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

April 22, 2015 – October 17, 2023 R43539

Commemorations in Congress: Options for
October 17, 2023
Honoring Individuals, Groups, and Events
Jacob R. Straus
Since its inception, Congress has used commemorative legislation to express public gratitude for
Specialist on the Congress
distinguished contributions; dramatize the virtues of individuals, groups, and causes; and

perpetuate the remembrance of significant events. Commemoratives have become an integral part
Michelle D. Christensen
of the American political tradition. Congress has used them to authorize the minting of
Analyst in Government
commemorative coins and Congressional Gold Medals; fund monuments and memorials; create
Organization and
federal holidays; establish commissions to celebrate important anniversaries; and name public
Management
works, scholarships, endowments, fellowships, and historic sites.

Current congressional practice for commemoratives includes a House Rule (Rule XII, clause 5,
Garrett Hatch
initially adopted during the 104th Congress [1995-1996]) that precludes the introduction or
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National Government
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
Valerie Heitshusen
procedures governing the enactment of several other types of commemoratives, has substantially
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reduced the time Congress spends considering and adopting such measures.
the Legislative Process

This report summarizes the evolution of commemorative legislation as well 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.
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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 individually struck medals. During the 19th century, Congress gradually 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, fellowships, 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, Commemorative Legislation in Congress: Trends and Observations, 93rd Through 115th
Congresses, by Jacob R. Straus and Jared C. Nagel.
2 Roger H. Davidson, “The 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: The Determinants of Health Policy Change in
Congress,” Journal of Health Politics, Policy and Law, vol. 36, no. 2 (2011), p. 236.
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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 bills and resolutions introduced and considered by the chamber. House Rule XII,
clause 5, prohibits the introduction and consideration of date-specific commemorative
legislation.6
House Rule XII, Clause 5
As part of the rules adopted by the 104th Congress,7 House Rule XII was amended to preclude the
introduction or consideration of any bill, resolution, or amendment that “establishes or expresses
a commemoration.” The rule, which is still 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

3 “Commission on National Observances and Holidays,” Congressional Record, vol. 112, part 18 (October 3, 1966), p.
24828. The 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 The proposed commission was introduced in six succeeding Congresses beginning in the 98th Congress (1983-1984).
These proposals were each called the National Commemorative 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 U.S. Congress, House, “Rule XII, clause 5,” Rules of the House of Representatives One Hundred Eighteenth
Congress, p. 26, at https://rules.house.gov/sites/republicans.rules118.house.gov/files/documents/Rules and
Resources/118-House-Rules-Clerk.pdf#page=30.
7 “Ban on Commemoratives,” Congressional Record, daily edition, vol. 141 (January 4, 1995), pp. H29-H30.
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against date specific commemorative [sic]. Such exceptions should be limited to those rare
situations warranting special national recognition as determined by the Leadership.8
The Republican Party holds the majority of House seats in the 118th Congress and therefore is
responsible for scheduling floor action.9 Consideration of commemorative legislation is therefore
also effectively governed by a House Republican Conference rule. Conference Rule 29(a)(6)
generally prohibits the Republican leader from scheduling certain commemorative bills and
resolutions for floor consideration under suspension of the rules. It states:
Rule 29—Guidelines on Suspension of House Rules
(a) The Republican Leader shall not schedule, or request to have scheduled, any bill or
resolution for consideration under suspension of the Rules which—
…
(6) 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
for such purposes.10
While party rules are not enforceable by points of order on the House floor, the rule arguably
reflects a reluctance on the part of the majority party to schedule legislation with commemorative
intent. To provide further guidance to the majority leader for the implementation of party rules,
the Republican Conference has instituted leadership protocols. Among other policies, for the 118th
Congress, the majority leader’s protocols state that
Commemorative Resolutions
Purpose:
This protocol provides further guidance for the adherence of Rule 29 of the Rules of the
House Republican Conference which provides that: The Republican Leader shall not
schedule, or request to have scheduled, any bill or resolution for consideration under
suspension of the Rules which…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 for such purposes…
Protocol:
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 Rule 29 is eligible to be scheduled under suspension of the Rules.11

