Order Code RS20221
Updated November 21, 2006
CRS Report for Congress
Received through the CRS Web
Commemorative Postage Stamps: History,
Selection Criteria, and Revenue Potential
Nye Stevens
Specialist in American National Government
Government and Finance Division
Summary
More than 1,700 commemorative stamps have been issued since the first in 1893.
In recent years they have been marketed to attract non-collectors and children. In 2004,
the U.S. Postal Service (USPS) issued 58 different commemorative stamps.
In considering subjects for commemorative stamps, the USPS Citizens’ Stamp
Advisory Committee, guided by 12 basic criteria, reviews and appraises the
approximately 40,000 proposals submitted for commemoration each year. The
postmaster general (PMG) has the exclusive and final authority to determine both
subject matter and design. A number of resolutions are introduced in Congress each
year urging that consideration be given to a particular subject for commemoration, but
few are passed, and the advisory committee accords them no special status.
The commemorative stamp program contributed an estimated $186 million in
retained revenues for the USPS in 2004.
This report will be updated for each Congress.
The Commemorative Stamp Program
Postage stamps were introduced in 1847, but for a half century the designs were
limited to images of Presidents and founding fathers. The first commemorative postage
stamps were issued in 1893 to mark the Columbian Exposition of that year. The success
of the Columbian stamp series prompted the Post Office Department to continue offering
stamps to commemorate historic events and places. The commemorative stamp became
a fixture of mail service, contributing to civic education and drawing millions into the
hobby of philately.
When USPS was established in 1971 with an expectation that it would be self-
supporting, the revenue potential of commemorative issues became a more prominent
consideration. Social issues such as conservation, employment of the handicapped, and
Congressional Research Service ˜ The Library of Congress

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higher education were added as commemorative features to the traditional mix of
historical and patriotic themes. In 1993, USPS released the Elvis Presley stamp, which
generated unprecedented enthusiasm among postal customers (as distinguished from
collectors) and still holds the record for stamps saved — 124 million with a face value of
$35.9 million.
The USPS has been criticized by collectors for issuing too many commemorative
stamps, as well as for producing too many stamps of a particular issue. Concerns have
been expressed that too many stamps diminished the value of the stamps to the hobbyist
and had the potential to drive collectors away. Under Postmaster General (PMG) Marvin
Runyon, a former collector himself, it became USPS policy to produce and market fewer
commemorative stamps. However, in the effort to expand and appeal to a wider range of
interests, USPS in the late 1990s began designing stamps not only to attract non-
collectors, but also children. This expansion has increased the number of commemorative
stamps produced and marketed. The number of separate commemorative stamps issued
rose from 26 issued in 1997, to 81 in 1998, and 121 in 2002. In 2002, several of the
issues were multi-stamp panes, for example the 50-stamp issue with a retro postcard
design featuring “greetings” from each state. Several of the stamps issued in recent years
were designed for children (e.g., Looney Tunes, Peanuts, teddy bears, and Bright Eyes,
a grouping of various bright-eyed animals and fish). In 2004, there were 28 separate
issues. Several issues featured multiple designs, including the issues portraying the
Pacific coral reef (10 designs), art of the American Indian (10 designs) and American
choreographers (4 designs), so the total number of separate stamps was 58.
Errors and subject selection in commemorative stamps have sometimes generated
controversy. For example, in 1994 postal officials belatedly discovered that a stamp
featuring wild west star Bill Pickett depicted the wrong man. To prevent such
occurrences in the future, a historian has been hired by the USPS to authenticate all
chosen stamp designs. A widely-circulated news story in 2000 pointed out that of 1,722
commemorative stamps issued since 1893, only 133 (8%) featured women or women’s
issues.1 According to a widely-read stamp publication, the PMG was “stunned” by the
negative reaction to the stamp issued in honor of Frida Kahlo in 2001; Ms. Kahlo, a
Mexican artist and the wife of Diego Rivera, was also a communist, and the stamp was
strongly criticized by Senator Jesse Helms.2
The Citizens’ Stamp Advisory Committee
The Citizens’ Stamp Advisory Committee was established by the PMG in March
1957. Before it was established, political influence often determined what stamps were
issued.3 The committee operates under 39 U.S.C. 404(a) (4-5), and its primary purpose
1 Marilyn Gardner, “A Stamp of Approval on Stamps About Women,” Christian Science
Monitor, August 16, 2000.
2 Charles Snee, “Stamp Committee OK’d Edwards Stamp; PMG Potter Cut Stamp from 2003
Program,” Linn’s Stamp News, April 5, 2004, p. 8.
3 U.S. Congress, Subcommittee on International Security, Proliferation, and Federal Services,
Senate Committee on Governmental Affairs, The Issuance of Semipostal Stamps by the U.S.
(continued...)

