Commemorations in Congress: Options for
Honoring Individuals, Groups, and Events
Updated July 1, 2021
Congressional Research Service
https://crsreports.congress.gov
R43539

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Summary
Since its inception, Congress has used commemorative legislation to express public gratitude for
distinguished contributions; dramatize the virtues of individuals, groups, and causes; and
perpetuate the remembrance of significant events. Commemoratives have become an integral part
of the American political tradition. Congress has used them to authorize the minting of
commemorative coins and Congressional Gold Medals; fund monuments and memorials; create
federal holidays; establish commissions to celebrate important anniversaries; and name public
works, scholarships, endowments, fel owships, and historic sites.
Current congressional practice for commemoratives includes a House Rule (Rule XII, clause 5,
initial y adopted during the 104th Congress [1995-1996]) that precludes the introduction or
consideration of legislation that commemorates a “remembrance, celebration, or recognition for
any purpose through the designation of a specified period of time.” Such a rule does not exist in
the Senate. This House Rule, together with the passage of more restrictive laws, rules, and
procedures governing the enactment of several other types of commemoratives, has substantial y
reduced the time Congress spends considering and adopting such measures.
This report summarizes the evolution of commemorative legislation as wel as the laws, rules, and
procedures that have been adopted to control the types of commemoratives considered and
enacted. Included in the discussion of commemorative options for Congress are those that require
legislation, such as
 naming federal buildings, including post offices and other federal structures;
 postage stamps;
 commemorative coins;
 Congressional Gold Medals;
 monuments and memorials, both in the District of Columbia and elsewhere;
 commemorative commissions;
 commemorative observances;
 federal holidays; and
 requesting presidential proclamations.
Also included are commemorative options that do not require legislation. These include
 certificates of recognition;
 floor speeches; and
 flags flown over the U.S. Capitol.
Congressional Research Service

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Introduction
Since its inception, Congress has used commemoratives to express public gratitude for
distinguished contributions; dramatize the virtues of individuals, groups, and causes; and
perpetuate the remembrance of significant events. The first commemoratives were primarily in
the form of individual y struck medals. During the 19th century, Congress gradual y broadened the
scope of commemoratives by recommending special days for national observance; funding
monuments and memorials; creating federal holidays; authorizing the minting of commemorative
coins; and establishing commissions to celebrate important anniversaries. In the 20th century, it
became increasingly commonplace for Congress to use commemorative legislation to name
buildings and other public works, scholarships, endowments, fel owships, and historic sites.
This report provides a discussion of commemorative options available to Congress.1 These
commemorative options are divided into those that require legislation and those that do not. Types
of commemoratives requiring legislative action include naming federal buildings, including post
offices; creating postage stamps; minting commemorative coins; awarding of Congressional Gold
Medals; authorizing monuments and memorials, both in the District of Columbia and on federal
land in other parts of the United States; establishing commemorative commissions; authorizing
commemorative observances and federal holidays; and requesting presidential proclamations.
Nonlegislative options include sending certificates of recognition, making floor speeches, and
sending flags flown over the Capitol Building to constituents.
Efforts to Curb Commemoratives
Beginning in the 1960s, Congress undertook several initiatives to reduce the number of
commemoratives proposed through legislation. These initiatives were in response to concern that
the legislative time spent on commemorative measures was excessive.2 Efforts to curb
commemoratives can be divided into two categories: creating an advisory commission to
recommend appropriate commemorations and amending congressional rules on the introduction
and consideration of commemorative legislation.
Advisory Commission
Between the 89th Congress (1965-1966) and the 104th Congress (1995-1996), several proposals
were introduced to shift the responsibility of recommending commemorative celebrations to a
presidential commission. First introduced in 1966, the proposed Commission on National
Observances and Holidays would have reviewed proposals for national observances and “report
to the President with respect to any proposal for a national observance which, in the opinion of

1 For analysis of commemorative trends between the 93rd Congress (1973-1974) and the 115th Congress (2017-2018),
see CRS Report R46644, Com m emorative Legislation in Congress: Trends and Observations, 93rd Through 115th
Congresses, by Jacob R. Straus and Jared C. Nagel.
2 Roger H. Davidson, “T he New Centralization on Capitol Hill,” The Review of Politics, vol. 50, no. 3 (Summer 2008),
p. 353; and Craig Volden and Alan E. Wiseman, “ Breaking Gridlock: T he Determinants of Health Policy Change in
Congress,” Journal of Health Politics, Policy and Law, vol. 36, no. 2 (2011), p. 236.
Congressional Research Service

1

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

the Commission, is of national significance.”3 In both the 89th Congress and the 90th Congress
(1967-1968),4 the House passed measures, but the Senate took no further action.5
House Ban on Commemorative Legislation
In the 104th Congress (1995-1996), the House adopted a new rule to reduce the number of
commemorative bil s and resolutions introduced and considered by the chamber. House Rule XII,
clause 5, prohibits the introduction and consideration of date-specific commemorative legislation.
House Rule XII, Clause 5
As part of the rules adopted by the 104th Congress,6 House Rule XII was amended to preclude the
introduction or consideration of any bil , resolution, or amendment that “establishes or expresses
a commemoration.” The rule, which is stil in effect, defines a commemoration as any
“remembrance, celebration, or recognition for any purpose through the designation of a specified
period of time.” Further, in the House Rules Committee’s section-by-section analysis of the
House Rules resolution (H.Res. 6, 104th Congress), the following explanation was provided of the
rule’s intent:
The new ban on date-specific commemorative measures or amendments applies to both the
introduction and consideration of any measure containing such a commemorative. This is
intended to include measures in which such a commemorative may only be incidental to
the overall purpose of the measure. Such measures will be returned to the sponsor if they
are dropped in the legislative hopper. The prohibition against consideration also extends to
any measures received from the Senate which contain date-specific commemorative [sic].
While it does not block their receipt from the other body, it is intended that such measures
would not be referred to the appropriate committee of the House or be considered by the
House. Instead, they would simply be held at the desk without further action. Should such
a commemorative be included in a conference report or Senate amendment to a House bill,
the entire conference report or Senate amendment would be subject to a point of order.
While the ban does not apply to commemorative [sic] which do not set aside a specified
period of time, and instead simply call for some form of national recognition, it is not the
intent of the rule that such alternative forms should become a new outlet for the
consideration of such measures. Thus, while they could be referred to an appropriate
committee, it is not expected that such committees should feel obligated or pressured to
establish special rules for their release to the House floor. Nor should it be expected that
the Rule [sic] Committee should become the new avenue for regular waivers of the rule
against date specific commemorative [sic]. Such exceptions should be limited to those rare
situations warranting special national recognition as determined by the Leadership.7

3 “Commission on National Observances and Holidays,” Congressional Record, vol. 112, part 18 (October 3, 1966), p.
24828. T he commission would not have been allowed to make recommendations calling for a national observance for
any fraternal, political, or religious organization, or a commercial enterprise or product.
4 “Commission on National Observances and Holidays,” Congressional Record, vol. 113, part 6 (March 20, 1967), pp.
7258-7263.
5 T he proposed commission was introduced in six succeeding Congresses beginning in the 98 th Congress (1983-1984).
T hese proposals were each called the National Commemorat ive Events Advisory Act and were introduced as H.R.
4571 (98th Congress); H.R. 692 (99th Congress); H.R. 998 (100th Congress); H.R. 539 (101st Congress); S. 1112, H.R.
68, and H.R. 1882 (102nd Congress); H.R. 624 (103rd Congress); and S. 1236 (104th Congress). None of these proposals
was reported out of committee.
6 “Ban on Commemoratives,” Congressional Record, daily edition, vol. 141 (January 4, 1995), pp. H29-H30.
7 “Rules of the House,” Congressional Record, vol. 141, part 1 (January 4, 1995), p. 476.
Congressional Research Service