8 “Rules of the House,” Congressional Record, vol. 141, part 1 (January 4, 1995), p. 476.
9 The Republican Party also held a majority of seats in the House between the 104th Congress (1995-1996) and 109th
Congress (2005-2006) and between the 112th Congress (2011-2012) and the 115th Congress (2017-2018).
10 U.S. Congress, House, Republican Conference, “Conference Rules of the 118th Congress,” at https://www.gop.gov/
conference-rules-of-the-118th-congress. Another portion of the rule allows a waiver to be granted by a majority of the
party’s elected leadership.
11 U.S. Congress, House, Majority Leader Steve Scalise, “118th Congress Floor Protocols,” at
https://www.majorityleader.gov/schedule/floor-protocols.htm. The protocols also state that “a resolution of
bereavement, or condemnation, or which calls on others (such as a foreign government) to take a particular action, ... is
eligible to be scheduled under suspension of the Rules.”
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In previous Congresses, under both Republican and Democratic majorities, similar protocols have
been adopted. For example, in the 117th Congress, when the Democratic Party held a majority of
seats in the House,12 the majority leader’s protocols stated
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.13
Committee Rules
Since the 114th Congress, the House Committee on Oversight and Accountability (and its
predecessors), which has jurisdiction over holidays and celebrations, has included in its
committee rules provisions related to commemorative measures. For the 118th 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
anniversary of, an entity, event, group, individual, institution, team or government
program; or acknowledges or recognizes a period of time for such purposes.14
In some past Congresses, the committee has also issued additional guidance on the potential
committee consideration of commemorative measures. In the 118th Congress, the Committee on
Oversight and Accountability adopted guidance prohibiting the consideration of certain
commemorative measures.15

12 The Democratic Party also held a majority of seats in the House between the 110th Congress (2007-2008) and the
111th Congress (2009-2010) and between the 116th Congress (2019-2020) and the 117th Congress (2021-2022).
13 U.S. Congress, House, Majority Leader Steny Hoyer, “117th Congress Legislative Protocols,” at
https://leaderarchive-hoyer.house.gov/content/117th-congress-legislative-protocols. The 117th Congress protocols also
stated that “A resolution of bereavement, or condemnation, or which calls on others to take a particular action, is
eligible to be scheduled for consideration.”
14 U.S. Congress, House Committee on Oversight and Accountability, “Rule 13—Consideration of Certain Bills and
Resolutions,” Committee on Oversight and Accountability 118th Congress,” 118th Cong., 1st sess., p. 7, at
https://oversight.house.gov/wp-content/uploads/2023/01/118th-Committee-Rules.pdf#page=7.
15 U.S. Congress, House Committee on Oversight and Accountability, “Commemorative Resolutions and Postal
Naming Bills,” Dear Colleague Letter, June 30, 2023, at https://e-dearcolleague.house.gov/Home/Preview?DCID=
397333. Similar guidance also existed since at least the 115th Congress. For similar guidance in past Congresses, see
117th Congress: 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; 116th Congress: 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; and 115th Congress: U.S. Congress, House Committee on Oversight and Government Reform,
(continued...)
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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. Specifically, the “House by unanimous consent
waived the prohibition against introduction of a certain joint resolution specified by sponsor and
title proposing a commemoration,”16 to allow for the consideration of H.J.Res. 71 (107th
Congress, 2001-2002), legislation establishing Patriot Day as a day of remembrance for
September 11, 2001.17
Overview of Options Discussed
Congress’s commemorative options fall into two general categories: legislative options and
nonlegislative options. All legislative options require passage of a bill or resolution by the House,
the Senate, or both chambers. Nonlegislative options can often be accomplished by individual
offices without legislative approval. Legislative options include naming federal buildings,
designing postage stamps, minting commemorative coins, awarding a Congressional Gold Medal,
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.
Legislative Options
Several legislative options exist to honor individuals, groups, and historic events. For each of
these commemoratives, action requires passage of a bill 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 bill 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 legislative commemorations, see CRS Report R46644, Commemorative
Legislation in Congress: Trends and Observations, 93rd Through 115th Congresses, by Jacob R.
Straus.
Naming Federal Buildings
In each Congress, many bills are introduced to name a post office or other federal building in
honor or in memory of locally esteemed individuals, deceased elected officials, fallen military

