Commemorative Coins: Background, Legislative Process, and Issues for Congress

September 7, 2016 – April 26, 2024 R44623

Commemorative Coins: Background,
April 26, 2024
Legislative Process, and Issues for Congress
Jacob R. Straus
Commemorative coins are produced by the U.S. Mint pursuant to an act of Congress and are
Specialist on the Congress
often proposed by Members of Congress as part of their representational duties. These coins are

legal tender that celebrate and honor American people, places, events, and institutions. Congress
first authorized a commemorative coin in 1892. Between 1954 and 1981, Congress did not

authorize any new commemorative coins, in part because public interest had waned and the
Department of the Treasury was concerned that “multiplicity of designs on United States coins would tend to create
confusion among the public, and to facilitate counterfeiting.” In 1982, Congress reinstituted the commemorative coin
program, and since 1998, two coins may be authorized for any given year. To date, Congress has authorized commemorative
coins to be issued through 2025.
The issuance of commemorative coins can be broadly divided into two eras: historical coins and modern coins. Historical
commemorative coins were those authorized between 1892 and 1954 and generally celebrated anniversaries, public events, or
the construction of new memorials. These coins were sold by the government to the sponsor organization, which then resold
the coins to the public at a higher price to earn money to support their mission.
In 1939, Congress stopped authorizing new coins because a glut of commemorative coins on the market had caused their
value to decline, and the U.S. Treasury became concerned that so many coins might facilitate counterfeiting. These
sentiments were echoed by President Dwight D. Eisenhower, who in 1954 vetoed legislation for a half-dollar honoring the
tercentennial of New York City and remarked that “large quantities [of coins] have remained unsold and have been returned
to the mints for melting.” The historical era concluded with the minting of George Washington Carver and Booker T.
Washington half-dollars between 1951 and 1954.
The modern commemorative coin era began in 1982, when Congress authorized coins to celebrate the 250th anniversary of
George Washington’s birth. Currently, Congress has authorized two commemorative coins for 2024 and one in 2025. No
commemorative coins were authorized for 2023.
Commemorative coin legislation generally has a specific format. Once a coin is authorized, it follows a specific process for
design and minting. This process includes consultation and recommendations by the Citizens Coin Advisory Commission
(CCAC) and the U.S. Commission of Fine Arts (CFA), pursuant to any statutory instructions, before the Secretary of the
Treasury makes the final decision on a coin’s design. Following the conclusion of a coin program, designated recipient
organizations may receive surcharge payments, once the U.S. Mint has recouped all costs associated with producing the coin.
Should Congress want to make changes to the commemorative coin process, several individual and institutional options
might be available. The individual options include decisions made by Members of Congress as to which people, places,
events, or institutions should be celebrated; which groups should receive potential surcharge payments; and any specific
design requirements Congress might want to request or require. The institutional options could include House, Senate, or
committee rules for the consideration of commemorative coin legislation, and whether the statutory maximum of two coins
minted per year is too many or too few.
Congressional Research Service

