Monuments and Memorials Authorized Under the Commemorative Works Act in the District of Columbia: Current Development of In-Progress and Lapsed Works
Monuments and Memorials Authorized Under the Commemorative Works Act in the District of Columbia: Current Development of In Progress and Lapsed Works
Updated September 27, 2024
Congressional Research Service
https://crsreports.congress.gov
R43744
Congressional Research Service
SUMMARY
Monuments and Memorials Authorized Under the Commemorative Works Act in the District of Columbia: Current Development of In Progress and Lapsed Works
Under the Commemorative Works Act (CWA) of 1986, Congress may authorize commemorative works to be placed in the District of Columbia or its environs. Once a commemorative work has been authorized, Congress continues to be responsible for statutorily designating a memorial site location.
This report provides a status update on 16 in-progress memorials, 7 memorials with lapsed authorizations, and 1 with a repealed authorization. For each monument or memorial, the report provides a rationale for the work as expressed in the Congressional Record or a House or Senate committee report; its statutory authority; the group or groups sponsoring the commemoration; and the memorial’s location (or proposed location), if known. A picture or rendering of each work is also included, when available.
For more information on the Commemorative Works Act, see CRS Report R41658, Commemorative Works in the District of Columbia: Background and Practice, by Jacob R. Straus; CRS Report R43241, Monuments and Memorials in the District of Columbia: Analysis and Options for Proposed Exemptions to the Commemorative Works Act, by Jacob R. Straus; and CRS Report R43743, Monuments and Memorials Authorized and Completed Under the Commemorative Works Act in the District of Columbia, by Jacob R. Straus.
R43744
September 27, 2024
Jacob R. Straus Specialist on the Congress
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service
Contents
Introduction ..................................................................................................................................... 1 Commemorative Works Areas of the District of Columbia ............................................................. 1
Reserve ...................................................................................................................................... 2
Area I ......................................................................................................................................... 2
Area II ....................................................................................................................................... 2
Factors Potentially Influencing Commemorative Works’ Completion ............................................ 2
Site Location ............................................................................................................................. 3 Design Approval........................................................................................................................ 3 Fundraising ................................................................................................................................ 3
Authorized Commemorative Works ................................................................................................ 4 In-Progress Commemorative Works................................................................................................ 5
Memorials Under Construction ................................................................................................. 6
Desert Storm and Desert Shield .......................................................................................... 6
Memorials Being Designed ....................................................................................................... 8
Second Division Memorial Additions ................................................................................. 8
Peace Corps ....................................................................................................................... 10
Global War on Terrorism Memorial ................................................................................... 11
Fallen Journalists .............................................................................................................. 13 Republic of Texas Legation .............................................................................................. 14
Site Locations to Be Determined ............................................................................................ 16
John Adams and His Family ............................................................................................. 16 National Liberty Memorial (Slaves and Free Black Persons Who Served in the
Revolutionary War) ........................................................................................................ 17
Emergency Medical Services Memorial ........................................................................... 19 Women’s Suffrage Movement Memorial .......................................................................... 20
Medal of Honor Memorial ................................................................................................ 21 Women Who Worked on the Home Front in World War II ............................................... 22
National Service Animals and Handlers ........................................................................... 22 Jean Monnet ...................................................................................................................... 24
Enslaved Individuals Who Endured the Middle Passage .................................................. 24
Thomas Paine .................................................................................................................... 25
Commemorative Works with Lapsed, Replaced, or Repealed Authorizations .............................. 25
Lapsed Authorization With Reauthorizing Legislation Introduced in the 118th
Congress ............................................................................................................................... 26
Lapsed Authorization Without Reauthorizing Legislation Introduced in the 118th
Congress ............................................................................................................................... 26
National Peace Garden ...................................................................................................... 26
Benjamin Banneker ........................................................................................................... 27
Frederick Douglass ........................................................................................................... 27 Brigadier General Francis Marion .................................................................................... 28 Gold Star Mothers ............................................................................................................. 28
Vietnam Veterans Memorial Visitors Center ..................................................................... 29
Replaced Authorization ........................................................................................................... 31
Thomas Paine .................................................................................................................... 31
Repealed Authorization ........................................................................................................... 31
Black Revolutionary War Patriots ..................................................................................... 31
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service
Figures
Figure 1. National Desert Storm and Desert Shield War Memorial ................................................ 8 Figure 2. Second Division Memorial .............................................................................................. 9 Figure 3. Peace Corps Memorial .................................................................................................... 11
Figure 4. Fallen Journalist Memorial CFA-Approved Site Location ............................................ 14 Figure 5. Texas Legation Memorial .............................................................................................. 16 Figure 6. National Liberty Memorial ............................................................................................ 19 Figure 7. National Service Animals and Handlers Memorial Concept Design ............................. 23
Tables
Table 1. In-Progress and Lapsed Memorials in the District of Columbia and Its Environs ............ 4
Contacts
Author Information ........................................................................................................................ 32
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 1
Introduction
Since November 1986, the Commemorative Works Act (CWA) has provided the legal framework for the placement of commemorative works in the District of Columbia. Congress enacted the CWA to establish a statutory process for ensuring “that future commemorative works in areas administered by the National Park Service (NPS) and the General Services Administration (GSA) in the District of Columbia and its environs (1) are appropriately designed, constructed, and located and (2) reflect a consensus of the lasting significance of the subjects involved.”1 Areas administered by other agencies are not subject to the CWA. Responsibility for overseeing the design, construction, and maintenance of such works was delegated to the Secretary of the Interior or the Administrator of the GSA,2 the National Capital Planning Commission (NCPC), and the U.S. Commission of Fine Arts (CFA). Additionally, the CWA restricts placement of commemorative works to certain areas of the District of Columbia based on the subject’s historic importance.
Pursuant to the CWA, locating a commemorative work on federally owned and administered land in the District of Columbia requires the federal government to maintain the memorial unless otherwise stipulated in the enabling legislation. In some cases, however, authorized memorials are ultimately sited on land that falls outside of CWA jurisdiction and outside the boundaries of the District of Columbia and its environs. For example, Congress authorized the Air Force Memorial for placement on land owned and administered by either NPS or GSA in the District of Columbia. Memorial organizers, however, chose a site near the Pentagon in Arlington, VA, that is owned and administered by the Department of Defense. Consequently, the Department of Defense, not the NPS or GSA, is responsible for maintenance.
This report highlights in-progress works and memorials with lapsed authorizations since the passage of the CWA in 1986. The report provides information—located within text boxes for easy reference—on the statute(s) authorizing the work; the sponsor organization; statutory legislative extensions, if any;3 and the memorial’s location or proposed location, if known. A picture or rendering of each work is also included, when available.
Commemorative Works Areas of the District of Columbia
The CWA divides areas administered by the NPS and the GSA in the District of Columbia and its environs into three sections for the placement of memorials: the Reserve, Area I, and Area II. For
1 40 U.S.C. §8901(4).
2 Whether oversight of the design, construction, and maintenance of commemorative works authorized pursuant to the Commemorative Works Act falls to the Secretary of the Interior or the Administrator of the General Services Administration is determined by who administers the land on which the memorial is to be constructed. In all cases to date, the Secretary of the Interior has been the oversight official, as all authorized commemorative works have been placed or are scheduled to be placed on National Park Service land.
3 Pursuant to the Commemorative Works Act (40 U.S.C. §8903(e)(1)), all sponsor groups are provided with a seven- year period to complete the work necessary to complete (i.e., dedicate) the memorial. This time period can be extended administratively if the Secretary of the Interior or the Administrator of General Services issues a construction permit, or if Congress amends the initial statute to provide for additional time to complete the memorial’s design and construction. For more information, see CRS Report R41658, Commemorative Works in the District of Columbia: Background and Practice, by Jacob R. Straus.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 2
each area, the standards for memorial placement are specified in law, and congressional approval of monument location is required.
Reserve
The Reserve was created in November 2003, by P.L. 108-126, to prohibit the addition of future memorials in an area defined as “the great cross-axis of the Mall, which generally extends from the United States Capitol to the Lincoln Memorial, and from the White House to the Jefferson Memorial.”4 Under the act, this area is considered “a substantially completed work of civic art.”5 Within this area, “to preserve the integrity of the Mall … the siting of new commemorative works is prohibited.”6
Area I
Created as part of the original CWA in 1986, Area I is reserved for commemorative works of “preeminent historical and lasting significance to the United States.”7 Area I is roughly bounded by the West Front of the Capitol; Pennsylvania Avenue NW (between 1st and 15th Streets NW); Lafayette Square; 17th Street NW (between H Street and Constitution Avenue); Constitution Avenue NW (between 17th and 23rd Streets); the John F. Kennedy Center for the Performing Arts waterfront area; Theodore Roosevelt Island; National Park Service land in Virginia surrounding the George Washington Memorial Parkway; the 14th Street Bridge area; and Maryland Avenue SW, from Maine Avenue SW, to Independence Avenue SW, at the U.S. Botanic Garden.
Area II
Also created as part of the original CWA statute, Area II is reserved for “subjects of lasting historical significance to the American people.”8 Area II encompasses all sections of the District of Columbia and its environs not part of the Reserve or Area I.
Factors Potentially Influencing Commemorative Works’ Completion
Several factors may affect a memorial foundation’s ability to complete a memorial. These include settling on a desired site location, getting design approval, and raising the funds necessary to design and build a commemorative work.
4 40 U.S.C. §8902.
5 P.L. 108-126, §202(a), 117 Stat. 1348 (2003).
6 40 U.S.C. §8901 note; and 40 U.S.C. §8908(c). The placement of museums and visitors centers is also prohibited under 40 U.S.C. §8905(b)(5) and 40 U.S.C. §8908(c).
7 40 U.S.C. §8908 (b)(1). The Secretary of the Interior or the Administrator of General Services, after seeking the advice of the National Capital Memorial Advisory Commission, can recommend that a memorial be placed in Area I. If either the Secretary or the Administrator recommends placement in Area I, he or she must notify the House Committee on Natural Resources and the Senate Committee on Energy and Natural Resources. The Secretary or the Administrator notifies Congress by sending a letter to the Speaker of the House and the President of the Senate. If the recommendation is not enacted into law within 150 calendar days, the recommendation is not adopted and the memorial sponsor must consider sites in Area II.
8 40 U.S.C. §8908(b)(2).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 3
Site Location
Choosing a memorial site location is one of the biggest tasks for all authorized sponsor groups. Many groups want locations on or near the National Mall. The creation of the Reserve in 2003,9 however, makes placement of a future memorial on the National Mall difficult. Subsequently, many sponsor groups attempt to locate sites as close to the National Mall as possible in order to ensure that visitors have easy access to the memorial. For example, the Dwight D. Eisenhower Memorial is located on land directly south of the Smithsonian National Air and Space Museum, thus providing a prominent—just off the Mall—location.10
Likewise, the foundation previously authorized to construct a memorial to honor John Adams and his family’s legacy evaluated site locations as close to the National Mall as possible.