“Commemorative Resolutions, Postal Facility Naming Bills, and Semi-Postal and Commemorative Stamp Bills:
Procedures in the 115th Congress,” Dear Colleague Letter, September 5, 2017, at https://e-dearcolleague.house.gov/
Home/Preview?DCID=217782.
16 U.S. Congress, House, “Rule XII, Clause 5: Prohibitions on Commemorations,” Constitution, Jefferson’s Manual,
and Rules of the House of Representatives of the United States, One Hundred Seventeenth Congress, prepared by Jason
A. Smith, parliamentarian, 116th Cong., 2nd sess., H.Doc. 116-177, §823, p. 639, at https://www.govinfo.gov/content/
pkg/HMAN-117/xml/HMAN-117-pg639.xml.
17 “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 Thursday,
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.
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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 locally esteemed individuals (e.g., Sister
Ann Keefe),18 deceased elected officials (e.g., President Ronald Reagan),19 fallen Armed Forces
personnel (e.g., Army Specialist Matthew Troy Morris),20 and celebrities (e.g., Bob Hope).21 A
post office may also be dedicated in honor of multiple individuals (e.g., District of Columbia
Servicemembers and Veterans).22
Post office naming statutes commonly identify the address of the postal facility and provide for
naming (“designating”) the facility.23 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 will keep
its original name and geographical designation within USPS’s addressing system. Instead, to
commemorate the designation, a small plaque noting the designee and designation is installed
within the post office.
Over the years, both the House and Senate have adopted policies and practices for considering
and enacting post office naming bills. These policies and practices have varied from Congress to
Congress.24 Currently, the House Oversight and Accountability Committee Rule 13 states that the
consideration of post office naming bills “shall be conducted so as to minimize the time spent on
such matters by the Committee and the House.”25 For the 118th Congress, the House committee
issued a Dear Colleague letter stating its policies on the consideration of post office naming bills
and other postal legislation. It stated the following:
How does the Committee handle postal facility naming bills? The Committee will not
consider legislation designating post office buildings for:
Living persons or any person who is not a United States’ citizen, except bills naming
postal facilities after military service members and veterans.
A person for whom Congress has already named a post office building.
Additionally, before a postal facility naming bill is eligible to be considered by the
Committee, it must be co-sponsored by the entire state delegation where the post office is

18 P.L. 114-15, 129 Stat. 199 (2015).
19 Several post offices have been named after President Ronald Reagan. They include Dixon, IL (P.L. 111-235, 124
Stat. 249 [2010]); Billings, MT (P.L. 108-143, 117 Stat. 1877 [2003]); and West Melbourne, FL (P.L. 107-7, 1159 Stat.
9 [2001]).
20 P.L. 112-107, 126 Stat. 328 (2012).
21 P.L. 108-120, 117 Stat. 1334 (2003).
22 P.L. 117-328, Division EE, §120, 136 Stat. 5626 (2022).
23 Post office naming statutes also include a “references” provision. The 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. Thus, for example, the U.S. Postal Service would not need to change its internal documents to reflect the
post office’s renaming.
24 U.S. Congress, House Committee on Oversight and Accountability, “Rule 13,” Committee on Oversight and
Accountability 118th Congress, 118th Cong., 1st sess., p. 7, at https://oversight.house.gov/wp-content/uploads/2023/01/
118th-Committee-Rules.pdf.
25 House Committee on Oversight and Accountability, “Rule 13,” p. 7.
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located. The Speaker of the House, the House Majority Leader, and the House Minority
Leader are exempt from this requirement and are not required to co-sponsor postal facility
naming bills in their respective states.
Additional Information. 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, and that the U.S. Postal Service has
determined the facility is eligible to be named.
Postal facility naming bills will be considered by the Committee only after the required
criteria set forth above are met in full.26
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.27
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 rules28 and
the Senate via unanimous consent.29
For more information on naming post offices, including sample legislation, see CRS Report
RS21562, Naming Post Offices Through Legislation, by Michelle D. Christensen.
Other Federal Buildings
Bills to name other federal buildings or facilities may be considered and reported in any
committee, typically in relation to the agencies under each committee’s jurisdiction. Legislation
naming a veterans’ medical facility, for example, would normally 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). Historically,
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. Occasionally, legislation
is introduced to name buildings held by other agencies, such as National Aeronautical and Space