link to page 31 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Introduction
Commemorative coins are coins that are “produced with the primary intention of creating a
special souvenir to be sold (at a premium above face value) to observe or memorialize an
anniversary, special occasion, or other event.”1 Produced by the U.S. Mint pursuant to an act of
Congress, these coins celebrate and honor American people, places, events, and institutions.
Although they are considered legal tender, they are not minted for general circulation. Instead,
they are designed to be collected and to help designated groups raise money to support group
activities.2 Commemorative coin legislation is often proposed by Members of Congress as part of
their representational duties.
The first commemorative coin was authorized in 1892 for the World’s Columbian Exposition in
Chicago.3 Issued as a silver half-dollar, the proceeds for the sale of the coin were used “for the
purpose of aiding in defraying the cost of completing in a suitable manner the work of preparation
for inaugurating the World’s Columbian Exposition.”4
Beginning in 1892 and continuing to the present day—with a hiatus between 1954 and 1981—
coins have been a part of the commemoration of people, places, events, and institutions. This
report examines the origins, development, and current practices for commemorative coins,
including the authorization process; the design of coins; and issues for congressional
consideration, including the disbursement of surcharges, the number of coins minted per year,
differences between the number of authorized coins and coins sold, and requirements for
legislative consideration in the House and Senate.
Historical Commemorative Coins
Congress first authorized a commemorative coin in 1892. During the period from 1892 to 1954,
most commemorative coins celebrated state anniversaries (e.g., Connecticut’s tercentennial in
1935), expositions and event anniversaries (e.g., the Lexington-Concord Sesquicentennial in 1925
or the Louisiana Purchase Exposition in 1903), or helped support memorials (e.g., the Grant
Memorial in 1922 or the Stone Mountain Memorial in 1925). These coins “were sold to
sponsoring organizations, which resold them to the public at higher prices as a means of
fundraising.”5 The authorization of new commemorative coins was “discontinued by Congress in
1939, with the exception of three coins issued through 1954.”6 For a list of historical
commemorative coins authorized between 1892 and 1954, see Appendix A.
Between 1954 and 1981, Congress did not authorize any new commemorative coins. The
moratorium on new commemorative coins was in part because public interest in the coins had
waned and the Department of the Treasury was concerned that “multiplicity of designs on United

1 Q. David Bowers, A Guide Book of United States Commemorative Coins: History, Rarity, Values, Grading, Varieties
(Atlanta, GA: Whitman Publishing Company, 2008), p. 1.
2 Ted Schwarz, A History of United States Coinage (San Diego, CA: A.S. Barnes & Company, Inc., 1980), pp. 319-
320.
3 27 Stat. 389 (1892).
4 Ibid.
5 U.S. Government Accountability Office, Commemorative Coins Could Be More Profitable, GAO/GGD-96-113,
August 1996, p. 2, at http://www.gao.gov/products/GGD-96-113. In the historical time period, groups bought coins
from the U.S. Mint at face value and then resold them at higher prices to raise money to support their activities.
6 U.S. Commission of Fine Arts, Civic Art: A Centennial History of the U.S. Commission of Fine Arts (Amherst, MA:
University of Massachusetts Press, 2013), p. 366. [Hereinafter CFA, Civic Art.] The coins issued after 1939 were the
half-dollars for the Iowa Centennial, the Booker T. Washington Memorial, and for George Washington Carver.
Congressional Research Service

1

Commemorative Coins: Background, Legislative Process, and Issues for Congress

States coins would tend to create confusion among the public, and to facilitate counterfeiting.”7 In
his February 1954 veto statement to Congress on S. 2474 (83rd Congress), which would have
authorized a 50-cent piece for the tercentennial of New York City, President Eisenhower cited a
diminishing interest among the public for the collection of commemorative coins. President
Eisenhower stated
I am further advised by the Treasury Department that in the past in many instances the
public interest in these special coins has been so short-lived that their sales for the purposes
intended have lagged with the result that large quantities have remained unsold and have
been returned to the mints for melting.8
Modern Commemorative Coins
In 1982, Congress resumed the authorization of commemorative coins with the enactment of a
bill to issue a commemorative half-dollar for George Washington’s 250th birthday.9 With the
issuance of new commemorative coins, the “range of subject matter expanded to include subjects
such as women, historical events, and even buildings and landscapes.”10 Additionally, the concept
of surcharges as a method to direct money to designated groups was introduced. The idea of a
surcharge—a statutorily authorized “dollar amount added to the price of each coin”11—was not
without controversy. “These related surcharges became controversial with collectors, many of
whom resented making involuntary donations when they bought coins. Today, the practice ... is ...
the linchpin that has ignited most commemorative programs—as potential recipients of the
surcharge launch ... lobbying campaigns in Congress.”12
Commemorative coins authorized during the modern period can be subdivided into coins minted
between 1982 and 1997, and coins minted since 1998. In 1996, the Commemorative Coin Reform
Act (CCRA) was enacted to (1) limit the maximum number of different coin programs minted per
year;13 (2) limit the maximum number of coins minted per commemorative coin program;14 and
(3) clarify the law with respect to the recovery of Mint expenses before surcharges are disbursed
and conditions of payment of surcharges to recipient groups.15 The CCRA restrictions began in
1998.