Design Approval
In 1986, as part of the CWA, Congress authorized the NCPC and the CFA to approve memorial designs. The NCPC and the CFA were tasked with carrying out the goals of the CWA, which are
(1) to preserve the integrity of the comprehensive design of the L’Enfant and McMillan plans for the Nation’s Capital; (2) to ensure the continued public use and enjoyment of open space in the District of Columbia and its environs, and to encourage the location of commemorative works within the urban fabric of the District of Columbia; (3) to preserve, protect, and maintain the limited amount of open space available to residents of, and visitors to, the Nation’s Capital; and (4) to ensure that future commemorative works in areas administered by the National Park Service and the Administrator of General Services in the District of Columbia and its environs are … appropriately designed, constructed, and located; and … reflect a consensus of lasting national significance of the subjects involved.11
In some instances, sponsor groups have difficulty creating a memorial vision that meets the specifications of the NCPC, CFA, and the National Capital Memorial Advisory Commission (NCMAC). In these cases, groups will often have to present multiple designs to these bodies before getting final design approval. For example, the Eisenhower Memorial Commission has presented variations on the design for the Eisenhower Memorial to the NCPC multiple times.12 In all instances, the NCPC gave feedback to the memorial design team and asked them to continue work to comply with NCPC guidelines for memorial construction.13
Fundraising
Perhaps the most challenging step in the commemorative works process for many sponsor groups is raising the necessary funds to design and build a commemorative work. Although most sponsor groups do not anticipate fundraising difficulties, some groups have experienced challenges.
9 P.L. 108-126, §202, 117 Stat. 1349 (2003).
10 For a further discussion of memorial siting, see CRS In Focus IF11937, Commemorative Works Act: Siting Memorials in the District of Columbia, by Jacob R. Straus.
11 40 U.S.C. §8901.
12 For example, the National Capital Planning Commission’s web page on the Eisenhower Memorial lists five formal presentations by the Eisenhower Memorial Commission. For more information, see National Capital Planning Commission, “Dwight D. Eisenhower Memorial,” at https://www.ncpc.gov/projects/eisenhower/.
13 National Capital Planning Commission, “Dwight D. Eisenhower Memorial,” Commission Action, File No. 6694, at https://www.ncpc.gov/docs/actions/2017October/ 6694_Dwight_D._Eisenhower_Memorial_Modification_Staff_Report_Oct2017.pdf.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 4
Failure to raise the necessary funds can be used as a reason not to extend a memorial’s authorization beyond the initial seven-year period. In some cases, even though the CWA generally prohibits the use of federal funds for memorial design and construction,14 Congress has authorized appropriations to aid sponsor groups in their fundraising efforts. For example, in 2005, Congress appropriated $10 million to the Secretary of the Interior “for necessary expenses for the Memorial to Martin Luther King, Jr.”15 The appropriation was designated as matching funds, making them available only after being matched by nonfederal contributions.16
Since the enactment of the Commemorative Works Act in 1986, 48 memorials and monuments have been authorized by statute. On a yearly basis, however, legislation is pending before Congress to consider a wide range of additional commemorative works. Pursuant to the CWA, future commemorative works will continue to be considered according to congressional guidelines. If new commemorative works are authorized or currently authorized commemorative works are completed, this report will be updated accordingly.
Authorized Commemorative Works
Since the passage of the Commemorative Works Act (CWA) in 1986, Congress has authorized 48 commemorative works to be placed in the District of Columbia or its environs. Of these works, 16 are in progress, 7 have lapsed authorizations, and 1 had its authorization repealed. Table 1 lists commemorative works authorized by Congress since 1986 that are in progress, with authorizations that have lapsed, or with an authorization that has been repealed.
Table 1. In-Progress and Lapsed Memorials
in the District of Columbia and Its Environs
Congress Memorial Authorizing Legislation
In-Progress Commemorative Works
107 John Adams and his Family’s Legacy P.L. 107-62, 115 Stat. 411 (2001)a
112 National Liberty Memorial (Slaves and Free Black Persons Who Served in American Revolution)f
P.L. 112-239, §2860, 126 Stat. 2164 (2013)
113 Desert Storm and Desert Shield P.L. 113-291, §3093, 128 Stat. 3879 (2014)
113 Peace Corps P.L. 113-78, 127 Stat. 647 (2013)
115 Global War on Terrorismb P.L. 115-51, 131 Stat. 1003 (2017)
115 Second Division Memorial Modifications P.L. 115-141, Division G, §121(a)(1), 132 Stat. 661 (2018)c
115 Emergency Medical Services P.L. 115-275, 132 Stat. 4164 (2018)
116 Women’s Suffrage Movement Memorial P.L. 116-217, 134 Stat. 1052 (2020)
116 Republic of Texas Legation P.L. 116-248, 134 Stat. 1124 (2020)
116 Fallen Journalists P.L. 116-253, 134 Stat. 1135 (2020)
117 Medal of Honor P.L. 117-80, 135 Stat. 1538 (2021)
14 For example, see the statute authorizing the American Veterans Disabled for Life Memorial (P.L. 106-348, 114 Stat. 1358 [2000]).
15 P.L. 109-54, §134, 119 Stat. 526 (2005).
16 P.L. 109-54, §134, 119 Stat. 527 (2005).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 5
Congress Memorial Authorizing Legislation
117 Women Who Worked on the Home Front in World War II
P.L. 117-328, Division DD, Subtitle D, Title VII, §702 (2022)
117 Service Animals and Handlers P.L. 117-328, Division DD, Subtitle D, Title VII, §704 (2022)
117 Jean Monnet P.L. 117-328, Division DD, Subtitle D, Title VII, §705 (2022)
117 Enslaved Individuals who Endured the Middle Passage
P.L. 117-328, Division DD, Subtitle D, Title VII, §707 (2022)
117 Thomas Paine P.L. 117-328, Division DD, Subtitle D, Title VII, §709 (2022)
Lapsed Authorizations for Commemorative Worksd
100 National Peace Garden P.L. 100-63, 101 Stat. 379 (1987)
102 Thomas Paine P.L. 102-407, 106 Stat. 1991 (1992)
105 Benjamin Banneker P.L. 105-355, Title V, §512, 112 Stat. 3266 (1998)
106 Frederick Douglass P.L. 106-479, 114 Stat. 2184 (2000)
108 Vietnam Veterans Memorial Visitors Center P.L. 108-126, 117 Stat. 1348 (2003)
110 Brigadier General Francis Marion P.L. 110-229, §331, 122 Stat. 781 (2008)
112 Gold Star Motherse P.L. 112-239, §2859, 126 Stat. 2164 (2013)
Repealed Authorizations
99 Black Revolutionary War Patriotsf P.L. 99-558, 100 Stat. 3144 (1986)
Source: 40 U.S.C. §8903 note and CRS analysis of memorial legislation. a. The memorial to John Adams and his family’s legacy was reauthorized by P.L. 116-9, (§2406(l), 133 Stat. 749, [2019]), until December 2025.
b. P.L. 117-81 (§6605), the National Defense Authorization Act for Fiscal Year 2022, authorized the Global War on Terrorism Memorial Foundation to site the Global War on Terrorism Memorial in the Reserve.
c. P.L. 115-141 incorporated S. 1460, §7130 (115th Congress; Energy and Natural Resources Act of 2017) to authorize modifications to the Second Division Memorial.
d. Authority for these memorials lapsed prior to construction permits being issued to the sponsoring group.
e. Legislation to reauthorize this memorial was introduced in the 117th Congress (H.R. 2365, introduced April 5, 2021, passed the House July 26, 2021, and S. 1938, introduced May 27, 2021).
f. P.L. 112-239, §2860 repealed an authorization to the Black Revolutionary War Patriots Foundation to create a Black Revolutionary War Veterans Memorial that had been authorized by P.L. 99-558 (100 Stat. 3144 [1986]). P.L. 112-239 provided a new authorization for the Slaves and Free Black Persons Who Served in the American Revolution Memorial to the National Mall Liberty Fund DC. The Liberty Fund commonly calls the memorial the National Liberty Memorial. P.L. 117-328, Division DD, Subtitle D, Title VII, §703 reauthorized and extended the Liberty Fund’s authorization until September 30, 2027.
In-Progress Commemorative Works
Currently, 16 commemorative works have active authorizations and are in various stages of development. These include the following:
• Memorials Under Construction
Desert Storm and Desert Shield.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 6
• Memorials Being Designed
Second Division Memorial modifications,
Peace Corps Memorial,
Global War on Terrorism Memorial,
Fallen Journalists Memorial, and
Republic of Texas Legation Memorial.
• Memorials Evaluating Site Locations
John Adams and his Family’s Legacy Memorial,
National Liberty Memorial (Slaves and Free Black Persons Who Served in the Revolutionary War),
Emergency Medical Services Memorial,
Women’s Suffrage Movement Memorial,
Medal of Honor Memorial,
Women Who Worked on the Home Front in World War II,
Service Animals and Handlers,
Jean Monnet,
Enslaved Individuals who Endured the Middle Passage, and
Thomas Paine.
Memorials Under Construction
Desert Storm and Desert Shield
In December 2014, as part of the Carl Levin and Howard P. “Buck” McKeon National Defense Authorization Act for Fiscal Year 2015, Congress authorized the National Desert Storm Memorial Association to establish a National Desert Storm and Desert Shield Memorial in the District of Columbia to “commemorate and honor those who, as a member of the Armed forces, served on active duty in support of Operation Desert Storm or Operation Desert Shield.”17 During debate on the House version of the bill (H.R. 503), Representative Doc Hastings, chair of the House Natural Resources Committee, summarized the need for a memorial:
Over 600,000 American servicemen deployed for Operations Desert Storm and Desert Shield and successfully led a coalition of over 30 countries to evict an invading army to secure the independence of Kuwait.
This memorial will recognize their success, but it will also serve as a commemoration of those nearly 300 Americans who made the ultimate sacrifice on our behalf.18
17 P.L. 113-291, §3093(b)(1), 128 Stat. 3858 (2014).
18 Rep. Doc Hastings, “National Desert Storm and Desert Shield War Memorial Act,” House debate, Congressional Record, daily edition, vol. 160 (May 28, 2014), p. H4858. In August 2016, Secretary of the Interior Sally Jewell notified Congress of her recommendation that the memorial be placed in Area I (Letter from Sally Jewell, Secretary of the Interior, to Vice President Joe Biden, August 31, 2016).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 7
On March 31, 2017, President Trump signed S.J.Res. 1, to provide the memorial with a location in Area I.19 The memorial is to be located at the southwest corner of Constitution Avenue, NW, and 23rd Street, NW. On July 14, 2022, the National Desert Storm Memorial Association held a ceremonial groundbreaking.20 The memorial has received final approval from the NCPC21 and CFA.22
The National Desert Storm Memorial Association’s authority was scheduled to lapse on March 31, 2024.23 In early March, the National Desert Storm Memorial Association requested an administrative authorization extension from the Secretary of the Interior until March 31, 2027.24 Secretary Haaland granted the request under 40 U.S.C. §8903(e).25 In her approval letter, Secretary Haaland wrote
The Association’s authority to establish the memorial will expire on March 31, 2024. Under the CWA, 40 U.S.C § 8903(e), I have the authority to grant the Association a one- time extension of that authority for a period not to exceed 3 years if certain conditions are met. The Association obtained final design approval from the National Capital Planning Commission … and obtained final design approval from the Commission of Fine Arts…. At present, the Association has raised at least 75 percent of the funds estimated to be necessary to complete the memorial.26
Figure 1 shows a rendering for the National Desert Storm and Desert Shield Veteran’s War Memorial.