2

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

From the 104th to the 109th and the 112th to the 115th Congresses, the Republican Party held the
majority of seats in the House. During this time, consideration of commemorative legislation w as
also effectively governed by a House Republican Conference rule. Conference Rule 28(a)(6)
general y prohibited the Republican leader from scheduling certain commemorative bil s and
resolutions for floor consideration under suspension of the rules.8 While party rules are not
enforceable by points of order on the House floor, the rule arguably reflected a reluctance on the
part of the majority party during this period to schedule any legislation with commemorative
intent.9
The Democratic Party, which holds the majority of House seats in the 117th Congress and
therefore is responsible for scheduling floor action, has also instituted protocols for the
scheduling of commemorative legislation. The majority leader’s protocols for the 117th Congress
state that
the Majority Leader shall not schedule any bill or resolution for consideration that
expresses appreciation, commends, congratulates, celebrates, recognizes the
accomplishments of, or celebrates the anniversary of, an entity, event, group, individual,
institution, team or government program; or acknowledges or recognizes a period of time.10
Committee Rules
In addition, in the 114th Congress, the House Committee on Oversight and Government Reform
(which has jurisdiction over holidays and celebrations) first adopted a committee provision.
Retained in Oversight and Reform Committee rules in the 117th Congress, Rule 13 covers three
types of commemoratives: stamps, postal naming legislation, and resolutions. It states,
(a) Commemorative Stamps. The determination of the subject matter of commemorative
stamps and new semi-postal issues is properly for consideration by the Postmaster General,
and the Committee will not give consideration to legislative proposals specifying the
subject matter of commemorative stamps and new semi-postal issues. It is suggested that
recommendations for the subject matter of stamps be submitted to the Postmaster General.
(b) Postal Naming Bills. The consideration of bills designating facilities of the United
States Postal Service shall be conducted so as to minimize the time spent on such matters
by the Committee and the House.
(c) Resolutions. The Chair of the Committee shall not request to have scheduled any
resolution for consideration under suspension of the Rules, which expresses appreciation,
commends, congratulates, celebrates, recognizes the accomplishments of, or celebrates the

8 U.S. Congress, House Republican Conference, “Conference Rules.” In the 117th Congress, this is Rule 29(a)(6) of the
party conference rules. See https://www.gop.gov/conference-rules-of-the-117th-congress/. Another portion of the rule
allowed a waiver to be granted by a majority of the party’s elected leadership.
9 While in the majority, the House Republican Conference also issued leadership protocols “intended to guide the
majority leadership in the scheduling and consideration of legislation on the House floor,” indicating that a “ resolution
of bereavement, or condemnation, or which calls on others (such as a foreign government) to take a particular action,
but which does not otherwise violate the provisions of [Republican Conference] Rule 28 is eligible to be scheduled
under suspension of the Rules.” For those leadership protocols, issued November 1, 2016, see “Floor Protocols” at
https://www.republicanleader.gov/protocols/.
10 U.S. Congress, House, Majority Leader Steny Hoyer, “11 7th Congress Legislative Protocols,” at
https://www.majorityleader.gov/content/117th-congress-legislative-protocols. However, the protocols also state that a
“resolution of bereavement, or condemnation, or which calls on others to take a particular action, is eligible to be
scheduled for consideration.”
Congressional Research Service

3

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

anniversary of, an entity, event, group, individual, institution, team or government
program; or acknowledges or recognizes a period of time for such purposes.11
In the 115th Congress, the committee also issued additional guidance that “in accordance with the
intent of this rule, it wil be the policy of the Committee that resolutions deemed to fit these
criteria shal not be considered by the Committee.”12 In the 117th Congress, the Committee on
Oversight and Reform adopted similar guidance prohibiting the consideration of certain
commemorative measures.13
Past Waiver of House Rule XII
Since House Rule XII, clause 5, was adopted in the 104th Congress, it has been waived by
unanimous consent on at least one occasion. Specifical y, the “House by unanimous consent
waived the prohibition against introduction of a certain joint resolution specified by sponsor and
title proposing a commemoration,”14 to al ow for the consideration of H.J.Res. 71 (107th
Congress, 2001-2002), legislation establishing Patriot Day as a day of remembrance for
September 11, 2001.15
Overview of Options Discussed
Congress’s commemorative options fal into two general categories: legislative options and
nonlegislative options. Al legislative options require passage of a bil or resolution by the House,
the Senate, or both chambers, while nonlegislative options can be accomplished by individual
offices without legislative approval. Legislative options include naming federal buildings,
designing postage stamps, minting commemorative coins, awarding congressional gold medals,
creating monuments and memorials, designating commemorative observances, establishing
federal holidays, and requesting presidential proclamations. Nonlegislative options include
creating individual office awards, giving floor speeches, sending official letters, and ordering
flags.

11 U.S. Congress, House Committee on Oversight and Reform, “Rule 13 —Consideration of Certain Bills and
Resolutions,” Committee on Oversight and Reform 117th Congress,” 117th Cong., 1st sess., p. 7, at
https://oversight.house.gov/sites/democrats.oversight.house.gov/files/COR%20-
%20Rules%20%28117th%29.pdf#page=7.
12 U.S. Congress, House Committee on Oversight and Government Reform, “Commemorative Resolutions, Postal
Facility Naming Bills, and Semi-Postal and Commemorative Stamp Bills: Procedures in the 115 th Congress,” Dear
Colleague Letter, September 5, 2017.
13 U.S. Congress, House Committee on Oversight and Reform, “Committee on Oversight and Reform; Procedures for
Certain Bills,” Dear Colleague Letter, April 29, 2021, at https://e-dearcolleague.house.gov/Home/Preview?DCID=
332170. For similar guidance in the 116th Congress, see U.S. Congress, House Committee on Oversight and Reform,
“Policies of the Committee on Commemorative Resolutions, Postal Facility Naming Bills, Semi-Postal Measures, and
Bills Creating Commemorative Stamps,” Dear Colleague Letter, May 15, 2019, at https://e-dearcolleague.house.gov/
Home/Preview?DCID=262120.
14 U.S. Congress, House, Constitution, Jefferson’s Manual, and Rules of the House of Representatives of the United
States, One Hundred Fifteenth Congress, prepared by T homas J. Wickham, parliamentarian, 114 h Cong., 2nd sess.,
H.Doc. 114-192 (Washington: GPO, 2017), §823, p. 632.
15 “Authorizing Introduction of Joint Resolution Designating September 11 as United We Stand Remembrance Day,”
Congressional Record, daily edition, vol. 147 (October 24, 2001), p. H7300; and “ Making in Order on T hursday,
October 25, 2001, Consideration of Joint Resolution Designating September 11 as United We Stand Remembrance
Day,” Congressional Record, daily edition, vol. 147 (October 24, 2001), p. H7300.
Congressional Research Service

4

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Legislative Options
Several legislative options exist to honor individuals, groups, and historic events. For each of
these commemoratives, action requires passage of a bil or resolution by the House, the Senate, or
both chambers. In some cases, House and Senate committees, or the majority party, have specific
rules or guidance associated with commemoratives. These include requiring a minimum number
of cosponsors before the bil can be considered by the relevant committee, prohibitions against
commemorating sitting Members of Congress, and some restrictions on commemorating living
persons.
For a detailed discussion on commemorative measures, including the frequency and
categorization of commemorations by legislation, see CRS Report R46644, Commemorative
Legislation in Congress: Trends and Observations, 93rd Through 115th Congresses, by Jacob R.
Straus and Jared C. Nagel.
Naming Federal Buildings
In each Congress, many bil s are introduced to name a post office or other federal building in
honor or in memory of local y esteemed individuals, deceased elected officials, fal en military
personnel, and celebrities. To name a post office or other federal building after an individual an
act of Congress is required. This section details congressional involvement in the naming of post
offices and other federal buildings.
Post Offices
Legislation naming post offices for persons has become a very common practice. Legislation has
named post offices for a variety of persons, including local y esteemed individuals (e.g., Sister
Ann Keefe),16 deceased elected officials (e.g., President Ronald Reagan),17 fal en Armed Forces
personnel (e.g., Army Specialist Matthew Troy Morris),18 and celebrities (e.g., Bob Hope).19
Post office naming statutes commonly identify the address of the postal facility and provide for
naming (“designating”) the facility.20 Renaming a post office through legislation, however, does
not result in the new name being etched or painted on the facade of the building or signs. Further,
for operational and logistical reasons, a post office that has been dedicated or renamed wil keep
its original name and geographical designation within USPS’s addressing system. Instead, to
commemorate the designation, a smal plaque noting the designee and designation is instal ed
within the post office.
Over the years, both the House and Senate have adopted policies and practices for considering
and enacting post office naming bil s. These policies and practices have varied from Congress to