26 U.S. Congress, House Committee on Oversight and Accountability, “Commemorative Resolutions and Postal
Naming Bills,” Dear Colleague Letter, June 30, 2023, at https://e-dearcolleague.house.gov/Home/Preview?DCID=
397333. Similar Dear Colleague letters were issued by the committee in the 117th, 116th, 115th, 114th, and 112th
Congresses. For example, see 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.
27 U.S. Congress, Senate Committee on Homeland Security and Governmental Affairs, “Rules of Procedure of the
Committee on Homeland Security and Governmental Affairs,” 118th Cong., 1st Sess., S.Prt. 118-6 (March 2023), pp. 9-
10, at https://www.hsgac.senate.gov/wp-content/uploads/CPRT-118SPRT51198.pdf#page=15.
28 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.
29 For example, see P.L. 112-107, 126 Stat. 328 (2012), which designated a post office in Cedar Park, TX, as the
“Army Specialist Matthew Troy Morris Post Office Building.”
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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 typically go through Congress.30
Committees vary as to whether they have specific rules regarding the introduction of naming
legislation. Some have written naming rules. In the 118th Congress, for example, the Senate
Veterans’ Affairs Committee has adopted language in its committee rules that establishes specific
criteria for naming legislation.31 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 (ii) 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 United States 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 bill. Finally, the
pertinent state department or chapter of each congressionally chartered veterans’ organization
with a national membership of at least 500,000 must indicate, in writing, its support of the bill.
The committees with jurisdiction over courthouse naming in the 118th 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.32 While no longer part of the committee’s written
rules, some or all of these requirements may still be in place—albeit informally—and enforced.

30 For more information on Department of Defense naming policies, see section “Naming Policy by Military Service”
in CRS Insight IN10756, Confederate Names and Military Installations, by Barbara Salazar Torreon.
31 U.S. Congress, Senate Committee on Veterans’ Affairs, “Rule VIII” Committee on Veterans’ Affairs Rules of
Procedure, 118th Congress, at https://www.veterans.senate.gov/committee-rules.
32 U.S. Congress, House Committee on Transportation and Infrastructure, Subcommittee on Public Buildings and
Economic Development, The Naming of Public Buildings, internal committee memorandum dated July 16, 1995. This
memorandum identified criteria for the subcommittee to consider in naming a public building. These 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 authority); 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.”
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Contacting the committee is the only way to determine what informal rules and practices are in
place, if any.
EPW, on the other hand, has its requirements in committee rules.33 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.34
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
Women’s Soccer, President John F. Kennedy, the Chinese Lunar New Year, and Japanese
American Soldiers of WWII.35 The USPS issues these stamps at its own statutory discretion and
operates the program as a profit-making enterprise.36
Legislation to direct USPS to issue a stamp to commemorate persons, historical occurrences, and
groups is occasionally 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
Postmaster General to issue a special series of commemorative stamps in honor of Gold Star
Mothers.37
Additionally, 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 2010.38