19 P.L. 115-18, 131 Stat. 82 (2017).
20 National Desert Storm Memorial Association, “Groundbreaking Ceremony July 14, 2022: National Desert Storm and Desert Shield Memorial,” press release, July 12, 2022, at https://static1.squarespace.com/static/ 5953eb36e58c622063d2f399/t/62cd907f73135467d88aeb6b/1657639039812/July+12+Press+Release.pdf; and National Desert Storm Memorial Association, “Groundbreaking Ceremony,” at http://www.ndswm.org/ groundbreaking-ceremony.
21 National Capital Planning Commission, “National Desert Shield and Desert Storm Memorial,” Commission Action, NCPC File Number 7745, September 7, 2023, at https://www.ncpc.gov/docs/actions/2023September/ 7745_National_Desert_Shield_and_Desert_Storm_Memorial_Updates_Commission_Action_Sep2023.pdf; and National Capital Planning Commission, “NCPC Approves Final Plans for the National Desert Shield and Desert Storm Memorial,” press release, December 5, 2022, https://www.ncpc.gov/news/item/190/1/.
22 Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym A. Hall, area director, Region 1- National Capital Area National Park Service, January 11, 2024, https://www.cfa.gov/records-research/project-search/ cfa-18-jan-24-g.
23 National Capital Memorial Advisory Commission, “Transcript,” March 19, 2024,” p. 34, at https://parkplanning.nps.gov/showFile.cfm?sfid=722704&projectID=44217.
24 Letter from Scott Stump, CEO/President National Desert Storm Memorial Association, to Honorable Deb Haaland, Secretary of the Interior, March 8, 2024, https://parkplanning.nps.gov/showFile.cfm?sfid=716240&projectID=44217.
25 The CWA provides that legislative authority for a commemorative work expires “at the end of the seven-year period beginning on the date of the enactment of such authority, or at the end of the seven-year period beginning on the date of the enactment of legislative authority to locate the commemorative work within Area I, if such additional authority has been granted.” The CWA also provides that the Secretary of the Interior (or Administer of GSA) can grant an administrative extension if a construction permit has been issued for the memorial or, after consultation with the National Capital Memorial Advisory Commission (NCMAC) a determination has been made that “(A) final design approvals have been obtained from the National Capital Planning Commission and the Commission of Fine Arts; and (B) 75 percent of the amount estimated to be required to complete the commemorative work has been raised.”
26 Letter from Honorable Deb Haaland, Secretary of the Interior to Scott Stump, president and chief executive officer, National Desert Storm War Memorial Association, March 25 ,2024, at https://parkplanning.nps.gov/showFile.cfm? sfid=721916&projectID=44217.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 8
Figure 1. National Desert Storm and Desert Shield War Memorial
Approved Final Site Development Plan
Source: National Capitol Planning Commission, “Commission Action,” National Desert Storm and Desert Shield Memorial, NCPC File Number 7745, December 1, 2022, at https://www.ncpc.gov/docs/actions/ 2022December/7745_National_Desert_Shield_and_Desert_Storm_Memorial_Commission_ Action_Dec2022.pdf.
Authorization Statute: P.L. 113-291, §3093 (2014)
Sponsor Organization: National Desert Storm Memorial Association
(http://www.ndswm.org)
Statutory Extension: N/A
Location: Area I (P.L. 115-18, 131 Stat. 82 (2017))
Dedication: TBD
Memorials Being Designed
Second Division Memorial Additions
On March 23, 2018, as part of the Consolidated Appropriations Act, 2018 (P.L. 115-141), modifications to the Second Division Memorial were authorized.27 The Second Division Memorial was initially dedicated on July 18, 1936, to commemorate the division’s World War I casualties, and “two wings were dedicated on June 20, 1962, with significant battles of World
27 P.L. 115-141, Division G, §121(a)(1), 132 Stat. 661 (2018). P.L. 115-141 incorporated by reference Section 7130 of S. 1460 (115th Congress), the Energy and Natural Resources Act of 2017.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 9
War II inscribed on the west and of the Korean War on the east.”28 P.L. 115-141 authorizes the placement of “additional commemorative elements or engravings on the raised platform or stone work of the existing Second Division Memorial ... to further honor the members of the Second Infantry Division who have given their lives in service to the United States.”29
In November 2020, CFA reviewed proposed modifications to the Second Division Memorial.30 In March 2021, NCPC approved the final plans for the memorial additions.31 Figure 2 shows the proposed modification to the Second Division Memorial.
Figure 2. Second Division Memorial
Source: Second Infantry Division Association Memorial Foundation, “Second Infantry Division Memorial Modification,” CFA Submission, November 19, 2020, p. 21, at https://www.cfa.gov/system/files/meeting-materials/ CFA-19NOV20-2-Second_Division_Memorial_%28pres%29.pdf.
Authorization Statute: P.L. 115-141, Division G, §121(a)(1), 132 Stat. 661 (2018)
Sponsor Organization: Second Division Indianhead Division Association, Inc.
(https://www.2idmemorialsfoundation.org)
Statutory Extension: N/A
Location: Reserve
Dedication: TBD
28 U.S. Department of the Interior, National Park Service, “Second Division Memorial,” The White House and President’s Park, at https://www.nps.gov/places/second-division-memorial.htm.
29 P.L. 115-141, Division G, §121(a)(1).
30 Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym A. Hall, Area Director, Region 1— National Capital Area, National Park Service, November 25, 2020, at https://cfa.gov/records-research/project-search/ cfa-19-nov-20-2.
31 National Capital Planning Commission, “NCPC Approves Final Plans for Second Division Memorial Modification,” press release, March 5, 2021, at https://www.ncpc.gov/news/item/133/1/.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 10
Peace Corps
In January 2014, Congress authorized the Peace Corps Memorial Foundation to establish a commemorative work in the District of Columbia to “commemorate the mission of the Peace Corps and the ideals on which the Peace Corps was founded.”32 During House debate on the bill (S. 230), Representative Raúl Grijalva, then-ranking member of the House Natural Resources Committee, Subcommittee on Public Lands and Environmental Regulations, summarized his understanding of the aims of the Peace Corps Memorial:
Last November, we marked the 50th anniversary of President Kennedy’s tragic assassination. Losing President Kennedy left a lasting scar on the American psyche, but his legacy lives on through his words and ideas, including the establishment of the Peace Corps, an institution that has sent over 200,000 Americans to 139 countries in its 52-year history.
S. 230 authorizes construction of a memorial to commemorate the mission of the Peace Corps and the values on which it was founded. I cannot think of a better way to celebrate President Kennedy’s legacy and the tremendous accomplishments of the Peace Corps.
With the passage of S. 230, we will be sending a worthwhile bill to the President’s desk. I am glad we have been able to put our differences aside and pass such a meaningful bill in the first few weeks of the new year.33
The Peace Corps Memorial is to be located between 1st Street, NW, Louisiana Avenue, NW, and C Street, NW, in the District of Columbia. In November 2021, the Peace Corps Memorial Foundation received preliminary design approval with comments from CFA.34 In September 2022, NCPC approved the memorial’s preliminary site development plans.35
In the 116th Congress, the Peace Corps Commemorative Foundation’s authority to construct a memorial was extended until January 24, 2028.36 Figure 3 shows the concept design for the Peace Corps Memorial as presented to CFA and NCPC.
32 P.L. 113-78, §1(a), 127 Stat. 647 (2014).
33 Rep. Raúl Grijalva, “Peace Corps DC Commemorative Work Act,” House debate, Congressional Record, daily edition, vol. 160 (January 13, 2014), p. H168.
34 Letter from Thomas E. Luebke, Secretary, U.S. Commission of Fine Arts to Kym. A. Hall, area director, Region 1- National Capital Area, National Park Service, November 24, 2021, at https://www.cfa.gov/records-research/project- search/cfa-18-nov-21-1.
35 National Capital Planning Commission, “Peace Corps Commemorative Park,” Commission Action, NCPC File Number 7623, at https://www.ncpc.gov/docs/actions/2022September/ 7623_Peace_Corps_Commemorative_Park_Commission_Action_Sep2022.pdf.
36 P.L. 116-318, 134 Stat. 5069 (2021).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 11
Figure 3. Peace Corps Memorial
Concept Design
Source: Peace Corps Commemorative Foundation, “View of threshold between benches.”
Authorization Statute: P.L. 113-78, 127 Stat. 647 (2014)
Sponsor Organization: Peace Corps Commemorative Foundation
(https://www.peacecorpscommemorative.org)
Statutory Extension: Authorization extended through January 24, 2028
P.L. 116-318, 134 Stat. 5069 (2021)
Location: Area II
Dedication: TBD
Global War on Terrorism Memorial
In August 2017, Congress authorized the Global War on Terrorism Memorial Foundation to establish a commemorative work in the District of Columbia to “commemorate and honor the members of the Armed Forces that served on active duty in support of the Global War on Terrorism.”37 During debate on the bill (H.R. 873) in the House, Representative Tom McClintock, then chair of the Federal Lands Subcommittee of the House Committee on Natural Resources, stated why a memorial to the Global War on Terrorism is important, despite a statutory prohibition against war memorials for ongoing conflicts.38
The Commemorative Works Act requires that a war be ended for at least 10 years before planning can commence on a national memorial. There is good reason for this requirement: it gives history the insight to place the war in an historic context and to begin to fully appreciate its full significance to our country and future generations.
37 P.L. 115-51, 121 Stat. 1003 (2017).
38 40 U.S.C. §8903(b) and (c).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 12
But the war on terrorism has been fought in a decidedly different way than our past wars. We are now approaching the 16th anniversary of the attack on New York and Washington. The veterans who sacrificed so much to keep that war away from our shores deserve some tangible and lasting tribute to their patriotism and altruism while they, their families, and their fellow countrymen can know it. The Gold Star families of our fallen heroes for whom the war will never end deserve some assurance that their sons and daughters will never be forgotten by a grateful Nation.
We should remember that many of our Nation’s heroes from World War II never lived to see the completion of the World War II Memorial, which was completed 59 years after the end of that conflict.