16 P.L. 114-15, 129 Stat. 199, May 22, 2015.
17 Several post offices have been named after President Ronald Reagan. T hey include Dixon, IL ( P.L. 111-235, 124
Stat. 2495, August 16, 2010); Billings, MT (P.L. 108-143, 117 Stat. 1877, December 2, 2003); and West Melbourne,
FL (P.L. 107-7, 1159 Stat. 9, April 12, 2001).
18 P.L. 112-107, 126 Stat. 328, May 15, 2012.
19 P.L. 108-120, 117 Stat. 1334, November 11, 2003.
20 Post office naming statutes also include a “references” provision. T he practical effect of this provision is that it
informs agencies that they need not amend or replace existing documentation that refers to the designated post office by
another name. T hus, for example, the U.S. Postal Service would not need to change its internal documents to reflect the
post office’s renaming.
Congressional Research Service

5

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Congress.21 Currently, the House Oversight and Reform Committee Rule 13 states that the
consideration of post office naming bil s “shal be conducted so as to minimize the time spent on
such matters by the Committee and the House.”22 Additional y, the House committee has issued a
“Dear Colleague” letter stating its policies on the consideration of post office naming bil s and
other postal legislation. It states the following:
The Committee will not consider legislation designating post office buildings for living
persons, except: bills naming facilities after former U.S. Presidents or Vice Presidents,
former Members of Congress over 70 years of age, former state or local elected officials
over 70 years of age, former judges over 70 years of age, or wounded veterans of any age.
The Committee will not consider legislation designating post office buildings for a person
for whom Congress already named a post office building.
Postal facility naming bills should have the co-sponsorship of the entire state delegation
where the post office is located.
Members sponsoring postal facility naming bills must provide to the Committee
documentation summarizing the designee’s biographical information and background.
Offices may request biographical information on a designee from the Congressional
Research Service. Offices must also provide documentation that the designee’s family
supports the bill, in most cases.
Postal facility naming bills will be considered by the Committee only after the required
criteria are met in full.23
Similarly, under its current rules, the Senate Homeland Security and Governmental Affairs
Committee (HSGAC)
[will] not consider any legislation that would name a postal facility for a living person with
the exception of bills naming facilities after former Presidents and Vice Presidents of the
United States, former Members of Congress over 70 years of age, former State or local
elected officials over 70 years of age, former judges over 70 years of age, or wounded
veterans.24
Once post office naming legislation is reported by the House and Senate committees, the
legislation, if considered on the floor, tends to pass the House under suspension of the rules25 and
the Senate via unanimous consent.26
For more information on naming post offices, including sample legislation, see CRS Report
RS21562, Naming Post Offices Through Legislation, by Michel e D. Christensen.

21 U.S. Congress, House Committee on Oversight and Reform, “Rule 13,” Committee on Oversight Rules, 117th Cong.,
1st sess., p. 7, at https://oversight.house.gov/sites/democrats.oversight.house.gov/files/COR%20-
%20Rules%20%28117th%29.pdf .
22 Ibid.
23 U.S. Congress, House Committee on Oversight and Reform, “ Committee on Oversight and Reform; Procedures for
Certain Bills,” Dear Colleague Letter, April 29, 2021, at https://e-dearcolleague.house.gov/Home/Preview?DCID=
332170.
24 U.S. Congress, Senate Committee on Homeland Security and Governmental Affairs, “Rules of Procedure of the
Committee on Homeland Security and Governmental Affairs,” 117 th Cong., 1st Sess., S.Prt. 117-7 (March 2021), pp. 9-
10, at https://www.congress.gov/117/cprt/SPRT 43473/CPRT-117SPRT 43473.pdf#page=15.
25 For more information on suspension of the rules procedures, see CRS Report 98-314, Suspension of the Rules in the
House: Principal Features, by Elizabeth Rybicki.
26 For example, see P.L. 112-107, 126 Stat. 328, May 15, 2012, which designated a post office in Cedar Park, T X, as
the “Army Specialist Matthew T roy Morris Post Office Building.”
Congressional Research Service

6

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Other Federal Buildings
Bil s to name other federal buildings or facilities may be considered and reported in any
committee, typical y in relation to the agencies under each committee’s jurisdiction. Legislation
naming a veterans medical facility, for example, would normal y originate in the Veterans’ Affairs
(VA) committees in the House and the Senate. Legislation naming courthouses—which are
constructed and maintained by the General Services Administration (GSA)—is considered by the
committees with jurisdiction over GSA, the House Transportation and Infrastructure Committee
(T&I) and the Senate Environment and Public Works Committee (EPW). Historic al y, the large
majority of nonpostal facilities are named through legislation originating in these four
committees: VA and T&I in the House, and VA and EPW in the Senate. Occasional y, legislation
is introduced to name buildings held by other agencies, such as National Aeronautical and Space
Administration (NASA) training facilities. NASA is under the jurisdiction of the Science, Space
and Technology Committee in the House (SST) and the Commerce, Science, and Transportation
Committee in the Senate (CST), so naming legislation for NASA facilities is considered by these
committees.
The military services (e.g., Army, Navy, Air Force) name Department of Defense (DOD)
buildings. Each service has its own naming criteria and approval process, and these naming
decisions do not typical y go through Congress.27
Committees vary as to whether they have specific rules regarding the introduction of naming
legislation. Some have written naming rules. In the 117th Congress, for example, the House
Veterans’ Affairs Committee has adopted language in its committee rules that establishes specific
criteria for naming legislation.28 These rules prohibit naming a VA facility after an individual
unless the individual is deceased and is
 a veteran who (i) was instrumental in the construction of the facility to be named,
or (i ) was a recipient of the Medal of Honor, or, as determined by the chairman
and ranking minority member, otherwise performed military service of an
extraordinarily distinguished character;
 a Member of the U.S. House of Representatives or Senate who had a direct
association with such facility;
 an Administrator of Veterans Affairs, a Secretary of Veterans Affairs, a Secretary
of Defense or of a service branch, or a military or other federal civilian official of
comparable or higher rank; or
 an individual who, as determined by the chairman and ranking minority member,
performed outstanding service for veterans.
In addition, each Member of the congressional delegation representing the state in which the
designated facility is located must indicate, in writing, his or her support of the bil . Finally, the
pertinent state department or chapter of each congressional y chartered veterans’ organization
with a national membership of at least 500,000 must indicate, in writing, its support of the bil .