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is to provide “philatelic, history, and artistic judgment and experience” in the selection
and design of commemorative stamps. The committee consists of 15 members, none of
whom is a postal employee, and whose backgrounds reflect a wide range of educational,
artistic, historical, and professional knowledge. Members are appointed and serve at the
pleasure of the PMG for three-year staggered terms, with no member able to serve more
than four terms. Current members include Joan Mondale, actor Karl Malden, graphic
designer Michael Brock, Harvard professor Henry Louis Gates, Jr., and former basketball
coach Richard (“Digger”) Phelps. No member may serve more than three terms. The
PMG appoints one member to serve as chairperson and another member as vice
chairperson, each serving two-year terms.
The committee meets quarterly in Washington, DC, or at the call of the committee
chairperson, to review the thousands of suggestions that are received by the USPS. Its
meetings are not public. The committee itself employs no staff. To speed up the
committee’s task, research employees of the stamp development group analyze all stamp
subject suggestions upon initial receipt. Subcommittees of staff researchers are formed
on special themes such as sports, medicine, transportation, black heritage, and performing
arts to provide additional background and research. Occasionally, commemorative ideas
require considerable research to explore an idea’s merit or to devise a strong visual
appeal. All supporting materials are then presented to the committee, along with any
suggestions. While the primary responsibility of the committee is to review and appraise
all proposals submitted for commemoration, the PMG has the exclusive and final
authority to determine both the subject matter and the designs for U.S. postage stamps.
Although the advisory committee recommended in 2003 that a stamp be commissioned
for tercentenary of the birth of firebrand 18th century theologian Jonathan Edwards, PMG
John Potter refused to approve the recommendation. According to Linn’s Stamp News,
he “feared those who would complain about honoring a politically incorrect, dead white
male who was also a theologian.”4
Members of Congress are often asked by constituents to support a particular
commemorative theme or event. In doing so, a Member may choose to write the PMG
expressing support for a particular stamp proposal. This usually results in a referral to the
advisory committee. It is not uncommon for Members to introduce congressional
resolutions encouraging the commemoration of a specific subject. In the 108th Congress,
28 resolutions for this purpose were introduced, 22 in the House and 6 in the Senate.
None of the resolutions emerged from committee. The last time such a resolution was
agreed to was in the 106th Congress, when two resolutions were agreed to in the Senate:
S.Res. 218, expressing the sense of the Senate that a stamp should be issued to recognize
the 4-H Youth Development Program’s centennial, and S.Res. 371, expressing the sense
of the Senate that a stamp should be issued to honor sculptor Korczak Ziolokowski and
the Crazy Horse memorial he created. While considered by the advisory committee,
neither subject was recommended for issuance. Congressional endorsement of a proposal
accords it no special status in the committee’s deliberations.
3 (...continued)
Postal Service, 106th Cong., May 25, 2000 (Washington: GPO, 2000), p. 20.
4 Charles Snee, “Stamp Committee OK’d Edwards Stamp; PMG Potter Cut Stamp from 2003
Program,” Linn’s Stamp News, April 5, 2004, p. 8.

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Rule 19 of the House Committee on Government Reform, as adopted for recent
Congresses, has discouraged the prospect that House resolutions urging postal
commemoration will be considered: For the 109th Congress, the rule reads:
The committee has adopted the policy that the determination of the subject
matter of commemorative stamps and new semi-postal issues is properly
for consideration by the Postmaster General and that the committee will
not give consideration to legislative proposals for the issuance of
commemorative stamps and new semi-postal issues. It is suggested that
recommendations for the issuance of commemorative stamps be submitted
to the Postmaster General.
Criteria for Selecting Commemorative Stamps
The Citizens’ Stamp Advisory Committee receives about 40,000 nominations each
year, and gives no special attention to those submitted by Congress or other legislative
bodies. As a basis for its recommendation to the Postmaster General, the advisory
committee uses 12 criteria when considering commemorative stamp subjects. They are:
! It is a general policy that U.S. postage stamps and stationery primarily
will feature American or American-related subjects.
! No living person shall be honored by portrayal on U.S. postage.
! Commemorative stamps or postal stationery items honoring individuals
usually will be issued on, or in conjunction with significant anniversaries
of their birth, but no postal item will be issued sooner than five years
after an individual’s death.
! Events of historical significance shall be considered for commemoration
only on anniversaries in multiples of 50 years.
! Only events and themes of widespread national appeal and significance
will be considered for commemoration. Events or themes of local or
regional significance may be recognized by a philatelic or special postal
cancellation, which may be arranged through the local postmaster.
! Stamps or postal stationery items shall not be issued to honor fraternal,
political, sectarian, or service/charitable organizations. Stamps or
stationery shall not be issued to promote or advertise commercial
enterprises or products. Commercial products or enterprises might be
used to illustrate more general concepts related to American culture.
! Stamps or postal stationery items shall not be issued to honor cities,
towns, municipalities, counties, primary or secondary schools, hospitals,
libraries, or similar institutions. Due to the limitations placed on annual
postal programs and the vast number of such locales, organizations, and
institutions, singling out any one for commemoration would be difficult.