For these reasons, this measure suspends the 10-year period in current law. It doesn't repeal it. It merely sets it aside for the unique circumstances of the current war on terrorism.39
On December 27, 2021, President Joe Biden signed legislation that authorizes the Global War on Terrorism memorial to be located in the Reserve and provides that the memorial is otherwise subject to the CWA.40 The legislation states
The National Global War on Terrorism Memorial authorized by section 2(a) of the Global War on Terrorism War Memorial Act (40 U.S.C. 8903 note; P.L. 115-51; 131 Stat. 1003) (referred to in this section as the “Memorial”) shall be located within the Reserve.41
The Global War on Terrorism Memorial Foundation is currently conducting site evaluations focused on three locations: Constitution Avenue and 23rd Street, NW; Constitution Gardens; and along the Potomac River on Ohio Drive.42 The foundation presented its site selection study to the NCMAC in October 2022,43 to the CFA in March 2023,44 and to NCPC in April 2023.45
Authorization Statute: P.L. 115-51, 131 Stat. 1003 (2017)
Sponsor Organization: Global War on Terrorism Memorial Foundation
(https://www.gwotmemorialfoundation.org)
Statutory Extension: N/A
39 Rep. Tom McClintock, “Global War on Terrorism Memorial Act,” Congressional Record, daily edition, vol. 163 (July 28, 2017), p. H6544.
40 P.L. 117-81, §6605, 135 Stat. 2442 (2021). In the 116th Congress (H.R. 5046 and S. 4564) and the 117th Congress (H.R. 1115 and S. 535), legislation was introduced to authorize the siting of the Global War on Terrorism Memorial in the Reserve at three specific sites: Constitution Gardens, the JFK Hockey Fields, and West Potomac Park. P.L. 117-81 does not provide specific site locations for consideration.
41 P.L. 117-81, §6605(a).
42 Global War on Terrorism Memorial Foundation, “Site Selection Study/Concept Review: U.S. Commission of Fine Arts, March 16, 2023,” p. 16, at https://cfa.gov/system/files/meeting-materials/2-CFA-16MAR23-2-NPS-GWOT-site- selection_pres.pdf.
43 National Capital Memorial Advisory Commission, “Global War on Terrorism Memorial Site Assessment and Presentation,” October 18, 2022, at https://parkplanning.nps.gov/document.cfm?parkID=463&projectID=44217& documentID=123676; and National Capital Memorial Advisory Commission, “January 31, 2023 Meeting Transcript,” at https://parkplanning.nps.gov/showFile.cfm?projectID=44217&MIMEType=application%252Fpdf&filename= 013123%20NPS%20NCMAC%5FTranscript%2Epdf&sfid=635323.
44 U.S. Commission of Fine Arts, “CFA Meeting—16 March 2023,” at https://cfa.gov/records-research/record-cfa- actions/2023/03/cfa-meeting; and Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym Hall, area director, Region 1-National Capital Area, National Park Service, March 23, 2023, at https://cfa.gov/records- research/project-search/cfa-16-mar-23-2.
45 The NCPC supported advancing the Constitution Avenue and 23rd Street, NW and Potomac River sites for further exploration. See National Capital Planning Commission, “Global War on Terrorism Memorial Site Selection,” Commission Action, NCPC File, No. 8450, April 6, 2023, athttps://www.ncpc.gov/docs/actions/2023April/ 8450_Global_War_on_Terrorism_Memorial_Site_Selection_Commission_Action_Apr2023.pdf.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 13
Location: Reserve
Dedication: TBD
Fallen Journalists
In December 2020, Congress authorized the Fallen Journalists Memorial Foundation to establish a commemorative work in the District of Columbia to “commemorate America’s commitment to a free press by honoring journalists who sacrificed their lives in service to that cause.”46 During House debate on the bill (H.R. 3465), Representative Deb Haaland, then chair of the National Parks, Forests, and Public Lands Subcommittee of the House Committee on Natural Resources, stated why she considered a memorial to fallen journalists to be important:
Every day, journalists at home and abroad place their lives at risk in pursuit of the truth and in defense of our First Amendment right to a free and independent press.
In 2018 alone, nearly 80 journalists from around the world were murdered in their line of work. Yet, with the closure of the Newseum earlier this year, there is no memorial that commemorates those who have paid the ultimate sacrifice while fulfilling their duty to deliver the news.
The memorial envisioned in H.R. 3465 would be a fitting tribute to their sacrifices and an affirmation of our Nation’s commitment to a free press.47
In December 2022, Congress authorized the Fallen Journalists Memorial Foundation to site the memorial in Area I.48 In April 2023, the Fallen Journalists Memorial Foundation presented its site selection study to NCPC,49 and to CFA.50 The Fallen Journalists Memorial is to be located on “a triangle park bounded by Maryland and Independence Avenues and 3rd Street, SW, adjacent to the National Museum of the American Indian.”51 In September 2024, the Fallen Journalists Memorial Association presented initial concept designs for the memorial to NCMAC,52 and CFA.53 Figure 4 shows the site location for the Fallen Journalists Memorial.
46 P.L. 116-253, §2(a), 134 Stat. 1135 (2020).
47 Rep. Deb Haaland, “Fallen Journalists Memorial Act,” Congressional Record, daily edition, vol. 166 (September 21, 2020), p. H4560.
48 P.L. 117-328, Division DD, Subtitle D, Title VII, §708, 136 Stat. 5620 (2022).
49 National Capital Planning Commission, “Fallen Journalists Memorial Site Selection Study,” April 6, 2023, at https://www.ncpc.gov/files/projects/2023/8449_Fallen_Journalists_Memorial_Submission_Materials_Apr2023.pdf; and National Capital Planning Commission, “Fallen Journalists Memorial Site Selection,” Commission Action, File No. 8449, at https://www.ncpc.gov/docs/actions/2023April/ 8449_Fallen_Journalists_Memorial_Site_Selection_Commission_Action_Apr2023.pdf.
50 U.S. Commission of Fine Arts, “Fallen Journalists Memorial Site Selection Study,” April 20, 2023, at https://cfa.gov/ system/files/meeting-materials/1-CFA-20APR23-1-NPS-Fallen-Journalists-Mem_pres.pdf.
51 Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym A. Hall, area director, Region 1— National Capital Area, National Park Service, April 27, 2023, https://www.cfa.gov/records-research/project-search/cfa- 20-apr-23-1. See also, National Capital Planning Commission, “Fallen Journalists Memorial Site Selection,” Commission Action, File No. 8449, at https://www.ncpc.gov/docs/actions/2023April/ 8449_Fallen_Journalists_Memorial_Site_Selection_Commission_Action_Apr2023.pdf.
52 National Fallen Journalists Memorial Association, “NCMAC Submission,” September 4, 2024, at https://parkplanning.nps.gov/showFile.cfm?sfid=755203&projectID=44217,
53 U.S. Commission of Fine Arts, “CFA Meeting—19 September 2024,” at https://cfa.gov/records-research/record-cfa- actions/2024/09/cfa-meeting.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 14
Figure 4. Fallen Journalist Memorial CFA-Approved Site Location
Source: Fallen Journalists Memorial Foundation, “Location,” About the Memorial, at https://fallenjournalists.org/ the-memorial/location.
Authorization Statute: P.L. 116-253, 134 Stat. 1135 (2020)
Sponsor Organization: Fallen Journalists Memorial Foundation
(https://www.fallenjournalists.org)
Statutory Extension: N/A
Location: Area I54
Dedication: TBD
Republic of Texas Legation
In December 2020, Congress authorized the Daughters of the Republic of Texas to establish a commemorative work in the District of Columbia to “honor those who, as representatives of the Republic of Texas, served in the District of Columbia as diplomats to the United States and made possible the annexation of Texas as the twenty-eighth State of the United States.”55 During House debate on the bill (H.R. 3349), Representative Deb Haaland, then chair of the National Parks, Forests, and Public Lands Subcommittee of the House Committee on Natural Resources, stated why she considered a memorial to the Republic of Texas Legation to be important:
Shortly after Texas declared its independence from Mexico in 1836, the Republic of Texas sent diplomats to several countries to represent the Republic’s interests. Among other things, these diplomats advocated for protection from Mexico, financial assistance, and annexation by the United States.
54 P.L. 117-328, Division DD, Subtitle D, Title VII, §708, 136 Stat. 5620 (2022).
55 P.L. 116-248, §2(a), 134 Stat. 1124 (2020).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 15
London and Paris have each erected commemorative works to recognize the role their Texas legations played in their countries, and it seems only fitting to install one here in the capital of the country proud to claim Texas as its own.56
In late 2021, the Daughters of the Republic of Texas presented their site selection study to the CFA (November 2021)57 and NCPC (December 2021).58 In February 2024, CFA approved the memorial’s concept design,59 and in March 2024, NCPC approved the memorial’s preliminary site development plans.60 The Texas Legation Memorial will be “within an existing raised planter bed along the 600 block of Indiana Avenue, NW.”61 Figure 5 shows the Daughters of the Republic of Texas’s preferred concept rendering.
56 Rep. Deb Haaland, “Republic of Texas Legation Memorial Act,” Congressional Record, daily edition, vol. 166 (September 21, 2020), p. H4558.
57 U.S. Commission of Fine Arts, “CFA Meeting—18 November 2021,” at https://www.cfa.gov/records-research/ record-cfa-actions/2021/11/cfa-meeting; and Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym A. Hall, area director, Region 1-National Capital Area, National Park Service, November 24, 2021, https://www.cfa.gov/records-research/project-search/cfa-18-nov-21-3.
58 National Capital Planning Commission, “Texas Legation Memorial Site Selection,” Commission Action, NCPC File Number 8330, December 2, 2021, at https://www.ncpc.gov/docs/actions/2021December/ 8330_Texas_Legation_Memorial_Site_Selection_Commission_Action_Dec2021.pdf.
59 Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym A. Hall, area director, Region 1- National Capital Area National Park Service, February 3, 2024, https://www.cfa.gov/records-research/project-search/ cfa-15-feb-24-2.
60 National Capital Planning Commission, “Texas Legation Memorial,” Commission Action, NCPC File 8330, March 7, 2024, at https://www.ncpc.gov/docs/actions/2024March/ 8330_Texas_Legation_Memorial_Commission_Action_Mar2024.pdf.
61 Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Kym A. Hall, area director, Region 1- National Capital Area National Park Service, February 3, 2024, https://www.cfa.gov/records-research/project-search/ cfa-15-feb-24-2.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 16
Figure 5. T exas Legation Memorial
Preferred Concept Rendering
Source: National Capitol Memorial Advisory Commission, “Daughters of the Republic of Texas Legation Memorial Presentation,” March 13, 2024, at https://parkplanning.nps.gov/showFile.cfm?sfid=718103&projectID= 44217.