27 For more information on Department of Defense naming policies, see section “Naming Policy by Military Service”
in CRS Insight IN10756, Confederate Nam es and Military Installations, by Barbara Salazar T orreon.
28 U.S. Congress, House Committee on Veterans’ Affairs, “Rule 10” Rules of the Committee on Veterans’ Affairs U.S.
House of Representatives for the 117th Congress, p. 11, at https://veterans.house.gov/imo/media/doc/
2021.02.17%20House%20Veterans%20Affairs%20Committee%20117th%20Rules.pdf#page=11.
Congressional Research Service

7

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

The committees with jurisdiction over courthouse naming in the 117th Congress—T&I in the
House and EPW in the Senate—do not have identical written rules. Currently, T&I does not have
a formal rule pertaining to naming legislation, although it did have written policies regarding
naming legislation in previous Congresses.29 While no longer part of the committee’s written
rules, some or al of these requirements may stil be in place—albeit informal y—and enforced.
Contacting the committee is the only way to determine what informal rules are in place, if any.
EPW, on the other hand, has its requirements in committee rules.30 According to Rule 7(d) the
committee may not name a building for any living person, except
 a former President or Vice President of the United States;
 a former Member of Congress over 70 years of age;
 a former Supreme Court Justice over 70 years of age;
 a federal judge who is fully retired and over 75 years of age; or
 a federal judge who has taken senior status and is over 75 years of age.31
As with T&I, neither SST in the House nor CST in the Senate has written rules pertaining to
naming legislation.
Postage Stamps
Each year, the U.S. Postal Service (USPS) issues commemorative stamps to celebrate persons,
anniversaries, and historical and cultural phenomena. For example, USPS has issued stamps for
Lena Horne, President John F. Kennedy, the Chinese Lunar New Year, and Star Trek.32 The USPS
issues these stamps at its own statutory discretion and operates the program as a profit-making
enterprise.33
Legislation to direct USPS to issue a stamp to commemorate persons, historical occurrences, and
groups is occasional y introduced. CRS has been able to identify one instance when a special
series commemorative stamp was issued pursuant to legislation. In 1947, Congress directed the

29 U.S. Congress, House Committee on T ransportation and Infrastructure, Subcommittee on Public Buildings and
Economic Development, The Nam ing of Public Buildings, internal committee memorandum dated July 16, 1995. T his
memorandum identified criteria for the subcommittee to consider in nam ing a public building. T hese criteria were that
the building must be under the control of the General Services Administration (GSA) or the Architect of the Capitol
(leased buildings are normally not named unless the building is under a lease purchase autho rity); the building must not
currently be named for an individual; subcommittee consideration does not occur unless the Member in whose district
the building is located sponsors the legislation or otherwise consents to the naming; age requirements are not
applicable; priority is not given to any particular class or occupation of individuals; the subcommittee generally does
not name buildings for sitting Members of Congress; and the person for whom the building is named must have a
“good reputation.”
30 U.S. Congress, Senate Committee on Environment and Public Works, Committee Rules, at
https://www.epw.senate.gov/public/index.cfm/committee-rules.
31 Ibid.
32 U.S. Postal Service, “Postal Store: Commemoratives,” at https://store.usps.com/store/results/stamps/commemorative/
_/N-9y93lvZ1edrpld.
33 39 U.S.C. §404(a) (4-5); and CRS Report RS20221, Commemorative Postage Stamps: History, Selection Criteria,
and Revenue Potential, by Michelle D. Christensen. USPS profits when commemorative stamp buyers save, rather than
use, the stamps. Smithsonian National Postal Museum, “ Ronald Reagan Issue: 2005,” at https://arago.si.edu/
category_2046153.html. Also see U.S. Postal Service, Postal Bulletin 22145, “ Stamp Announcement 05-03, Ronald
Reagan Stamp,” pp. 7-21, 75, January 5, 2006, at https://about.usps.com/postal-bulletin/2005/pb22145.pdf.
Congressional Research Service

8

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Postmaster General to issue a special series of commemorative stamps in honor of Gold Star
Mothers.34
Additional y, on selected occasions Congress has enacted legislation directing USPS to issue a
semipostal stamp, which is a stamp sold at a premium to raise funds for a particular cause. For
example, the Save the Vanishing Species Semipostal Stamp was created pursuant to H.R. 1454,
the Multinational Species Conservation Funds Semipostal Stamp Act of 2010.35
The House Committee on Oversight and Reform has a rule against considering legislation that
proposes the issuance of commemorative stamps. Committee Rule 13 states, in part, “[t]he
determination of the subject matter of commemorative stamps and new semi-postal36 issues is
properly for consideration by the Postmaster General.”37 Further, a “Dear Colleague” letter issued
by the committee states that “[p]ursuant to Committee rules, a bil proposing the issuance of a
new semi-postal or commemorative stamp wil not be considered.”38 The “Dear Colleague” letter
also states that recommendations for new commemorative stamps should be submitted to the
USPS Citizens’ Stamp Advisory Committee.39
In 2017, the Postmaster General used her discretionary authority to create a semipostal stamp to
help raise funds to fight Alzheimer’s disease.40
For more information on commemorative postage stamps, see CRS Report RS22611, Common
Questions About Postage and Stamps, by Michel e D. Christensen.
Commemorative Coins
The U.S. Mint produces commemorative coins pursuant to an act of Congress. These coins
celebrate and honor American people, events, and institutions.41 The first commemorative coin
was authorized in 1892 for the Columbia Exposition in Chicago.42 Since 1892, Congress has

34 P.L. 80-259; 61 Stat 518. Gold Star Mothers are the “mothers of servicemen who made the supreme sacrifice while
fighting for our country.” U.S. Congress, House Committee on Post Office and Civil Service, Authorizing the Issuance
of a Special Series of Com m em orative Stamps in Honor of Gold Star Mothers, 80th Cong., 1st sess., July 17, 1947,
H.Rept. 80-985, p. 1.
35 P.L. 111-241, 124 Stat. 2605, September 30, 2010, as reauthorized by the Multinational Species Conservation Funds
Semipostal Stamp Reauthorization Act of 2013 (P.L. 113-165). Authorization for the Multinational Species
Conservation Semipostal Stamp expired in approximately 2016. T he stamps are no longer available for purchase from
the USPS.
36 By law, semipostal stamps (e.g., the Breast Cancer Research stamp and the Save Vanishing Species stamp) are
“issued and sold by the Postal Service, at a premium, in order to help provide funding for a cause.” 39 U.S.C.
§416(a)(1). For more information on semipostal stamps, see U.S. Postal Service, “ Fundraising Stamps (Semipostal
Stamp Program),” at https://about.usps.com/corporate-social-responsibility/semipostals.htm.
37 For example, see U.S. Congress, House Committee on Oversight and Reform, “Rule 13,” Committee on Oversight
Rules, 117th Cong., 1st sess., p. 7, at https://oversight.house.gov/sites/democrats.oversight.house.gov/files/COR%20-
%20Rules%20%28117th%29.pdf.
38 U.S. Congress, House Committee on Oversight and Reform, “Committee on Oversight and Reform; Procedures for
Certain Bills,” Dear Colleague Letter, April 29, 2021, at https://e-dearcolleague.house.gov/Home/Preview?DCID=
332170.
39 Ibid.
40 39 C.F.R. 551.5(b). See U.S. Postal Service, “Alzheimer’s Semipostal Fundraising Stamp Dedicated T oday,” press
release, November 30, 2017, http://about.usps.com/news/national-releases/2017/pr17_076.htm.
41 U.S. Department of the T reasury, United State Mint, “Commemorative Coin Programs,” at https://www.usmint.gov/
learn/coin-and-medal-programs/commemorative-coins.
42 27 Stat. 389, chap. 381, August 5, 1892.
Congressional Research Service

9

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

authorized more than 140 new commemorative coins. Between 1954 and 1981, no new
commemorative coins were authorized.43
In 1982, Congress restarted the commemorative coin program when it authorized a
commemorative half dollar to recognize George Washington’s 250th Birthday.44 In 1996, the
Commemorative Coin Reform Act (CCRA) was enacted to (1) limit the maximum number of
different coin programs minted per year;45 (2) limit the maximum number of coins minted per
commemorative coin program;46 and (3) clarify the law with respect to the recovery of Mint
expenses before surcharges are disbursed and to conditions of payment of surcharges to recipient
groups.47 The CCRA restrictions took effect in 1998.
In some past Congresses, the House Committee on Financial Services has adopted a committee
rule to prohibit (1) the scheduling of a subcommittee hearing on commemorative coin legislation
unless it was “cosponsored by at least two-thirds of the Members of the House,” or (2) reporting a
“bil or measure authorizing commemorative coins which does not conform with the minting
regulations under 31 U.S.C. § 5112.”48 This rule was not adopted as part of the committee rules
for the 117th Congress. The House majority leader’s protocols, however, address commemorative
coins. The protocols state
the Majority Leader shall consider the first three commemorative coin bills in a Congress
that receive 290 cosponsors and are submitted to the Committee on Financial Services to
be scheduled for the Floor.49
In the Senate for the 117th Congress, the Senate Banking, Housing, and Urban Affairs Committee
rules require that a commemorative coin bil or resolution have at least 67 Senators as cosponsors
before being considered by the committee.50