33 U.S. Congress, Senate Committee on Environment and Public Works, Committee Rules, at
https://www.epw.senate.gov/public/index.cfm/rules.
34 Ibid.
35 U.S. Postal Service, “Postal Store: Commemoratives,” at https://store.usps.com/store/results/stamps/commemorative/
_/N-9y93lvZ1edrpld.
36 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.
37 P.L. 80-259; 61 Stat 518 (1947). 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 Commemorative Stamps in Honor of Gold Star Mothers, 80th Cong., 1st sess., July 17,
1947, H.Rept. 80-985, p. 1.
38 P.L. 111-241, 124 Stat. 2605 (2010), as reauthorized by the Multinational Species Conservation Funds Semipostal
Stamp Reauthorization Act of 2013 (P.L. 113-165; 128 Stat. 1878 (2014)). On December 31, 2018, USPS withdrew the
Save the Vanishing Species Semipostal Stamp from sale, due to the expiration of its statutory authority, but retained its
unsold stock (U.S. Postal Service, “Save Vanishing Species Semipostal Stamps Withdrawn From Sale—Statutory
Authority Expired December 31, 2018,” at https://about.usps.com/postal-bulletin/2019/pb22519/html/info_007.htm).
The Financial Services and General Government Appropriations Act, 2021 (Division E of P.L. 116-260; 134 Stat. 1423
(continued...)
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The House Committee on Oversight and Accountability has a committee rule against the
consideration of 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-postal issues is properly for consideration by the Postmaster General.”39
In the 118th Congress, the committee issued a Dear Colleague letter that stated that

Pursuant to Committee rules, a bill proposing the issuance of a new semi-postal or
commemorative stamp will not be considered. Committee Rule 13(a) states: “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.”40
The Dear Colleague letter also stated that recommendations for new commemorative stamps
should be submitted to the USPS Citizens’ Stamp Advisory Committee.41
In 2017, the Postmaster General used her discretionary authority to create a semipostal stamp to
help raise funds to fight Alzheimer’s disease.42
For more information on commemorative postage stamps, see CRS Report RS22611, Common
Questions About Postage and Stamps, by Michelle 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.43 The first commemorative coin
was authorized in 1892 for the Columbia Exposition in Chicago.44 In 1996, the Commemorative
Coin Reform Act (CCRA) was enacted to (1) limit the maximum number of different coin

[2020]), states that USPS “may not destroy, and shall continue to offer for sale, any copies of the Multinational Species
Conservation Funds Semipostal Stamp.” The Postal Service resumed sale of the Save Vanishing Species stamp on
January 16, 2020, and language similar to that from FY2021 has been included in subsequent appropriations acts.
39 U.S. Congress, House Committee on Oversight and Accountability, “Rule 13,” Committee on Oversight and
Accountability 118th Congress, 118th Cong., 1st sess., p. 7, at https://oversight.house.gov/wp-content/uploads/2023/01/
118th-Committee-Rules.pdf. 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.
40 U.S. Congress, House Committee on Oversight and Accountability, “Commemorative Resolutions and Postal
Naming Bills,” Dear Colleague Letter, June 30, 2023, at https://e-dearcolleague.house.gov/Home/Preview?DCID=
397333.
41 Ibid.
42 39 C.F.R. §551.5(b). See U.S. Postal Service, “Alzheimer’s Semipostal Fundraising Stamp Dedicated Today,” press
release, November 30, 2017, http://about.usps.com/news/national-releases/2017/pr17_076.htm. The Alzheimer’s
Stamp, which originally had an issue run of two years, was withdrawn from sale on January 30, 2019. However, under
revised rules issued by USPS in September 2020, the Alzheimer’s semipostal resumed sale on October 5, 2020.
43 U.S. Department of the Treasury, United State Mint, “Commemorative Coin Programs,” at https://www.usmint.gov/
learn/coin-and-medal-programs/commemorative-coins.
44 27 Stat. 389, chap. 381, August 5, 1892. For a list of historic commemorative coins, see U.S. Department of the
Treasury, United State Mint, “Commemoratives from 1892-1954,” at https://www.usmint.gov/learn/coin-and-medal-
programs/commemorative-coins/commemorative-coins-from-1892-1954; and CRS Report R44623, Commemorative
Coins: Background, Legislative Process, and Issues for Congress, by Jacob R. Straus.
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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 at least one past Congress, the House Committee on Financial Services 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
“bill 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 118th Congress. The House majority leader’s floor protocols, however, address
commemorative coins. The protocols state, in part
The Majority Leader shall only consider commemorative coin bills that receive at least 290
cosponsors and are submitted to the Committee on Financial Services to be scheduled for
the Floor.49
In the Senate for the 118th Congress, the Senate Banking, Housing, and Urban Affairs Committee
rules require that a commemorative coin bill or resolution have at least 67 Senators as cosponsors
before being considered by the committee.50
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 specifically 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.