Authorization Statute: P.L. 116-248, 134 Stat. 1124 (2020)
Sponsor Organization: Daughters of the Republic of Texas
(https://www.drtinfo.org)
Statutory Extension: N/A
Location: Area II (Indiana Avenue, NW)
Dedication: TBD
Site Locations to Be Determined
John Adams and His Family
In November 2001, Congress authorized the Adams Memorial Foundation to “establish a commemorative work on Federal land in the District of Columbia and its environs to honor former President John Adams, along with his wife Abigail Adams and former President John Quincy Adams, and the family’s legacy of public service.”62 In remarks during debate on the bill (H.R. 1668), Representative Joel Hefley summarized the importance of the Adams family to American history:
Perhaps no American family has contributed as profoundly to public service as the family that gave the Nation its second President, John Adams; his wife, Abigail Adams; and their son, our sixth President, John Quincy Adams, who was also, by the way, a member of this body. The family’s legacy was far reaching, continuing with John Quincy Adams’s son,
62 P.L. 107-62, 115 Stat. 411-412 (2001).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 17
Charles Francis Adams, who was also a member of this body and an ambassador to England during the Civil War; and his son, Henry Adams, an eminent writer and scholar, and it goes on and on.63
In March 2019, as part of the enactment of the John D. Dingell, Jr. Conservation, Management, and Recreation Act, Congress created the Adams Memorial Commission.64 The Adams Memorial Commission replaces the Adams Memorial Foundation as the memorial’s sponsor. Moving forward, the commission will be responsible for all aspects of the memorial’s siting, design, and construction.65
Authorization Statute: P.L. 107-62, 115 Stat. 411 (2001)
Sponsor Organization: Adams Memorial Commission
(P.L. 116-9, §2406(l), 133 Stat. 749 [2019])
Statutory Extensions:
Authorization extended through September 30, 2010 P.L. 111-88, §130, 123 Stat. 2933 (2009)
Authorization extended through December 2, 2013 P.L. 111-169, 124 Stat. 1192 (2010)
Authorization extended through December 2, 2020 P.L. 113-291, §3094, 128 Stat. 3880 (2014)
Authorization Extended through December 2, 2025 P.L. 116-9, §2406(l), 133 Stat. 749 (2019)
Location: TBD66
Dedication: TBD
National Liberty Memorial (Slaves and Free Black Persons Who Served in the Revolutionary War)
In December 2012, Congress authorized the National Mall Liberty Fund DC to establish a commemorative work “to honor the more than 5,000 courageous slaves and free Black persons who served as soldiers and sailors or provided civilian assistance during the American Revolution.”67 Additionally, P.L. 112-239 repealed a 1986 authorization to the Black Revolutionary War Patriots Foundation to establish a commemorative work for black
63 Rep. Joel Hefley, “Authorizing Adams Memorial Foundation to Establish Commemorative Work Honoring Former President John Adams,” remarks in the House, Congressional Record, vol. 147, part 8 (June 25, 2001), p. 11757.
64 P.L. 116-9, §2406, 133 Stat. 748 (2019). The commission consists of 12 members: four appointed by the President; four Senators appointed by the President pro tempore of the Senate in consultation with the Senate majority leader and the Senate minority leader; and four Members of the House of Representatives appointed by the Speaker of the House in consultation with the House majority leader and the House minority leader.
65 In December 2013, the Adams Memorial Foundation’s authorization expired. Prior to its lapse of authorization, the Adams Memorial Foundation was working with the NCMAC on the potential recommendation of a location in Area I. National Park Service, “National Capital Memorial Advisory Committee Meeting,” 76 Federal Register 32986, June 7, 2011. NCMAC had not endorsed any particular site location; it had recommended that the foundation continue its examination of numerous sites in the District of Columbia in order to find a suitable location. Author’s notes of National Capital Memorial Advisory Commission Meeting, June 23, 2011, National Building Museum, Washington, DC.
66 Prior to the Adams Memorial Foundation’s authorization expiration, the memorial had been approved for Area I (P.L. 107-315, 116 Stat. 2763 (2002)).
67 P.L. 112-239, §2860, 126 Stat. 2164 (2013).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 18
Revolutionary War veterans (discussed further in the section below on “Repealed Authorization”).68
In prepared remarks to the Senate Energy and Natural Resources Committee, Senator Joseph Lieberman summarized the need, from his perspective, for a memorial to African Americans who served in the Revolutionary War:
Throughout our history the sacrifices of these remarkable patriots have often been relegated to a mere footnote. This is unfortunate not only because it overlooks their service, but also because it prevents us from taking an honest, nuanced view of our nation’s history. By establishing a memorial to honor African Americans’ contributions to our nation’s founding, we will broaden all Americans’ understanding of the diversity of the patriots who helped to secure our independence.69
Further, in the Senate report accompanying the 2012 authorization (S. 883, 112th Congress), the Senate Committee on Energy and Natural Resources summarized the history of memorializing Black Revolutionary War veterans in the District of Columbia.
In 1986, Congress authorized the Black Revolutionary War Patriots Memorial Foundation to establish the Black Revolutionary War Patriots Memorial to honor the 5,000 courageous slaves and free Black persons who served as soldiers or provided civilian assistance during the American Revolution (P.L. 99-558).
In 1987 Congress enacted a second law, P.L. 100-265, authorizing placement of that memorial within the monumental core area as it was then defined by the Commemorative Works Act. In 1988, the National Park Service, the Commission of Fine Arts, and the National Capital Planning Commission approved a site in Constitution Gardens for the Black Revolutionary War Patriots Memorial and, in 1996, approved the final design. Despite four extensions of the memorial’s legislative authorization over 21 years, the Foundation was unable to raise sufficient funds for construction, the authority (and associated site and design approvals) finally lapsed in October 2005, and the Foundation disbanded with numerous outstanding debts and unpaid creditors.
S. 883 would authorize another nonprofit organization, the National Mall Liberty Fund D.C., to construct a commemorative work honoring the same individuals as proposed by the Black Revolutionary War Patriots Memorial Foundation, subject to the requirements of the Commemorative Works Act.70
On September 26, 2014, President Obama signed H.J.Res. 120 to provide the memorial with a location in Area I.71 In December 2022, Congress extended the National Mall Liberty Fund’s
68 P.L. 112-239, §2860(f) repeals P.L. 99-558 (100 Stat. 3144 [1986]), as amended by P.L. 99-590 (100 Stat. 3330 [1986]); and P.L. 99-591 (100 Stat. 3341 [1986]), which authorized the Black Revolutionary War Patriots Foundation to establish a memorial in the District of Columbia “the estimated five thousand courageous slaves and free black persons who served as soldiers and sailors or provided civilian assistance during the American Revolution and to honor countless black men, women, and children who ran away from slavery or filed petitions with courts and legislatures seeking their freedom.”
69 U.S. Congress, Senate Committee on Energy and Natural Resources, Miscellaneous National Park Bills, hearing on S. 264, S. 265, S. 324, S. 764, S. 864, S. 883, S. 888, S. 925, S. 970, S. 1063, and S. 1134, 112th Cong., 1st sess., July 28, 2011, S.Hrg. 112-214, p. 7.
70 U.S. Congress, Senate Committee on Energy and Natural Resources, Establishment of a Memorial to Honor Contributions of Free Persons and Slaves During the American Revolution, report to accompany S. 883, 112th Cong., 2nd sess., January 13, 2012, S.Rept. 112-118, pp. 1-2.
71 P.L. 113-176, 128 Stat. 1910 (2014). See also, “Approval of Memorial to Commemorative Slaves and Free Black Persons who Fought in the American Revolution,” Congressional Record, daily edition, vol. 160 (September 8, 2014), pp. H7273-H7274; and “Approving the Location of an American Revolution Memorial,” Congressional Record, daily edition, vol. 160 (September 11, 2014), p. S5518. Prior to the Liberty Memorial Fund’s authorization expiration in (continued...)
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 19
authority to construct a memorial until September 30, 2027.72 Previously, the Fund’s authority had expired in January 2020. Figure 6 shows a memorial concept design.
Figure 6. National Liberty Memorial
Concept Design
Source: Liberty Mall Fund DC, “Conceptual Design—National Liberty Memorial,” National Liberty Memorial Site Selection Report, presentation to the National Capital Memorial Advisory Commission, July 23, 2013.
Authorization Statute: P.L. 112-239, §2860, 126 Stat. 2164 (2013)
Sponsor Organization: National Mall Liberty Fund DC
(http://www.libertyfunddc.com)
Statutory Extension:
Authorization extended through September 30, 2027 (P.L. 117-328, Division DD, Subtitle D, Title VII, §703 [2022]) Location: Area I73
Dedication: TBD
Emergency Medical Services Memorial
In October 2018, Congress authorized the National Emergency Medical Services Memorial Foundation to establish a commemorative work in the District of Columbia to “commemorate the commitment and service represented by emergency medical services.”74 During House debate on the bill (H.R. 1037), Representative Tom McClintock, then chair of the Federal Lands
2020, it had publicly expressed interest in three sites: the National Mall at 14th Street and Independence Avenue, NW; Freedom Plaza; and Virginia Avenue and 19th Streets, NW, with a strong preference for the National Mall site, which is currently under the jurisdiction of the U.S. Department of Agriculture (http://libertyfunddc.com/site-selection-2). In the 114th Congress (2015-2016), legislation was introduced to designate the Secretary of Agriculture as the officer “responsible for the consideration of the site and design proposals and the submission of such proposals on behalf of the sponsor to the Commission of Fine Arts and the National Capital Planning Commission” in order to apply the CWA to the memorial. H.R. 1949 (114th Congress), passed the House on September 16, 2015. On March 17, 2016, the Senate Energy and Natural Resources Committee, Subcommittee on National Parks held a hearing on H.R. 1949. Additionally, the provisions of H.R. 1949 were also included as a House amendment to S. 2012, the North American Energy Security and Infrastructure Act of 2016. S. 2012 passed the Senate and the House in different forms, and a conference was held. No further action on S. 2012 occurred in the 114th Congress. No further action was taken on the measure.
72 P.L. 117-328, Division DD, Subtitle D, Title VII, §703 (2022).
73 P.L. 113-176, 128 Stat. 1910 (2014).
74 P.L. 115-275, 132 Stat. 4164 (2018).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 20
Subcommittee of the House Committee on Natural Resources, stated why he considered a memorial to the emergency medical services providers to be important:
Mr. Speaker, each year 850,000 EMS providers answer more than 30 million calls to serve 22 million patients in need at a moment’s notice and without reservation. For these heroes who serve on the front lines of medicine, sacrifice is a part of their calling. EMTs and paramedics have a rate of injury that is about three times the national average for all occupations, and some pay the ultimate price in the service of helping others.
The men and women of the emergency medical services profession face danger every day to save lives and help their neighbors in crisis. They respond to incidents ranging from a single person’s medical emergency to natural and manmade disasters, including terrorist attacks. But while their first responder peers in law enforcement and firefighting have been honored with national memorials, EMS providers have not.75
In October 2019, the National Emergency Medical Services Memorial Foundation presented its initial site selection study to CFA,76 and in December 2019 to NCPC.77
Authorization Statute: P.L. 115-275, 132 Stat. 4164 (2018)
Sponsor Organization: National Emergency Medical Services Memorial Foundation
(https://www.emsmemorial.org)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
Women’s Suffrage Movement Memorial
In December 2020, Congress authorized the Every Word We Utter Monument to establish a commemorative work in the District of Columbia to “commemorate the women’s suffrage movement and the passage of the 19th Amendment to the Constitution, which gave women the right to vote.”78 During House debate on the bill (H.R. 473), Representative Joe Neguse stated why he considered a memorial to the 19th Amendment to be important:
“Every word we utter, every act we perform, waft unto innumerable circles beyond.” Those are the words Elizabeth Cady Stanton that inspired the movement for H.R. 473, which will create Washington, D.C.’s first statue memorializing the women’s suffrage movement.