43 U.S. Department of the T reasury, United State Mint, “Commemoratives from 1892 -1954,” at
https://www.usmint.gov/learn/coin-and-medal-programs/commemorative-coins/commemorative-coins-from-1892-
1954.
44 P.L. 97-104; 95 Stat. 1491, December 23, 1981.
45 A commemorative coin program is the subject matter statutorily authorized to be depicted on a commemorative coin.
Within each commemorative coin program, multiple denominations of coins might be authorized. For example, P.L.
112-201 (§3, 126 Stat. 1480, December 4, 2012) authorized a commemorative coin program for Mark T wain. T he
statute authorized the minting of both $5 gold coins and $1 silver coins.
46 For example, the Mark T wain commemorative coin program limited the number of coins that might be minted. P.L.
112-201, §3, required that the U.S. Mint issue “ not more than 100,000 $5 coins ... and not more than 350,000 $1
coins.”
47 P.L. 104-208, §529, 110 Stat. 3009-349, September 30, 1996; 31 U.S.C. §5112(m)(1).
48 U.S. Congress, House Committee on Financial Services, Rules for the Committee on Financial Services, 113th Cong.,
1st sess. (Washington: GPO, 2013), p. 6.
49 U.S. Congress, House, Majority Leader Steny Hoyer, “11 7th Congress Legislative Protocols,” at
https://www.majorityleader.gov/content/117th-congress-legislative-protocols. Additionally, the protocols state that
“(A) the individual, event, or institution being honored must be American; (B) the individual, event, or institution must
have a lasting impact on American history and culture that is likely to be recognized as a major influence long after the
individual, event, or institution’s time; (C) a substantially similar individual, event, or institution has not received a
coin previously; (D) the recipient being honored can’t be an individual who is living; (E) and the bill comports with 31
U.S.C. §5112(m), which provides that no more than two commemorative coin programs may be authorized for a
particular calendar year.”
50 “Senate Committee on Banking, Housing, and Urban Affairs Rules of Procedure,” Congressional Record, daily
edition, vol. 167 (February 12, 2021), pp. S699-S701.
Congressional Research Service

10

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

For more information on commemorative coins, see CRS In Focus IF10262, Commemorative
Coins: An Overview, by Jacob R. Straus, and CRS Report R44623, Commemorative Coins:
Background, Legislative Process, and Issues for Congress, by Jacob R. Straus.
Congressional Gold Medals
Although Congress has approved legislation stipulating requirements for numerous other awards
and decorations,51 there are no permanent statutory provisions specifical y relating to the creation
of Congressional Gold Medals. When a Congressional Gold Medal has been deemed appropriate,
Congress has, by legislative action, provided for the creation of a medal on an ad hoc basis.
From the 104th to the 109th Congress and from the 112th to the 115th Congress, the Republican
Party held the majority of seats in the House. During this time, consideration of gold medal
legislation was also effectively governed by a rule of the House Republican Conference.
Conference Rule 28(a)(7) general y prohibited the Republican leader from scheduling for floor
consideration under suspension of the rules any legislation directing the Secretary of the Treasury
to strike Congressional Gold Medals except under specific circumstances.52 While party rules are
not enforceable by points of order on the House floor, the rule arguably reflected a reluctance on
the part of the majority party during this period to schedule certain gold medals bil s.53
The Democratic Party, which holds the majority of seats in the 117th Congress and therefore is
responsible for scheduling floor action, has issued similar protocols for the scheduling of
Congressional Gold Medal bil s. The majority leader’s protocols for the 117th Congress address
the number of gold medal bil s that might be scheduled for floor consideration in the House. The
protocols state
the Majority Leader shall consider the first three Gold Medal bills in a Congress that
receive 290 cosponsors and are submitted to the Committee on Financial Services to be
scheduled for the Floor.54

51 See “Decorations, Medals, and Badges,” in the general index of the United States Code: 2000 Edition (Washington:
GPO, 2001).
52 In order for Congressional Gold Medal legislation to be scheduled under suspension of the rules, the recipient had to
(1) be a natural person; (2) have performed an achievement that had an impact on American history and culture that is
likely to be recognized as a major and long lasting achievement in the recipient’s field; (3) have not previously received
a gold medal for a similar achievement; (4) be a living person, or if deceased, be deceased for more than 5 years and
less than 25 years; (5) have achievements that represent either a lifetime of continuous superior achievement or a single
achievement so significant that the recipient is recognized and acclaimed by others in his or her field; and (6) adoption
of the measure would not “cause the total number of measures authorizing the striking of such medals in that Congress
to substantially exceed the average number of measures enacted in prior Congresses.”
53 U.S. Congress, House Republican Conference, “Conference Rules.” In the 11 7th Congress, this is Rule 29(a)(7) of
the party conference rules. See https://www.gop.gov/conference-rules-of-the-117th-congress/. Another portion of the
rule allows a waiver to be granted by a majority of the party’s elected leadership.
54 U.S. Congress, House, Majority Leader Steny Hoyer, “11 7th Congress Legislative Protocols,” at
https://www.majorityleader.gov/content/117th-congress-legislative-protocols. Additionally, the protocols state “ (A) the
recipient must be a natural person; (B) the recipient must have per formed an achievement that has an impact on
American history and culture that is likely to be recognized as a major achievement in the recipient’s field long after
the achievement;(C) the recipient must not have received a medal previously for the same or substantially the same
achievement; (D) the recipient must be living or, if deceased, has not have been deceased for less than five years or
more than twenty-five years; (E) and the achievements were performed in the recipient’s field of endeavor, and
represent either a lifetime of continuous superior achievements or a single achievement so significant that the recipient
is recognized and acclaimed by others in the same field, as evidenced by the recipient having received the highest
honors in the field.”
Congressional Research Service

11

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

In the Senate, the Banking, Housing, and Urban Affairs Committee in the 117th Congress requires
that at least 67 Senators must cosponsor any Congressional Gold Medal bil before it wil be
considered by the committee.55
For more information on Congressional Gold Medals, see CRS Report R45101, Congressional
Gold Medals: Background, Legislative Process, and Issues for Congress, by Jacob R. Straus.
Monuments and Memorials
On many occasions, Congress has authorized the creation of monuments and memorials to
commemorate historic figures, events, and movements. Whether the monument or memorial is
intended to be built in the District of Columbia determines the process for placement, design, and
approval of the commemorative work.
District of Columbia
In 1986, the Commemorative Works Act (CWA) was enacted to provide standards for the
consideration and placement of monuments and memorials in areas administered by the National
Park Service (NPS) and the General Services Administration (GSA) in the District of Columbia.56
The CWA provides that no “commemorative work may be established in the District of Columbia
unless specifical y authorized by Congress.”57
Legislation proposing a new commemorative work in the District of Columbia general y consists
of three main sections: a short title, definitions, and authorization for establishing the memorial.
First, most authorizing legislation has a short title. This is the name of the authorizing legislation,
which often includes the name of the memorial. Second, the definitions section contains terms
used in further sections of the legislation. These can include “memorial,” “association,”
“foundation,” or other relevant terms. Final y, the authorization general y consists of four parts:
1. Authorization to establish a commemorative work. This designates a specific
third party entity as the “sponsor group,” which is the party responsible for the
establishment of the new monument or memorial.
2. Compliance with the Commemorative Works Act. This applies the CWA to the
monument or memorial or exempts the monument and memorial from the CWA
or certain CWA provisions.
3. Prohibition of Federal Funds. This section general y prohibits the designated
sponsor group from using federal funds on the monument or memorial.
4. Deposit of excess funds. This provision specifies the use of funds raised by the
sponsor group in excess of those necessary for the design, construction, and
dedication of the monument or memorial.

