. military
memorials, monuments and markers where American armed forces have served overseas since memorials, monuments and markers where American armed forces have served overseas since
April 6, 1917.”197 In limited circumstances, the commission has also been tasked with creating April 6, 1917.”197 In limited circumstances, the commission has also been tasked with creating
memorials within the United States. For example, the commission was statutorily authorized to memorials within the United States. For example, the commission was statutorily authorized to
create the World War II Memorial in the District of Columbia.198 create the World War II Memorial in the District of Columbia.198

189 42 U.S.C.189 42 U.S.C. §4321, et. seq. Requires§4321, et. seq. Requires the consideration of environmental impact of federal actions by federal agencies. the consideration of environmental impact of federal actions by federal agencies.
“Under NEPA, NCPC must undertake an environmental review to inform its analysis of project proposals. “Under NEPA, NCPC must undertake an environmental review to inform its analysis of project proposals.
Environment is broadly definedEnvironment is broadly defined by the act to include social, economic, and historic impacts as wellby the act to include social, economic, and historic impacts as well as effects on the as effects on the
natural environment. Beginning at an early natural environment. Beginning at an early ~~po int~~point in its decision-making process, NCPC considers the environmental in its decision-making process, NCPC considers the environmental
and historic aspects of proposed actions that it reviews” (and historic aspects of proposed actions that it reviews” (NCPC Legislative Authorities). For more information on the ). For more information on the
National Environmental Policy Act, see CRSNational Environmental Policy Act, see CRS Report RL33152, Report RL33152, The National ~~Environm ental~~Environmental Policy Act (NEPA):
Background and ~~Im plementation~~Implementation, by Linda Luther. , by Linda Luther.
190 P.L. 93-198, 87 Stat. 774190 P.L. 93-198, 87 Stat. 774~~, December 24, 1973~~ (1973). “NCPC approves District projects in the central area of the city, . “NCPC approves District projects in the central area of the city,
~~reviews and advises~~ reviews and advises on other District projects and the DC elements of the Comprehensive Plan, in addition to on other District projects and the DC elements of the Comprehensive Plan, in addition to
~~reviewing and advising~~ reviewing and advising on amendments to city zoning regulations and on amendments to city zoning regulations and ~~m aps~~maps” (” (NCPC Legislative Authorities). For more ). For more
information on the District of Columbia, see CRSinformation on the District of Columbia, see CRS In Focus IF11571, In Focus IF11571, FY2020 Appropriations: District of ~~Colum bia~~ Columbia, by , by
Joseph V.Joseph V. Jaroscak. Jaroscak.
191 P.L. 71-284, 46 Stat. 482 191 P.L. 71-284, 46 Stat. 482~~, May 29, 1930~~ (1930), as amended by P.L. 79-699, 60 Stat. 960, as amended by P.L. 79-699, 60 Stat. 960~~, August 8, 1946. T he~~ (1946). The Capper- Capper-
Crampton Act provided authority to the National Capital Planning Commission to acquire land for parkway and park Crampton Act provided authority to the National Capital Planning Commission to acquire land for parkway and park
systems in the National Capitol area includingsystems in the National Capitol area including ~~the Geo rge~~ the George Washington Memorial Parkway and other park, parkway, Washington Memorial Parkway and other park, parkway,
and playground land in the District of Columbia. and playground land in the District of Columbia.
192 P.L. 89-665, 80 Stat. 915192 P.L. 89-665, 80 Stat. 915~~, October 15, 1966~~ (1966); 16 U.S.C. §470 ; 16 U.S.C. §470 et. seq. .
193 Advisory Council193 Advisory Council on Historic Preservation, “About the ACHP,” at https://www.achp.gov/about. on Historic Preservation, “About the ACHP,” at https://www.achp.gov/about.
194 For more information on the District of Columbia State Preservation Office, see District of Columbia, Office of 194 For more information on the District of Columbia State Preservation Office, see District of Columbia, Office of
Planning, “Historic Preservation Office,” at http://planning.dc.gov/historicpreservation. Planning, “Historic Preservation Office,” at http://planning.dc.gov/historicpreservation.
195 National Capital Planning Commission, “Appendix A: Steps for Establishing195 National Capital Planning Commission, “Appendix A: Steps for Establishing a Memorial in the Nation’s Capital,” a Memorial in the Nation’s Capital,”
~~Mem orials and Museum s~~Memorials and Museums Master Plan, September 2001, updated 2006, pp. 167-168, at https://www.ncpc.gov/docs/, September 2001, updated 2006, pp. 167-168, at https://www.ncpc.gov/docs/
Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173. Memorials_and_Museums_Master_Plan_full_2001.pdf#page=173.
196 P.L. 534, 42 Stat. 1509 196 P.L. 534, 42 Stat. 1509~~, March 4, 1923~~ (1923); 36 U.S.C. §2101 ; 36 U.S.C. §2101 et seq. .
197 American Battle Monuments Commission, “About Us,” at http://www.abmc.gov/about-us.197 American Battle Monuments Commission, “About Us,” at http://www.abmc.gov/about-us.
198 P.L. 103-32, 107 Stat. 90198 P.L. 103-32, 107 Stat. 90~~, May 25, 1993~~ (1993). .
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Author Information

Jacob R. Straus Jacob R. Straus

Specialist on the Congress Specialist on the Congress

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