Today, we have the opportunity to honor the diverse and multigenerational group of women who fought for decades to secure women the right to vote.79
75 Rep. Tom McClintock, “Authorizing National Emergency Medical Services Memorial Foundation to Establish a Commemorative Work,” Congressional Record, daily edition, vol. 164 (July 17, 2018), p. H6338.
76 Letter from Thomas E. Luebke, Commission of Fine Arts secretary, to Lisa Mendelson-Ielmini, Acting Director, Region 1-National Capital Area, National Park Service, October 24, 2019, https://cfa.gov/records-research/project- search/cfa-17-oct-19-1.
77 National Capital Planning Commission, “Commission Action: Emergency Medical Services Memorial Site Selection,” NCPC File Number 8130, December 5, 2019, at https://www.ncpc.gov/docs/actions/2019December/ 8130_Emergency_Medical_Services_Memorial_Site_Selection_Commission_Action_Dec2019.pdf.
78 P.L. 116-217, §1(a), 134 Stat. 1135, (2020).
79 Rep. Joe Neguse, “Authorizing Every Word We Utter Monument to Establish a Commemorative Work,” Congressional Record, daily edition, vol. 166 (February 26, 2020), p. H1205.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 21
In October 2023, the Women’s Suffrage National Monument Foundation presented its site selection study to the NCMAC.80 The foundation is considering several sites, including sites in the Reserve. In the 118th Congress (2023-2024), legislation has been introduced to authorize the memorial in the Reserve—H.R. 1318 and S. 886. H.R. 1318 passed the House on November 6, 2023.81 On June 21, 2023, the Senate Energy and Natural Resources Committee, Subcommittee on National Parks held a hearing on S. 886.82
Authorization Statute: P.L. 116-217, 134 Stat. 1052 (2020)
Sponsor Organization: Every Word We Utter Monument
(https://www.womensmonument.org)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
Medal of Honor Memorial
In December 2021, Congress authorized the National Medal of Honor Museum Foundation to establish a commemorative work in the District of Columbia to “honor the extraordinary acts of valor, selfless service, and sacrifice displayed by Medal of Honor recipients.”83 During House debate on the bill (H.R. 1664), the bill’s sponsor, Representative Marc Veasey, stated why he considered a memorial to Medal of Honor recipients important:
This bill honors our Nation’s brave servicemembers by paving the way for the creation of a monument in our Nation’s Capital recognizing the Medal of Honor and its more than 3,500 recipients.
Our Nation’s Medal of Honor recipients are patriots. They have put their lives on the line to ensure we can live freely and prosperously in the greatest nation on Earth. That is why I am happy to have spearheaded this from the beginning and pay homage to the values the Medal of Honor represents—courage, patriotism, citizenship, integrity, commitment, and sacrifice—and the brave individuals who earned it in service to our country.84
The National Medal of Honor Foundation is seeking a site location in the Reserve.85 In the 118th Congress, H.R. 2717, which would provide for a location in the Reserve, passed the House in November 2023.86
80 National Capital Memorial Advisory Commission, “Women’s Suffrage National Monument,” October 4, 2023, at https://parkplanning.nps.gov/document.cfm?parkID=463&projectID=44217&documentID=131669.
81 H.R. 1318 (118th Congress), passed the House November 6, 2023; S. 886 (118th Congress), introduced June 21, 2023.
82 U.S. Congress, Hearing to Receive Testimony on Legislation, June 21, 2023, at https://www.energy.senate.gov/ hearings/2023/6/subcommittee-hearing-to-receive-testimony-on-legislation.
83 P.L. 117-80, §1(a), 135 Stat. 1539 (2021).
84 Rep. Marc Veasey, “Authorization to Establish Commemorative Work,” Congressional Record, daily edition, vol. 167 (July 26, 2021), p. H3861.
85 U.S. Congress, House Natural Resources Committee, Hershel “Woody” Williams National Medal of Honor Monument Location Act, report to accompany H.R. 2717, 118th Cong., 1st sess., November 3, 2023, H.Rept. 118-267 (Washington: GPO, 2023), at https://www.congress.gov/118/crpt/hrpt267/CRPT-118hrpt267.pdf.
86 H.R. 2717 (118th Congress), passed the House May 15, 2024. For more information, see U.S. Congress, House Natural Resources Committee, Hershel “Woody” Williams National Medal of Honor Monument Location Act, report to accompany H.R. 2717, 118th Cong., 1st sess., November 3, 2023, H.Rept. 118-267 (Washington: GPO, 2024), at https://www.congress.gov/118/crpt/hrpt267/CRPT-118hrpt267.pdf.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 22
Authorization Statute: P.L. 117-80, 135 Stat. 1539 (2021)
Sponsor Organization: National Medal of Honor Museum Foundation
(https://mohmuseum.org)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
Women Who Worked on the Home Front in World War II
In December 2022, Congress authorized the Women Who Worked the Home Front Foundation to establish a commemorative work in the District of Columbia to “commemorate the commitment and service represented by women who worked on the home front during World War II.”87 During House consideration of a standalone bill to authorize the memorial (H.R. 3531), Delegate Eleanor Holmes Norton stated why she considered a memorial to women who worked on the home front in World War II important:
This bill would authorize the Women Who Worked on the Home Front Foundation to establish a memorial to honor these women. The memorial is designed to be interactive and to educate visitors on the important role women played during World War II.
Between 1940 and 1945, the percentage of women in the workforce increased from 27 percent to nearly 37 percent. By 1945, one in four married women worked outside the home. The work done by women on the home front opened the doors for women in the workplace widely and has had a profound and lasting effect on the job market ever since.88
The Women Who Worked on the Home Front Foundation is seeking a proposed site for the memorial.89 In May 2024, legislation was introduced to authorize the Women Who Worked on the Home Front in World War II Memorial’s placement in Area I or in the Reserve.90
Authorization Statute: P.L. 117-328, Division DD, Subtitle D, Title VII, §702, 136 Stat. 5617 (2022)
Sponsor Organization: Women Who Worked on the Home Front Foundation
(https://wwiiwomenmemorial.org)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
National Service Animals and Handlers
In December 2022, Congress authorized the National Service Animals Monument Corporation to establish a commemorative work in the District of Columbia to “commemorate the heroic deeds and sacrifices of service animals and handlers of service animals in the United States.”91 During debate on a standalone bill to authorize the memorial (H.R. 6353), Representative Raúl Grijalva,
87 P.L. 117-328, Division DD, Subtitle D, Title VII, §702(a), 126 Stat. 5617 (2022).
88 Del. Eleanor Holmes Norton, “Women Who Worked on the Home Front World War II Memorial Act,” Congressional Record, vol. 167 (December 1, 2021), p. H6739.
89 Women Who Worked on the Home Front Foundation, “Choosing a Location for the Memorial,” at https://wwiiwomenmemorial.org/new-page-1.
90 H.R. 8307 (118th Congress), introduced May 8, 2024.
91 P.L. 117-328, Division DD, Subtitle D, Title VII, §704, 126 Stat. 5618 (2022).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 23
then chair of the House Natural Resources Committee, stated why he considered a memorial to service animals important:
The bill recognizes the National Service Animals Monument Corporation’s mission to honor and recognize the broad scope of service animals through a memorial to educate the public of the contributions by service animals and of the human-animal bond between service animals and their handlers.
The memorial will ensure that the contributions of service and working animals are understood, and that their history is not forgotten.
In doing so, the bill recognizes the lifesaving and life-sustaining service these animals so generously provide to our communities.92
Figure 7 depicts the conceptual design of the memorial.
Figure 7. National Service Animals and Handlers Memorial Concept Design
Source: National Service Animals Monument Corporation, “Artist’s Conceptual Designs,” at https://nationalserviceanimalsmemorial.org/#.
Authorization Statute: P.L. 117-328, Division DD, Subtitle D, Title VII, §704, 136 Stat. 5618 (2022)
Sponsor Organization: National Service Animals Monument Corporation
(https://nationalserviceanimalsmonument.org)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
92 Rep. Raul Grijalva, “National Service Animals Memorial Act,” Congressional Record, daily edition, vol. 168 (September 19, 2022), p. H7932.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 24
Jean Monnet
In December 2022, Congress authorized the Embassy of France in Washington, DC to establish a commemorative work in the District of Columbia to “honor the extraordinary contributions of Jean Monnet with respect to—(1) restoring peace between European nations; and (2) establishing the European Union.”93 During debate on a standalone bill to authorize the memorial (H.R. 6611), Representative Jim Costa stated why he considered a memorial to Jean Monnet important:
Jean Monnet was a distinguished French diplomat whose efforts in the immediate post- World War II era were instrumental in the establishment of the European Coal and Steel Community, which was a precursor to what eventually became the European Union (EU). Monnet is widely considered a “founding father” of the EU. His vision argued that a unified and economically integrated Europe would lead to long-term peace and stability on the continent.
Monnet was a strong ally and partner of the United States. He spent time in Washington, D.C. during World War II and was a strong advocate for U.S. military assistance to the Allied countries. During his time in Washington, Monnet lived near Rock Creek Park and frequently took long walks in what he referred to as “my park.” Monnet claimed that it was on these walks that he thought out and developed plans to achieve lasting peace through a unified Europe.94
Authorization Statute: P.L. 117-328, Division DD, Subtitle D, Title VII, §705, 126 Stat. 5619 (2022)
Sponsor Organization: The Embassy of France in Washington
(https://franceintheus.org/jeanmonnet)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
Enslaved Individuals Who Endured the Middle Passage
In December 2022, Congress authorized the Georgetown African American Historic Landmark Project and Tour to establish a commemorative work in the District of Columbia to “commemorate the enslaved individuals, the identities of whom may be known or unknown, who endured the Middle Passage.”95 During House consideration of a standalone bill to authorize the memorial (H.R. 4009), Delegate Eleanor Holmes Norton, stated why she considered a memorial to enslaved individuals who endured the Middle Passage important:
This bill would authorize the Georgetown African American Historic Landmark Project and Tour to establish a memorial on Federal land in the District of Columbia commemorating the enslaved individuals who endured forced migration to the United States by way of the transatlantic slave trade. The National Capital Memorial Advisory Commission unanimously supported this bill, and it passed out of committee by unanimous consent.
We must not hide this history. Enslaved individuals, known and unknown, rest at the core of our Nation’s history. The atrocities of the system of chattel slavery shed light on our
93 P.L. 117-328, Division DD, Subtitle D, Title VII, §705(a), 126 Stat. 5619 (2022).
94 Rep. Jim Costa, “Authorization to Establish Commemorative Work,” Congressional Record, daily edition, vol. 168 (December 12, 2022), p. H9675.
95 P.L. 117-328, Division DD, Subtitle D, Title VII, §707(a). 136 Stat. 5620 (2022).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 25
Nation’s central struggle between slavery and freedom—a freedom under which some could be owned, beaten, separated from their families, and denied any rights.