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 (2012)) authorized a commemorative coin program for Mark Twain. The statute
authorized the minting of both $5 gold coins and $1 silver coins.
46 For example, the Mark Twain 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 (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 Steve Scalise, “Commemorative Coins,” 118th Congress Floor Protocols,” at
https://www.majorityleader.gov/schedule/floor-protocols.htm. Additionally, the protocols state that “(A) the individual,
event, or institution being honored must be American; (B) the individual, event, or institution must have had 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. 169 (February 9, 2023), pp. S296-S298.
51 See “Decorations, Medals, and Badges,” in the general index of the United States Code: 2018 Edition (Washington:
GPO, 2018).
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When the Republican Party has held a majority of seats in the House in recent decades (104th to
the 109th Congresses, 112th to the 115th Congresses, and 118th Congress) the consideration of gold
medal legislation has been effectively governed by a rule of the House Republican Conference
that provides guidelines to the majority leader on scheduling legislation under the House
procedure Suspension of the Rules.52 In the 118th Congress, Conference Rule 29(a)(7) generally
prohibits the majority 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.53 While party rules are not enforceable via points of order on
the House floor, the rule arguably reflects a reluctance on the part of the majority party during this
period to schedule certain gold medals bills.
When the Democratic Party held the majority of seats in the House (110th to the 111th Congresses
and the 116th to the 117th Congresses), it issued similar protocols for the scheduling of
Congressional Gold Medal bills. In the 117th Congress, the majority leader’s protocols addressed
the number of gold medal bills that might be scheduled for floor consideration in the House. The
protocols stated
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
In the Senate, the Banking, Housing, and Urban Affairs Committee in the 118th Congress requires
that at least 67 Senators must cosponsor any Congressional Gold Medal bill before it will 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.

52 U.S. Congress, House Republican Conference, “Rule 29—Guidelines on Suspension of House Rules,” Conference
Rules of the 118th Congress, at https://www.gop.gov/conference-rules-of-the-118th-congress. Another portion of the
rule allows a waiver to be granted by a majority of the party’s elected leadership (see Republican Conference Rule
29(8)(b) and Rule 2).
53 In order for Congressional Gold Medal legislation to be scheduled under suspension of the rules, the following
conditions must be met: “(A) the recipient is a natural person; (B) the recipient has performed 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 has not received a medal previously for the same or substantially the same
achievement; (D) the recipient is living or, if deceased, has not been deceased for less than five years or more than
twenty-five years; (E) 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; and
(F) adoption of such measure does not cause the total number of measures authorizing the striking of such medals in
that congress to substantially exceed the average number of such measures enacted in prior congresses.”
54 U.S. Congress, House, Majority Leader Steny Hoyer, “117th Congress Legislative Protocols,” at
https://leaderarchive-hoyer.house.gov/content/117th-congress-legislative-protocols. Additionally, the protocols stated
“(A) the recipient must be a natural person; (B) the recipient must have performed 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.”
55 “Senate Committee on Banking, Housing, and Urban Affairs Rules of Procedure,” Congressional Record, daily
edition, vol. 169 (February 9, 2023), pp. S296-S298.
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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 specifically authorized by Congress.”57
Legislation proposing a new commemorative work in the District of Columbia generally 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. Finally, the authorization generally 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 generally 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.
Following introduction, CWA-related legislation is generally 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) will 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 will include historical importance of the commemorative work,
estimated cost, and how private funds needed for construction are to be raised. Additionally, the