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! Requests for observance of statehood anniversaries will be considered for
commemorative postage stamps only at intervals of 50 years from the
date of the state’s entry into the Union. Requests for observance of other
state-related or regional anniversaries will be considered only as subjects
for postal stationery, and only at intervals of 50 years from the date of the
event.
! Stamps or postal stationery items shall not be issued to honor religious
institutions or individuals whose principal achievements are associated
with religious undertakings or beliefs.
! Stamps with a surcharge for the benefit of a worthy cause, referred to as
“semipostals,” shall be issued in accordance with P.L. 106-253.
Semipostals will not be considered as part of the commemorative
program and separate criteria will apply.5
! Requests for commemoration of significant anniversaries of universities
or other institutions of higher education shall be considered only for
stamped cards and only in connection with the 200th anniversaries of their
founding.
! No stamp shall be considered for issuance if one treating the same subject
has been issued in the past 50 years. The only exceptions to this rule will
be those stamps issued in recognition of traditional themes such as
national symbols and holidays.
Other than applying these criteria, the USPS has no formal procedure or required
format for submitting stamp proposals, which can be by letter, post card, or petition. After
a proposal is determined not to violate the USPS criteria, each proposed subject is listed
on the committee’s agenda for its next meeting. In-person appeals by stamp proponents
are not permitted. Proponents are not advised if a subject has been approved until a
general announcement is made to the public.
The USPS encourages the submission of commemorative postage stamp subjects to
the committee at least three years prior to the proposed date of issuance, to allow sufficient
time for consideration, design, and production. Suggestions may be addressed to the
Citizens’ Stamp Advisory Committee, c/o Stamp Development, U.S. Postal Service, 475
L’Enfant Plaza, S.W., Room 5670, Washington, DC 20260-2437.
Revenue-Raising Potential of Commemorative Stamps
In order to encourage stamp collecting, USPS maintains philatelic centers in more
than 300 population centers in the United States and in 7 foreign countries. While it is
feasible to track the gross revenues USPS gets from the sale of commemorative issues,
determining how many stamps are saved (i.e. not used for postage) is difficult. This is
5 For a discussion of the semipostal stamp program, see CRS Report RS20921, Semipostal
Stamps: Authorization, Revenue, and Selection Process, by Nye Stevens.

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because commemorative sales and usage are interchangeable with, and not counted
separately from, other stamps and other forms of postage.

In an attempt to gain some knowledge of the contribution its commemorative
program makes to its bottom line, USPS has tried a number of approaches to measure the
retention rate for commemorative stamps. Before 1989, clerks collected “intent to retain”
data from customers on six to eight issues per year, and projected retention revenues from
the responses. In the following years, USPS launched quarterly surveys of a representative
sample of approximately 60,000 households, asking them to report the stamps they bought
and those they intended to retain. This was an expensive approach, however, in part
because 84% of the households reported that they retained no stamps and thus analysts
could learn little from them about relative appeal of various types of issues. In 1999,
USPS launched what it termed a more cost-effective design using 10,250 quarterly
surveys, 61% of which were to go to households pre-screened (by a market research
company) to be “stamp retaining households.”
The resulting revenue estimates are still inexact and, because of frequent
methodological changes, cannot be directly compared. However, there seems to be ample
evidence that the commemorative postage stamp program provides net revenues measured
in the hundreds of millions of dollars for USPS. According to USPS estimates, retention
revenues for the past seven years have been as follows:
Year
Retained revenues
1998
$189.9 million
1999
$215.1 million
2000
$271.8 million
2001
$198.6 million
2002
$173.8 million
2003
$156.1 million
2004
$186.2 million
Source: United States Postal Service.
A major contributor to retained revenues in 1998, 1999, and 2000 was the
“Celebrate the Century” series, commemorating each decade of the 20th Century with a
multi-stamp pane. While the citizens’ advisory committee recommended subjects for
the first five decades — 1900 through 1940 — subjects for the remaining five decades
were selected by nationwide balloting of the American public.
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