55 “Senate Committee on Banking, Housing, and Urban Affairs Rules of Procedure,” Congressional Record, daily
edition, vol. 167 (February 12, 2021), pp. S699-S701.
56 40 U.S.C. §§8901-8909.
57 40 U.S.C. §8902(a)(2). “The term “the District of Columbia and its environs” means those lands and properties
administered by the National Park Service and the General Services Administration located in the Reserve, Area I, and
Area II as depicted on the map entitled “Commemorative Areas Washington, DC and Environs”, numbe red 869/86501
B, and dated June 24, 2003.” For a map of the commemorative areas of Washington, DC and environs, see CRS Report
R41658, Com m em orative Works in the District of Colum bia: Background and Practic e, by Jacob R. Straus. Memorials
to be located on land under the Jurisdiction of the District of Columbia are governed by D.C. Law 13 -275, the
Commemorative Works on Public Space Amendment Act of 2000.
Congressional Research Service

12

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Following introduction, CWA-related legislation is general y referred to the House Committee on
Natural Resources and the Subcommittee on National Parks, Forests, and Public Lands, and the
Senate Committee on Energy and Natural Resources. Either one or both of the committees (or
subcommittees) wil hold hearings on the proposal, inviting testimony from representatives of the
National Park Service and the organization seeking approval for the monument or memorial.
Important considerations wil include historical importance of the commemorative work,
estimated cost, and how private funds needed for construction are to be raised. Additional y, the
National Capital Memorial Advisory Commission wil often provide advice to the committees on
the proposed memorial.58
For more information on the process after a commemorative work is authorized by Congress, see
CRS Report R41658, Commemorative Works in the District of Columbia: Background and
Practice, by Jacob R. Straus. For a list of commemorative works authorized since the enactment
of the CWA in 1986, see CRS Report R43743, Monuments and Memorials Authorized and
Completed Under the Commemorative Works Act in the District of Columbia, by Jacob R. Straus;
and CRS Report R43744, Monuments and Memorials Authorized Under the Commemorative
Works Act in the District of Columbia: Current Development of In-Progress and Lapsed Works,
by Jacob R. Straus. For a discussion of memorial themes, see CRS In Focus IF11833,
Commemorative Works in the District of Columbia: Categorization of Proposed and Enacted
Memorials, 1973-2020, by Jacob R. Straus and Jared C. Nagel.
Non-District of Columbia
Congressional involvement in monuments and memorials outside of the District of Columbia is
not governed by the Commemorative Works Act. Instead, the process for creating the monument
or memorial is determined based on whether the work wil be placed on existing federal land.
Recently, Congress has handled the creation of monuments and memorials outside the District of
Columbia in two ways: by directly authorizing a new commemorative or by making an existing
commemorative a “national” monument or memorial.59
New Commemorative. Periodical y, Congress authorizes a new memorial outside of the District
of Columbia. On these occasions, legislation is required to statutorily authorize a group—either
federal or nonfederal—to design, construct, and maintain the memorial.
For example, during the 107th Congress (2001-2002), legislation was enacted to authorize a
memorial at the crash site in Shanksvil e, PA,60 for “a national memorial to commemorate the
passengers and crew of Flight 93 who, on September 11, 2001, courageously gave their lives
thereby thwarting a planned attack on our Nation’s Capital.”61 During debate on the bil (H.R.
3917), Representative Wil iam Shuster summarized the importance of Congress creating a
national memorial and making it part of the National Park Service.
As we debate this measure, in this most revered of halls, I cannot help but contemplate the
possibility that Flight 93 was headed to a target here in the Nation’s Capitol—quite

58 40 U.S.C. §8904.
59 Pursuant to the Antiquities Act of 1909 (16 U.S.C. §§431-433), the President may establish national monuments on
federal lands. National monuments generally contain “historic landmarks, historic and prehistoric structures, and other
objects of historic or scientific interest.” (16 U.S.C. §3213). For more information on national monuments and the
Antiquities Act of 1909, see CRS Report R41330, National Monum ents and the Antiquities Act, by Carol Hardy
Vincent .
60 P.L. 107-226, 116 Stat. 1345, September 24, 2002; 16 U.S.C. §431 note.
61 U.S. Congress, House Committee on Resources, Flight 93 National Memorial Act, report to accompany H.R. 3917,
107th Cong., 2nd session, July 22, 2002, H.Rept. 107-597 (Washington: GPO, 2002).
Congressional Research Service

13

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

possibly right here to the Capitol itself. We will, however, never know for sure where that
doomed flight was headed. We will never know, because men and women, put love of
country ahead of self preservation. These were not super heros [sic], but individuals just
like you and me. Individuals with families and loved ones anxiously awaiting their return,
who put aside their own desirers [sic] and stood up to combat terrorism and save countless
lives....
The legislation before us today lays out a fair and balanced approach for construction of a
memorial for these brave individuals. The legislation calls for the creation of the Flight 93
Advisory Commission which would be composed of representatives from the families of
victims, the local community, the state of Pennsylvania and the United States Government.
The Commission would then submit their recommendations to the Secretary of the
Interior.62
In authorizing the Flight 93 Memorial, Congress also created an advisory committee to make
recommendations to the Secretary of the Interior and Congress on the design, construction, and
management of the memorial.63 Creation of such a commission is not uncommon and can aid
government agencies with the planning and execution of commemorations.
Official Recognition of Existing Commemoratives. Instead of authorizing the creation of a
completely new memorial, Congress has also considered legislation to recognize existing works
as national monuments or memorials. Enacting legislation to provide national recognition of a
monument or memorial, but maintaining local operation and maintenance, general y requires no
federal oversight or funds. For example, P.L. 113-132 designated a memorial in Riverside, CA, as
the “Distinguished Flying Cross National Memorial.”64 The memorial honors military aviators
who have received the “Distinguished Flying Cross [which] is the oldest military award for
aviation” with a national memorial, which does not already exist.65
For more information on memorials and commemorative works outside Washington, DC, see
CRS Report R45741, Memorials and Commemorative Works Outside Washington, DC:
Background, Federal Role, and Options for Congress, by Jacob R. Straus and Laura B. Comay.
Commemorative Commissions
Commemorative commissions are entities established to oversee the commemoration of a person
or event. These commissions typical y coordinate celebrations, scholarly events, public
gatherings, and other activities, often to coincide with a milestone anniversary. For example, the
Christopher Columbus Quincentenary Jubilee Commission was created “to prepare a
comprehensive program for commemorating the quincentennial of the voyages of discovery of
Christopher Columbus, and to plan, encourage, coordinate, and conduct observances and
activities commemorating the historic events associated with those voyages.”66 Bil s creating
commemorative commissions are introduced regularly in Congress. Most of these bil s, however,
have not typical y been enacted.