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,’ numbered 869/86501
B, and dated June 24, 2003.” For a map of the commemorative areas of Washington, DC, and environs, see CRS
Report R41658, Commemorative Works in the District of Columbia: Background and Practice, 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.
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National Capital Memorial Advisory Commission (NCMAC) will 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 will be placed on existing federal land or
will receive federal funding. 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 work a “national” monument or memorial.59
New Commemorative. Periodically, 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
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,”60
at the crash site in Shanksville, PA.61 During debate on the bill (H.R. 3917, 107th Congress),
Representative William 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
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....

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 Monuments and the Antiquities Act, by Carol Hardy
Vincent.
60 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).
61 P.L. 107-226, 116 Stat. 1345 (2002); 16 U.S.C. §431 note.
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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, generally 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 typically 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
A commemorative commission statute generally 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 fulfilling their duties, most commemorative commissions have encouraged; worked closely
with; and coordinated with private groups, state and local governments, and other federal

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 (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 Memorial 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 (1984).
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government entities taking part in the general commemoration of the person or event. Because of
these cooperative efforts, federally created commissions are often only a portion of planned
celebratory events. Therefore, federal funds appropriated to a commemorative commission are
generally 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 generally 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 Additionally, House Oversight and Accountability Committee rules prohibit the
committee chair from requesting that party leadership schedule such bills under suspension of the
rules in the House.69 Further, in the 118th Congress, the House majority leader’s protocols prohibit
the scheduling of commemorative resolutions.70 Consequently, the number of commemorative
observances and days designated by bills, concurrent resolutions, joint resolutions, and House
resolutions has been small. 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 officially part of the committee’s rules
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

67 U.S. Government Accountability Office, Principles of Federal Appropriations Law: Third Edition, Volume II, GAO-
06-382SP, February 2006, pp. 6-162, https://www.gao.gov/assets/gao-06-382sp.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, 116th Cong., 2nd sess., H.Doc. 116-177
(Washington: GPO, 2019), §823, pp. 631-632, at https://www.govinfo.gov/content/pkg/HMAN-117/xml/HMAN-117-
pg639.xml.
69 U.S. Congress, House Committee on Oversight and Accountability, “Rule 13—Consideration of Certain Bills and
Resolutions,” Committee on Oversight Rules, 118th Cong., 1st sess., at https://oversight.house.gov/wp-content/uploads/
2023/01/118th-Committee-Rules.pdf.
70 U.S. Congress, House, Majority Leader Steve Scalise, “118th Congress Floor Protocols,” at
https://www.majorityleader.gov/schedule/floor-protocols.htm.
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 fraternal, 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.
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For more information on commemorative observances and days, see CRS Report R44431,
Commemorative Days, Weeks, and Months: Background and Current Practice, 113th to 115th
Congress, by Jacob R. Straus.
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 called public or
national days, these celebrations are only legally applicable to federal employees and the District
of Columbia, as the states individually decide their own legal holidays.
To create a new federal holiday, legislation is required. For example, in 2021, Juneteenth National
Independence Day was established as a federal holiday.73 The Juneteenth authorization legislation
added 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 recognizing
an event or individual. Usually associated with the creation of a patriotic and national observance
(36 U.S.C. §§101-146), 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 “calling 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.
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.