This bill provides for the creation of a powerful marker of truth-telling and remembrance. Let us honor the personhood of these individuals who were repeatedly assumed to have none so that they will never be forgotten.96
Authorization Statute: P.L. 117-328, Division DD, Subtitle D, Title VII, §707, 126 Stat. 5620 (2022)
Sponsor Organization: Georgetown African American Historic Landmark Project and Tour
Statutory Extension: N/A
Location: TBD
Dedication: TBD
Thomas Paine
In December 2022, Congress authorized the Thomas Paine Memorial Association to establish a commemorative work in the District of Columbia to “honor the United States patriot, Thomas Paine.”97 Previously, in October 1992, Congress had authorized the Thomas Paine National Historical Association to establish a memorial to honor Revolutionary War patriot Thomas Paine.98 The authorization for that memorial expired on December 31, 2003.99 In September 2024, the Thomas Paine Memorial Association presented its site selection study to the National Capital Memorial Advisory Commission.100
Authorization Statute: P.L. 117-328, Division DD, Subtitle D, Title VII, §709, 136 Stat. 5621 (2022)
Sponsor Organization: Thomas Paine Memorial Association
(https://thomaspainememorial.org)
Statutory Extension: N/A
Location: TBD
Dedication: TBD
Commemorative Works with Lapsed, Replaced, or Repealed Authorizations
Since 1986, at least eight commemorative works authorized by Congress were not completed in the time allowed by the CWA. None of the memorials have had reauthorization legislation
96 Del. Eleanor Holmes Norton, “Enslaved Voyages Memorial Act,” Congressional Record, daily edition, vol. 168 (September 19, 2022), p. H7932.
97 P.L. 117-328, Division DD, Subtitle D, Title VII, §709(a), 136 Stat. 5621 (2022).
98 P.L. 102-407, 106 Stat. 1991 (1992); and P.L. 102-459, 106 Stat. 2268 (1992).
99 P.L. 106-113, §142, 113 Stat. 1501A-171 (1999). The 1999 authorization was given to the Thomas Paine Memorial Foundation. The authorization in P.L. 117-328 did not repeal the 1999 authorization. Consequently, the Thomas Paine Memorial listed here is separate from the Thomas Paine Memorial authorized in 1999 and listed under “Commemorative Works with Lapsed Authorizations,” below.
100 Thomas Paine Memorial Association, “Site Selection Study,” September 4, 2024, at https://parkplanning.nps.gov/ showFile.cfm?sfid=755332&projectID=44217. The Thomas Paine Memorial Association also provided NCMAC a document to justify the potential siting of the memorial within Area I. For more information, see Thomas Paine Memorial Association, “Thomas Paine and His Importance in the History of the United States of America,” at https://parkplanning.nps.gov/showFile.cfm?sfid=755331&projectID=44217.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 26
introduced in the 118th Congress to date. Six commemorative works have lapsed authorizations, but have not had reauthorization legislation introduced in the 118th Congress to date. These memorials were to be constructed to honor Gold Star Mothers, Benjamin Banneker, Frederick Douglass, and Brigadier General Francis Marion; to create a National Peace Garden; and to build a Vietnam Veterans Visitor Center. An additional memorial, to Thomas Paine, had a lapsed authorization that was not extended, but an authorization for a different group to construct a memorial honoring the same subject became law in 2022 (as discussed elsewhere in this report). Additionally, one memorial (the Slaves and Free Black Persons who served in the Revolutionary War memorial) had its authorization lapse, and then subsequently repealed in legislation creating a new memorial authorization (The National Liberty Memorial). The following section describes the initial authorization for each of these memorials and congressional extensions of memorial authorization, if appropriate.
Lapsed Authorization With Reauthorizing Legislation Introduced in the 118th Congress
To date, no legislation has been introduced in the 118th Congress to reauthorize a commemorative work with a lapsed authorization.
Lapsed Authorization Without Reauthorizing Legislation Introduced in the 118th Congress
National Peace Garden
In June 1987, Congress authorized the Director of the National Park Service to enter into an agreement with the Peace Garden Project to “construct a garden to be known as the ‘Peace Garden’ on a site on Federal land in the District of Columbia to honor the commitment of the people of the United States to world peace.”101 In remarks during debate on the bill (H.R. 191, 100th Congress), Representative Steny Hoyer summarized the need for a memorial to peace:
No one or nation can ever doubt the commitment of the American people to protecting our freedoms when threatened by foreign aggressors. Our Nation’s Capital rightfully honors our heroic defenders of freedom—Americans who served their country courageously, gallantly, and at great risk to their lives.
Our citizens have also exhibited an equal commitment for world peace and international law and justice. The creation of a Peace Garden is an appropriate symbol of our efforts to continuing to seek peaceful resolution of world conflict and the institution of the rule of law.
Certainly, this century has been one of bloodiest and most violent in man’s history. We have seen countless battles, wars, rebellions, massacres, and civil and international strife of all kinds—continuing examples of man’s inhumanity toward his fellow man.
At the same time, against this terrible backdrop, there have been encouraging strides toward world peace. As we honor those who have made sacrifices in war, through monuments, so, too, should we honor them by striving to ensure that the world they have left us will be a peaceful one. A garden would be a living monument to our efforts.102
101 P.L. 100-63, 101 Stat. 379 (1987).
102 Rep. Steny Hoyer, “Authorizing the Establishment of a Peace Garden,” remarks in the House, Congressional Record, vol. 133, part 4 (March 10, 1987), p. 5205.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 27
In 1988, a site was approved for the Peace Garden at Hains Point in Southwest Washington, DC.103 Since its initial authorization in 1987, the National Peace Garden was reauthorized twice.104 The authorization expired on June 30, 2002.105
Benjamin Banneker
In November 1998, Congress authorized the Washington Interdependence Council of the District of Columbia to establish a memorial to “honor and commemorate the accomplishments of Mr. Benjamin Banneker.”106 Adopted as part of a larger bill to create a national heritage area in Michigan, the authorization for the Benjamin Banneker Memorial passed the House and Senate without debate and by voice vote in October.107 In 2001, the National Park Service reported that the memorial was to be sited on the L’Enfant Promenade in Southwest Washington and be under the jurisdiction of the District of Columbia.108
Since its initial authorization, the Washington Interdependence Council has not been granted an extension to its original authorization, which expired in 2005. A bill (S. 3886) was introduced in the 111th Congress (2009-2010) to reauthorize a Benjamin Banneker Memorial. S. 3886 was referred to the Senate Committee on Energy and Natural Resources, but no further action was taken.109
Frederick Douglass
In November 2000, Congress authorized the Frederick Douglass Gardens, Inc., “to establish a memorial and gardens on lands under the administrative jurisdiction of the Secretary of the Interior in the District of Columbia or its environs in honor and commemoration of Frederick Douglass.”110 During debate, Representative James Hansen provided a summary of why a memorial to Frederick Douglass was important:
Mr. Speaker, Frederick Douglass was one of the most prominent leaders of the 19th century abolitionist movement. Born into slavery in eastern Maryland in 1818, Douglass escaped to the North as a young man where he became a world-renowned defender of human rights and eloquent orator, and later a Federal ambassador and advisor to several Presidents. Frederick Douglass was a powerful voice for human rights during the important period of American history, and is still revered today for his contributions against racial injustice.111
Early in 2001, the Frederick Douglass Memorial Gardens, Inc., expressed its preference for a site location near the Douglass Memorial Bridge in Southeast Washington,112 but no further action was taken by Congress to approve the site location. The Frederick Douglass Memorial’s
103 National Park Service, “New Memorials Update,” press release, March 14, 2001.
104 P.L. 103-321 (108 Stat. 1793, August 26, 1994) extended the Peace Garden’s authorization until 10-years after enactment (1997). P.L. 105-202 (112 Stat. 676 [1998]) extended the authorization until June 30, 2002.
105 P.L. 105-202, 112 Stat. 676 (1998).
106 P.L. 105-355, Title V, §512, 112 Stat. 3266 (1998).
107 “Automobile National Heritage Area Act of 1998,” Congressional Record, daily edition, vol. 144 (October 10, 1998), p. H10423; and “Automobile National Heritage Area,” Congressional Record, daily edition, vol. 144 (October 14, 1998), p. S12533.
108 National Park Service, “New Memorials Update,” press release, March 14, 2001.
109 S. 3886 (111th Congress), introduced September 29, 2010.
110 P.L. 106-479, 114 Stat. 2184 (2000).
111 Rep. James Hansen, “Authorizing Memorial and Gardens in Honor and Commemoration of Frederick Douglass,” Congressional Record, vol. 146, part 14 (October 3, 2000), p. 20630.
112 National Park Service, “New Memorials Update,” press release, March 14, 2001.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 28
authorization expired in 2008. One attempt was made to reauthorize a Frederick Douglass Memorial during the 110th Congress (2007-2008), but the bill was not reported by the House Committee on Natural Resources.113
Brigadier General Francis Marion
In May 2008, Congress authorized the Marion Park Project to establish a commemorative work to honor Brigadier General Francis Marion.114 In testimony before the Senate Committee on Energy and Natural Resources, Subcommittee on National Parks, Daniel N. Wenk, deputy director for operations, National Park Service, supported the enactment of legislation authorizing a Brigadier General Francis Marion Memorial and explained why such a memorial meets criteria for commemoration in the District of Columbia.
Brigadier General Francis Marion commanded the Williamsburg Militia Revolutionary force in South Carolina and was instrumental in delaying the advance of British forces by leading his troops in disrupting supply lines. He is credited for inventing and applying innovative battle tactics in this effort, keys to an ultimate victory for the American Colonies in the Revolutionary War. Additionally Brigadier General Marion’s troops are believed to have been the first racially integrated force fighting for the United States.115
The Marion Park Project identified its preferred site location for the memorial at Marion Park in southeast Washington, DC. In December 2014, the National Capital Planning Commission expressed its support for the Marion Park site.116 Since its initial authorization, the Marion Memorial was reauthorized once.117 Authorization for the memorial expired on May 8, 2018.
Gold Star Mothers
In December 2012, as part of the National Defense Authorization Act for Fiscal Year 2013, Congress authorized the Gold Star Mothers National Monument Foundation to establish a commemorative work to “commemorate the sacrifices made by mothers, and made by their sons and daughters who as members of the Armed Forces make the ultimate sacrifice, in defense of the United States.”118 In testimony before the House Committee on Natural Resources Subcommittee on National Parks, Forests, and Public Lands, the legislation’s (H.R. 1980’s) sponsor, Representative Jon Runyan, explained why he thought a memorial to Gold Star Mothers was needed:
During World War I, mothers of sons and daughters who served in the Armed Forces displayed flags bearing a blue star to represent pride in their sons or daughters and their hope that they would return home safely.
113 H.R. 3935 (110th Congress), introduced October 25, 2007.
114 P.L. 110-229, §331, 122 Stat. 781 (2008).
115 Testimony of National Park Service Deputy Director for Operations Daniel N. Wenk, in U.S. Congress, Senate Committee on Energy and Natural Resources, Subcommittee on National Parks, Miscellaneous National Park Bills, hearing on S. 169, S. 312, S. 580, S. 686, S. 722, S. 783, S. 890, H.R. 497, and H.R. 1047, 110th Cong., 1st sess., April 26, 2007, S.Hrg. 110-88, p. 12.