62 Rep. William Shuster, “Flight 93 National Memorial Act,” remarks in the House, Congressional Record, daily
edition, vol. 148 (July 22, 2002), p. H5005.
63 P.L. 107-226, §4.
64 P.L. 113-132, 128 Stat. 1727, July 25, 2014.
65 Rep. Raúl Grijalva, “Distinguished Flying Cross National Memorial Act,” remarks in the House, Congressional
Record, daily edition, vol. 159 (October 29, 2013), p. H6853. See also, U.S. Congress, House Committee on Natural
Resources, Distinguished Flying Cross National Mem orial Act, report to accompany H.R. 330, 113th Cong., 1st sess.,
May 17, 2013, H.Rept. 113-79 (Washington: GPO, 2013), p. 1.
66 P.L. 98-375, 98 Stat. 1257, August 7, 1984.
Congressional Research Service

14

link to page 5 Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

A statute establishing a commemorative commission general y includes the commission’s
mandate, provides a membership and appointment structure, outlines the commission’s duties and
powers, and sets a termination date. A variety of options are available for each of these
organizational choices, and legislators can tailor the composition, organization, and working
arrangements of a commission, based on the particular goals of Congress. As a result, the
organizational structure and powers of individual commissions are often unique.
In fulfil ing their duties, most commemorative commissions have encouraged, worked closely
with, and provided coordination for private groups, state and local governments, and other federal
government entities taking part in the general commemoration of the person or event. Because of
these cooperative efforts, federal y created commissions are often only a portion of planned
celebratory events. Therefore, federal funds appropriated to a commemorative commission are
general y only a portion of the total funding ultimately expended nationwide for commemorative
activities and events.
Commemorative commissions have been funded in two ways: through appropriations or through
solicitation of nonfederal money. At times, commissions are authorized both for appropriations
and to fundraise or accept donations. In addition, some commemorative commissions are not
provided with explicit authorization to solicit funds or accept donations. Commissions without
the statutory authority to solicit funds or accept donations are general y prohibited from engaging
in those activities.67
For more information on commemorative commissions, see CRS Report R41425,
Commemorative Commissions: Overview, Structure, and Funding, by Jacob R. Straus.
Commemorative Observances and Days
As discussed above in the section “House Ban on Commemorative Legislation,” House Rule XII,
clause 5 prohibits the introduction or consideration of commemorative legislation that includes a
“remembrance, celebration or recognition for any purpose through the designation of a specified
period of time.”68 Additional y, House Oversight and Reform Committee rules69 prohibit the
committee chair from requesting that party leadership schedule such bil s under suspension of the
rules in the House. Further, in the 117th Congress, the House majority leader’s protocols prohibit
the scheduling of commemorative resolutions.70 Consequently, the number of commemorative
observances and days designated by bil s, concurrent resolutions, joint resolutions, and House
resolutions is smal . The House prohibition on commemorative observances and days, however,
does not preclude the Senate from using Senate measures to honor individuals, groups, and
events.
In the past, the Senate Judiciary Committee has had unpublished guidelines on the consideration
of commemorative legislation. These guidelines were not official y part of the committee’s rules

67 U.S. Government Accountability Office, Principles of Federal Appropriations Law: Third Edition, Volume II, GAO-
06-382SP, February 2006, pp. 6-162, http://www.gao.gov/special.pubs/d06382sp.pdf.
68 U.S. Congress, House, “Rule XII, clause 5,” Constitution, Jefferson’s Manual and Rules of the House of
Representatives of the United States One Hundred Sixteenth Congress, 115th Cong., 2nd sess., H.Doc. 115-177
(Washington: GPO, 2019), §823, pp. 631-632.
69 U.S. Congress, House Committee on Oversight and Reform, “Rule 13,” Committee on Oversight Rules, 117th Cong.,
1st sess., p. 7, at https://oversight.house.gov/sites/democrats.oversight.house.gov/files/COR%20-
%20Rules%20%28117th%29.pdf.
70 U.S. Congress, House, Majority Leader Steny Hoyer, “11 7th Congress Legislative Protocols,” at
https://www.majorityleader.gov/content/117th-congress-legislative-protocols.
Congressional Research Service

15

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

and may not be currently applicable. Past guidance restricted consideration of commemorative
legislation without a minimum number of bipartisan cosponsors and prohibited commemoration
of specific categories.71
For more information on commemorative observances and days, see CRS Report R44431,
Commemorative Days, Weeks, and Months: Background and Current Practice, by Jacob R. Straus
and Jared C. Nagel.
Federal Holidays
The United States has established 12 permanent federal holidays. They are, in the order they
appear in the calendar: New Year’s Day, Martin Luther King Jr.’s Birthday, Inauguration Day
(every four years following a presidential election), George Washington’s Birthday, Memorial
Day, Juneteenth National Independence Day, Independence Day, Labor Day, Columbus Day,
Veterans Day, Thanksgiving Day, and Christmas Day.72 Although frequently cal ed public or
national days, these celebrations are only legal y applicable to federal employees and the District
of Columbia, as the states individual y decide their own legal holidays.
To create a new federal holiday, legislation is required. In recent Congresses, legislation has been
introduced to formal y establish Election Day as such.73 Recent legislation to create a new federal
holiday has suggested adding the day to the list of holidays at 5 U.S.C. §6103.
For more information on federal holidays, see CRS Report R41990, Federal Holidays: Evolution
and Current Practices, by Jacob R. Straus.
Presidential Proclamations
On many occasions, Congress has requested that the President issue a proclamation rec ognizing
an event or individual. Usual y associated with the creation of a patriotic and national observance,
statutory language requests that the President issue a proclamation each year to commemorate an
event or group. For example, the National Pearl Harbor Remembrance Day statute requests that
the President issue a yearly proclamation “cal ing on ... the people of the United States to observe
National Pearl Harbor Remembrance Day with appropriate ceremonies and activities.... ”74
Commemorative proclamations can also be issued by Presidents without any congressional
action, and have been regularly issued throughout American history. Since 1789, when President
George Washington issued the first proclamation declaring November 26 of that year a National
Day of Thanksgiving, there have been hundreds of such designations.

71 U.S. Congress, Senate Committee on the Judiciary, “Committee Policy for the Consideration of Commemorative
Measures: 106th Congress (unpublished).” Categories for which the committee has not considered requests for
commemorations included a commercial enterprise, industry, or specific product, or a fr aternal, political, business,
labor, or sectarian organization; a particular state or any political subdivision of a state, city, town, county, school, or
institution of higher learning; or a living person.
72 5 U.S.C. §6103(a).
73 For example, see H.R. 62 (107th Congress), which would have amended T itle 5, United States Code, “to establish
election day in Presidential election years as a legal public holiday .... ”
74 36 U.S.C. §129(b). For example, President Barack Obama issued a National Pearl Harbor Remembrance Day
Proclamation on December 5, 2013. For text of the proclamation, see T he White House, “Presidential Proclamation—
National Pearl Harbor Remembrance Day, 2013,” press release, December 5, 2013, at http://www.whitehouse.gov/the-
press-office/2013/12/05/presidential-proclamation-national-pearl-harbor-remembrance-day-2013.
Congressional Research Service

16

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Nonlegislative Options
In addition to the legislative options for commemoration listed above, several nonlegislative
options exist to commemorate individuals, groups, and events. These include certificates of
recognition, floor speeches, and the purchasing of American flags.
Certificates of Recognition
Certificates of Recognition are “awards” given by individual Member offices to constituents or
groups to acknowledge accomplishments. Members are general y free to create and distribute
certificates of recognition to individuals or groups to constituents.
In the House, official funds can be used for the creation and distribution of certificates that
recognize “a person who has achieved some public distinction”75 provided that the certificates
comply with Communication Standards Commission (formerly the Franking Commission)
regulations and do not contain political or partisan references, solicit support of a Member’s
position on an issue, or advertise or endorse benefits not available to al constituents.76
Additional y, the House Ethics Manual reminds Members that al constituents are to be treated
equal y, regardless of “political support, party affiliation, or campaign contributions ...” when
deciding to provide assistance to constituents.77 This would likely extend to the sending of
certificates of recognition as wel .78
In the Senate, two standing orders place restrictions on reimbursable expenses payable from a
Senator’s Official Office Account. S.Res. 294 (96th Congress) and S.Res. 176 (104th Congress)
specifical y prohibit the use of official funds for “expenses incurred for the purchase of holiday
greeting cards, flowers, trophies, awards, and certificates” (emphasis added).79 Further, pursuant
to 39 U.S.C. §3210(a)(3)(F), the Senate Ethics Manual provides guidance that “[m]ail expressing
congratulations to a person who achieved some public distinction may be franked only when the
occasion involves a public distinction, rather than a personal distinction.”80