72 5 U.S.C. §6103(a).
73 P.L. 117-17, 135 Stat. 287 (2021). For more information, see CRS Insight IN11697, Juneteenth National
Independence Day: A New Federal Holiday, by Jacob R. Straus.
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 The White House, “Presidential Proclamation—
National Pearl Harbor Remembrance Day, 2013,” press release, December 5, 2013, at
https://obamawhitehouse.archives.gov/the-press-office/2013/12/05/presidential-proclamation-national-pearl-harbor-
remembrance-day-2013.
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Certificates of Recognition
Certificates of Recognition are “awards” given by individual Member offices to constituents or
groups to acknowledge accomplishments. Members are generally 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 all constituents.76
Additionally, the House Ethics Manual reminds Members that all constituents are to be treated
equally, 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 well.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)
specifically 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, 118th
Cong., 1st sess., adopted July 25, 2018, updated December 30, 2022, p. 17, at https://cha.house.gov/sites/evo-subsites/
republicans-cha.house.gov/files/evo-media-document/2022-12-30-final-members-congressional-
handbook49.pdf#page=22. (Hereinafter Members’ Congressional Handbook) The Members’ 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, The House of Representatives
Communications Standards Manual, effective January 7, 2020, pp. 2-3, at https://cha.house.gov/sites/evo-subsites/
republicans-cha.house.gov/files/documents/Communications%20Standards%20Manual_12-19.pdf.
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 House Ethics Manual, p. 160. The 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
(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
(continued...)
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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.
Generally, 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,
offices can assist constituents in purchasing U.S. flags. The flags are ordered by the
Member office and the cost of the flag and, if applicable, the additional flag flying fee, is
initially charged to the [Members’ Representational Allowance] MRA. Individuals can
submit payment for the flag and flag flying fee via check or the pay.gov system. The MRA
will be credited once payment is received.82
Additionally, Members may use official funds to pay for a flag flown over the Capitol that will be
used for an official gift.83
In the 118th Congress, a “Dear Colleague” letter in the House announced the removal of a
previous prohibition on using campaign funds to purchase flags flown over the Capitol. The new
House guidance allows “campaigns to purchase flags in the same fashion as any constituent and
outside organization consistent with House Rules and regulations” and further allows campaign

U.S. Service Academies; being the recipient of a Harry S. Truman Scholarship or a Robert Byrd honor scholarship; or
receiving the ‘‘Employer of the Year’’ Award presented by the President’s Committee on Employment of the
Handicapped.
81 For an example in 2015, an honorific speech was given to celebrate the 129th 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 Members’ Congressional Handbook, “Flags,” at https://cha.house.gov/members-congressional-
handbook#95F1842D-C132-408E-B060-7D8DD3EC5CFB.
83 Members’ Congressional Handbook, “Recognition of Public Service and Public Distinction,” at
https://cha.house.gov/members-congressional-handbook#4238EB7F-A022-4A59-BD67-46C9DD24962A.
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funds “to be used to purchase flags for campaign/political purposes consistent with Federal
Election Commission regulations.”84
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.85
Additionally, 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.”86
For more information on the Senate flag program (internal Senate webpage), see
http://webster.senate.gov/pdgm/flag-packaging-services.

Author Information

Jacob R. Straus
Garrett Hatch
Specialist on the Congress
Specialist in American National Government

Michelle D. Christensen
Valerie Heitshusen
Analyst in Government Organization and
Specialist on Congress and the Legislative Process
Management

84 U.S. Congress, Committee on House Administration, “Notifying Office of Change to Capitol Flag Flying Program,”
Dear Colleague Letter, October 11, 2023, at https://e-dearcolleague.house.gov/Home/Preview?DCID=405114. House
Ethics Committee guidance prohibits the use of campaign funds to purchase flags for official purposes. For more
information, see U.S. Congress, House, Committee on Ethics, “FAQs About Official Allowances,” at
https://ethics.house.gov/posts/faqs/official-allowances; and U.S. Congress, House, Committee on Ethics, “Members’
Representational Allowance,” House Ethics Manual, pp. 331-334, at https://ethics.house.gov/sites/ethics.house.gov/
files/documents/Dec%202022%20House%20Ethics%20Manual%20website%20version.pdf#page=345.
85 U.S. Congress, Senate, Committee on Rules and Administration, Senate Handbook, 111th Cong., 2nd sess., October
2010, pp. I-42–I-43.
86 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#page=184.
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Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
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under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
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