116 The Marion Park Project, “Site Selection & Design Process,” at http://www.swampfoxmemorial.org/ siteselection.html. On December 4, 2014, the National Capital Planning Commission officially expressed its support for the placement of the Francis Marion Memorial within Marion Park. For more information, see National Capital Planning Commission, “Commission Action: Francis Marion Memorial,” NCPC File #7615, December 4, 2014, at https://www.ncpc.gov/docs/actions/2014December/ Francis_Marion_Memorial_Recommendation_7615_December_2014.pdf.
117 P.L. 114-92, §2852, 129 Stat. 1184 (2015).
118 P.L. 112-239, §2859, 126 Stat. 2164 (2013).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 29
For more than 650,000 of these brave mothers, that hope was shattered, and their children never returned home. Afterwards many of them began displaying flags bearing gold stars to represent the sacrifice that their sons and daughters made in heroic service to our country. Over the years the gold star has come to represent a child who was killed while serving in the Armed Forces, during either war or peacetime.119
In December 2013, the Gold Star Mothers National Monument Foundation presented its site analysis to the National Capital Memorial Advisory Commission. In that informational presentation, they expressed a preference for a site location adjacent to Arlington National Cemetery.120 In January 2015, the NCPC expressed support for a site next to the Arlington National Cemetery Visitor’s Center on Memorial Drive,121 and the CFA approved that site location.122
The Gold Star Mothers National Memorial Foundation’s authority to construct a memorial expired in January 2020.123 In the 117th Congress (2021-2022), legislation was introduced to reauthorize the memorial until January 2, 2027, but was not enacted.124
Vietnam Veterans Memorial Visitors Center
In November 2003, Congress authorized the Vietnam Veterans Memorial Fund to create a visitor center at the Vietnam Veterans Memorial to “better inform and educate the public about the Vietnam Veterans Memorial and the Vietnam War.”125 In the House report accompanying the legislation (H.R. 1442, 108th Congress), the Committee on Resources summarized the need for a visitor center at the Vietnam Veterans Memorial:
Since its dedication in 1982, the Vietnam Veterans Memorial, known to many as simply “The Wall,” has done much to heal the nation’s wounds after the bitterly divisive experience of the Vietnam War. For those who served, that year marked a sea change in the country’s view of the Vietnam veteran. Americans began to understand and respect the Vietnam veterans’ service and sacrifice. Today, over 4.4 million people visit The Wall every year—making it the most visited Memorial in the Nation’s Capital. Today, most visitors to The Wall were not alive during the “Vietnam Era.” Many veterans’ organizations and many others believe today’s visitor is shortchanged in his/her experience. Many leave The Wall not fully understanding its message. To that end, a visitor center would provide an educational experience for visitors by facilitating self-guided
119 Testimony of Representative Jon Runyan, in U.S. Congress, House Committee on Natural Resources, Subcommittee on National Parks, Forests, and Public Lands, Legislative Hearing on H.R. 1980, H.R. 2070, H.R. 2621, and H.R. 3155, 112th Cong., 1st sess., November 3, 2011, at http://naturalresources.house.gov/uploadedfiles/ runyanstatement11.03.11.pdf.
120 National Capital Memorial Advisory Commission, “Agenda,” December 12, 2013, at http://parkplanning.nps.gov/ document.cfm?documentID=50005.
121 National Capital Planning Commission, “Proposed Site for the Gold Star Mothers National Monuments,” Commission Action, at https://www.ncpc.gov/docs/actions/2015December/ Gold_Star_Mothers_National_Monument_Recommendation_7731_December2015.pdf.
122 U.S. Commission of Fine Arts, “CFA 19/NOV/15-2, Gold Star Mothers National Monument,” at https://www.cfa.gov/records-research/project-search/cfa-19nov15-2.
123 The Gold Star Mothers National Memorial Foundation’s authority to construct a memorial expired in January 2020.
124 H.R. 2365 (117th Congress), passed the House on July 26, 2021; and S. 1938 (117th Congress), introduced May 27, 2021. Similar legislation was introduced in the 116th Congress, but was not enacted (H.R. 2819, passed the House on February 28, 2020; and S. 1673, introduced May 23, 2019). For more information, see U.S. Congress, House Committee on Natural Resources, Gold Star Families National Monument Extension Act, report to accompany H.R. 2819, 116th Cong., 1st sess., October 18, 2019, H.Rept. 116-243, at https://www.congress.gov/116/crpt/hrpt243/CRPT- 116hrpt243.pdf.
125 P.L. 108-126, 117 Stat. 1348 (2003).
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 30
tours, collecting and displaying remembrances of those whose names are inscribed on the Memorial, and displaying exhibits discussing the history of the Memorial and the Vietnam War. The visitor’s center would eventually replace a 168-foot National Park Service kiosk currently at the site.126
The visitor center was to be constructed underground and located across the street from the Vietnam Veterans Memorial and the Lincoln Memorial.127 In 2015, the NCPC and CFA approved the visitor center’s design.128 On September 21, 2018, the Vietnam Veterans Memorial Fund announced their intention not to seek an extension to its authorization to build the visitor center, which expired on November 17, 2018.129 At that time, legislation had been introduced, but not considered, to extend the fund’s authorization into 2022.130 Previously, the fund had received two statutory extensions.131
126 U.S. Congress, House Committee on Resources, To Authorize the Design and Construction of a Visitor Center for the Vietnam Veterans Memorial, report to accompany H.R. 1442, 108th Cong., 1st sess., October 2, 2003, H.Rept. 108- 295, p. 2.
127 P.L. 108-126, §6(b), 117 Stat. 1348 (2003).
128 National Capital Planning Commission, “Vietnam Veterans Memorial Visitor Center,” Commission Action, File No. 6597, July 9, 2015, at https://www.ncpc.gov/docs/actions/2015July/ Vietnam_Veterans_Memorial_Visitor_Center_Recommendation_6597_July2015.pdf; Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Robert Vogel, regional director, National Park Service, National Capital Region, May 15, 2015, https://www.cfa.gov/records-research/project-search/cfa-21may15-2; and National Capital Planning Commission, “Vietnam Veterans Memorial Visitor Center,” Commission Action, File No. 6597, at https://www.ncpc.gov/docs/actions/2012July/ Vietnam_Veterans_Memorial_Visitor_Center_Recommendation_6597_July2012_.pdf.
129 Vietnam Veterans Memorial Fund, “Vietnam Veterans Memorial Fund Changes Direction of Education Center Campaign,” press release, September 21, 2018, http://www.vvmf.org/news/article=Vietnam-Veterans-Memorial-Fund- changes-direction-of-Education-Center-campaign.
130 S. 3298 (115th Congress), introduced July 30, 2018. The Senate Energy and Natural Resources Committee, Subcommittee on National Parks held a hearing on S. 3298 on August 15, 2018. For more information, see U.S. Congress, Senate, Committee on Energy and Natural Resources, Subcommittee on National Parks, “Legislative Hearing,” August 15, 2018, at https://www.energy.senate.gov/public/index.cfm/hearings-and-business-meetings?ID= B763CF41-B503-4EF2-9B06-CD734A00DBB8.
131 P.L. 111-270, 124 Stat. 2851 (2010) [extended through November 17, 2014]; and P.L. 113-21, 127 Stat. 490 (2013) [extended through November 17, 2018].
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service 31
Replaced Authorization
Thomas Paine
In October 1992, Congress authorized the Thomas Paine National Historical Association to establish a memorial to honor Revolutionary War patriot Thomas Paine.132 In remarks summarizing the need for a memorial to Thomas Paine, Representative William Lacy Clay stated
Thomas Paine’s writings were a catalyst of the American Revolution. His insistence upon the right to resist arbitrary rule has inspired oppressed peoples worldwide, just as it continues to inspire us. It is time that a grateful nation gives him a permanent place of honor in the capital of the country he helped build.133
Since its initial authorization in 1992, the authorization for the Thomas Paine memorial was extended once. Authorization for the memorial expired on December 31, 2003.134 In the 117th Congress, a new sponsor group, the Thomas Paine Memorial Association, was authorized to establish a Thomas Paine Memorial.135 The new authorization legislation did not repeal the expired 1992 authorization.
Repealed Authorization
Since 1986, one commemorative work’s authorization was repealed by Congress—the Black Revolutionary War Patriots Memorial—as part of legislation creating a new memorial authorization.
Black Revolutionary War Patriots
In October 1986, Congress authorized the Black Revolutionary War Patriots Foundation to establish a memorial in the District of Columbia to honor “the estimated five thousand courageous slaves and free black persons who served as soldiers and sailors or provided civilian assistance during the American Revolution and to honor countless black men, women, and children who ran away from slavery or filed petitions with courts and legislatures seeking their freedom.”136 In remarks introducing the memorial legislation, Representative Mary Rose Oakar summarized the need for a memorial to Black Revolutionary War Veterans:
Mr. Speaker, as early as 1652 blacks were fighting as members of the Militia in Colonial America, thus beginning their history of achievement and heroism for our country. Yet, history books in American schools have for the most part omitted the contributions of black soldiers since the Revolutionary War, to our most recent conflict in Vietnam.
This memorial to these black Americans is a small tribute to their bravery and valor, an important part of the founding of our country.137
132 P.L. 102-407, 106 Stat. 1991 (1992); and P.L. 102-459, 106 Stat. 2268 (1992).
133 Rep. William Lacy Clay, “Authorizing Construction of a Monument to Honor Thomas Paine,” remarks in the House, Congressional Record, vol. 138, part 13 (July 21, 1992), p. 18660.
134 P.L. 106-113, §142, 113 Stat. 1501A-171 (1999).
135 P.L. 117-328, Division DD, Subtitle D, Title VII, §709(a) (2022).
136 P.L. 99-558, 100 Stat. 3144 (1986); P.L. 99-590, 100 Stat. 3330 (1986); and P.L. 99-591, 100 Stat. 3341 (1986).
137 Rep. Mary Oakar, “Black Revolutionary War Patriots Memorial,” Congressional Record, vol. 131, part 22 (November 4, 1985), p. 30373.
In-Progress and Lapsed Memorials Authorized Under the Commemorative Works Act
Congressional Research Service R43744 · VERSION 40 · UPDATED 32
Following its initial authorization in 1986, the memorial was reauthorized three times.138 Authorization for the memorial expired in 2005,139 and it was repealed when the National Mall Liberty Fund DC was authorized to build the National Liberty Memorial in 2013 (discussed above in the section “National Liberty Memorial”).140
Author Information
Jacob R. Straus Specialist on the Congress
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 not 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.
138 P.L. 103-321 (108 Stat. 1793 [1994]) extended the authorization to 10 years from the date of enactment (1996). P.L. 105-345 (112 Stat. 3205 [1998]) extended the authorization until 2000, and P.L. 106-442 (114 Stat. 1926 [2000]) extended the authorization until 2005.
139 P.L. 106-442, 114 Stat. 1926 (2000).
140 P.L. 112-239, Title XXVIII, §2860, 126 Stat. 2164 (2013).