75 U.S. Congress, Committee on House Administration, “Certificates,” Members’ Congressional Handbook, 117th
Cong., 1st sess., adopted July 25, 2018, updated February 16, 2021 , p. 14, at https://cha.house.gov/sites/
democrats.cha.house.gov/files/2021_117th_Members_Congresional_Handbook_2_16.pdf#page=18. Mem bers’
Congressional Handbook defines public distinctions as achievements that “ include, but are not limited to, state,
regional or national recognition of some public, community or civic duty or service. Other [achievements] include acts
of heroism, U.S. citizenship, high school graduations, the award of an Eagle Scout Gold Star, military academy
nominations, military service (upon enlistment, promotion, and honorable discharge), emergency personnel (upon
hiring, promotion, and retirement), and public education professionals (upon hiring, promotion, and retirement).”
76 U.S. Congress, House Commission on Congressional Mailing Standards, Regulations on the Use of the
Congressional Frank by Mem bers of the House of Representatives, pp. 7-9.
77 U.S. Congress, House Committee on Standards of Official Conduct, House Ethics Manual, 110th Cong., 2nd sess.
(Washington: GPO, 2008), p. 308. See also, CRS In Focus IF10489, Congressional Franked Mail: Overview, by
William T . Egar.
78 Ibid., p. 160. T he House Ethics Manual notes, however, that “while letters of congratulations for a public distinction
are frankable, other letters of congratulation, such as for years of service at a business, or retirement, are not. Under
House rules, a Member may use campaign funds and resources to create and send cards, letters, and certificates of these
types to constituents. However, such materials may not be produced in or sent from any House office, and may not be
produced or sent using any other House resource, including office equipment or staff while on official time.”
79 U.S. Congress, Senate Committee on Rules and Administration, “Standing Orders of the Senate: Restrictions on
Certain Expenses Payable or Reimbursable from a Senator’s Official Office Expense Account,” Senate Manual, 113th
Cong., 1st sess., S.Doc. 113-1 (Washington: GPO, 2014), §107(2)(2), p. 193; and U.S. Congress, Senate Committee on
Rules and Administration, Senate Handbook 111th Cong., 2nd sess. (October 2010), p. I-46; IV-11.
80 U.S. Congress, Senate Select Committee on Ethics, Senate Ethics Manual, 108th Cong., 1st sess., S. Pub. 108-1
Congressional Research Service

17

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Floor Speeches
Many Members have honored individuals and groups of constituents by giving a floor speech,
and then sending copies of the Congressional Record to the individual or group that was honored.
This activity can include a single Member or a group of Members that want to jointly honor
constituent(s) either with a group of special order speeches or a series of individual—perhaps one
minute—speeches.81 To inquire about floor time for a commemorative speech, Members may
contact their party’s leadership.
United States Flags
In 1937, a Member of Congress made the first request to fly a U.S. flag over the U.S. Capitol
building. Since that time, the Architect of the Capitol (AOC) has managed the flag program for
the House and Senate.
General y, U.S. flags flown over the Capitol can be purchased by a constituent through his or her
Representative’s or Senator’s offices. In both the House and Senate, the Member office collects
flag requests from constituents and facilitates the purchase of flags from the House or Senate
office supply store and coordinates with the Architect of the Capitol for the flying of flags over
the Capitol building.
For more information on the Architect of the Capitol’s flag program, see http://www.aoc.gov/
trades-and-areas-practice/capitol-flag-program.
House of Representatives
Members may obtain flags from the Office Supply Service (OSS). According to the House of
Representatives Members’ Congressional Handbook,
initially, the costs of the flags will be charged to the [Member Representational Allowance]
MRA. Once payment for a flag is received by the Member office, the office may submit
the check to OSS. OSS will credit the MRA. If a request is made to have a U.S. flag flown
over the Capitol, an additional flag flying fee must be paid by the individual purchasing
the flag.82
Additional y, Members may use official funds to pay for a flag flown over the Capitol that wil be
used for an official gift.83

(Washington: GPO, 2003), p. 164. Examples of public distinctions include recent naturalization as an American citizen;
receipt of a high school diploma by a senior citizen through an adult education program; enlistment or re -enlistment in
the Armed Forces; becoming an Eagle Scout or a VFW Commander or an American Legion State Commander; being
elected to a public office; becoming director of a state museum; being commissioned upon graduation from one of the
U.S. Service Academies; being the recipient of a Harry S. T ruman Scholarship or a Robert Byrd honor scholarship; or
receiving the ‘‘Employer of the Year’’ Award presented by the President’s Commit tee on Employment of the
Handicapped.
81 For an example in 2015, an honorific speech was given to celebrate the 129 th annual Groundhog Day in
Punxsutawney, PA. See http://www.gpo.gov/fdsys/pkg/CREC-2015-02-03/pdf/CREC-2015-02-03-pt1-PgH710-9.pdf.
82 U.S. Congress, Committee on House Administration, “Flags,” Members’ Congressional Handbook, 117th Cong., 1st
sess., adopted July 25, 2018, updated February 16, 2 021, p. 19, at https://cha.house.gov/sites/democrats.cha.house.gov/
files/2021_117th_Members_Congresional_Handbook_2_16.pdf#page=19. For more information on the Member
Representational Allowance (MRA), see CRS Report R40962, Mem bers’ Representational Allowance: History and
Usage, by Ida A. Brudnick.
83 U.S. Congress, Committee on House Administration, “Flags,” Members’ Congressional Handbook, 117th Cong., 1st
sess., adopted July 25, 2018, updated February 16, 2021, p. 16, at https://cha.house.gov/sites/democrats.cha.house.gov/
Congressional Research Service

18

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

For more information on the House of Representatives flag program (internal House webpage),
see https://housenet.house.gov/serving-constituents/flags.
Senate
Senators may obtain flags from the Senate Stationary Room. Senators collect the cost of the flag,
shipping fees, and flag flying and certification fees from the constituent, obtain the flag from the
stationary room, and then work with the Packaging and Flags division of the Printing, Graphics,
and Direct Mail (PG&DM) office to arrange for the flag to be flown over the Capitol.84
Additional y, pursuant to S.Res. 294 (96th Congress), “Senate offices can use official funds to
purchase flags. The legislation limits the groups to which a gift of a flag may be made to public
organizations only, such as churches, schools, and patriotic service groups.”85
For more information on the Senate flag program, see http://webster.senate.gov/pdgm/flag-
packaging-services.

Author Information

Jacob R. Straus, Coordinator
Valerie Heitshusen
Specialist on the Congress
Specialist on Congress and the Legislative Process

Michelle D. Christensen
Jared C. Nagel
Analyst in Government Organization and
Senior Research Librarian
Management

Garrett Hatch

Specialist in American National Government

files/2021_117th_Members_Congresional_Handbook_2_16.pdf#page=20.
84 U.S. Congress, Senate, Committee on Rules and Administration, Senate Handbook, 111th Cong., 2nd sess., October
2010, pp. I-42–I-43.
85 Ibid., p. I-44. S.Res. 294 (96th Congress) was amended by S.Res. 176 (104th Congress). Further, “the legislative
history of S.Res. 294 limits the groups to which a gift of a flag may be made to public organizations only, such as
churches, schools, and patriotic service groups.” For more information see, U.S. Congress, Senate, Select Committee
on Ethics, Senate Ethics Manual. 108th Cong., 1st sess., S. Pub. 108-1 (2003), p. 173, at https://www.ethics.senate.gov/
public/_cache/files/f2eb14e3-1123-48eb-9334-8c4717102a6e/2003-senate-ethics-manual.pdf.
Congressional Research Service

19

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should n ot be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material.

Congressional Research Service
R43539 · VERSION 18 · UPDATED
20