7 U.S. Congress, Senate, The City of New York Tercentennial Commemorative Coin—Veto Message, 83rd Cong., 2nd
sess., February 3, 1954, S.Doc. 94 (Washington: GPO, 1954), p. 1.
8 Ibid., p. 2.
9 P.L. 97-104, 95 Stat. 1491 (1981).
10 CFA, Civic Art, p. 480.
11 U.S. Congress, U.S. Congress, Senate Committee on Banking, Housing, and Urban Affairs, 2002 Winter Olympic
Commemorative Coin Act, report to accompany S. 2266, 106th Cong., 2nd sess., July 24, 2000, S.Rept. 106-355 (2000),
p. 2, fn5.
12 Bowers, United States Commemorative Coins, p. 15.
13 A commemorative coin program is the subject matter statutorily authorized to be depicted on a commemorative coin.
Within each commemorative coin program, multiple denominations of coins might be authorized. For example, P.L.
112-201 (§3, 126 Stat. 1480, December 4, 2012) authorized a commemorative coin program for Mark Twain. The
statute authorized the minting of both $5 gold coins and $1 silver coins.
14 For example, the Mark Twain commemorative coin program limited the number of coins that might be minted. P.L.
112-201, §3, required that the U.S. Mint issue “not more than 100,000 $5 coins ... and not more than 350,000 $1
coins.”
15 P.L. 104-208, §529, 110 Stat. 3009-349 (1996); 31 U.S.C. §5112(m)(1).
Congressional Research Service

2

link to page 33 link to page 7 link to page 9 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Commemorative Coins, 1982-1997
Between 1982 and 1997, Congress authorized commemorative coins for nearly every year. In
several cases, multiple coins were authorized to recognize specific events, including the 1984
Summer Olympics in Los Angeles and the 1996 Summer Olympics in Atlanta.16 See Appendix B
for a list of commemorative coins authorized by Congress prior to the two-per-year limit imposed
by the CCRA.
Commemorative Coins, 1998-Present
As noted above, beginning in 1998, the CCRA limited the U.S. Mint to issuing two coin
programs per year.17 Congress took this action in response to the proliferation of commemorative
coins authorized since the program was restarted in 1982. Between 1982 and 1997, as many as six
different coin programs were minted in a single year (1994). Ten distinct coins were issued each
year (eight Olympic coins per year in addition to two other commemorative coin programs) in
1995 and 1996.18 Starting in 1998, a maximum of two coin programs (i.e., to commemorate a
specific subject) were to be authorized for minting in a given year. Even with this restriction,
however, three coins were minted in 1999. Additionally, on two occasions, one coin was
authorized for a given year—2003 and 2008. Table 1 lists authorized and completed
commemorative coins since 1998, including their authorizing statutes.
Table 1. Completed Commemorative Coin Programs, 1998-2023
Year
Commemorative Coin Subject
Authorizing Statute
1998
Black Revolutionary War Patriots
P.L. 104-329, §101(3), 110 Stat. 4007 (1996)

Robert F. Kennedy
P.L. 103-328, §206, 108 Stat. 2373 (1994)
1999
Yellowstone National Park
P.L. 104-329, §101(5), 110 Stat. 4008 (1996)

George Washington
P.L. 104-329, §101(2), 110 Stat. 4006 (1996)

Dol ey Madison
P.L. 104-329, §101(1), 110 Stat. 4006 (1996)
2000
Leif Ericson Mil ennium
P.L. 106-126, 113 Stat. 1643 (1999)

Library of Congress Bicentennial
P.L. 105-268, 112 Stat. 2378 (1998)
2001
American Buffaloa
P.L. 106-375, 114 Stat. 1435 (2000)

U.S. Capitol Visitor Center
P.L. 106-126, §201, 113 Stat. 1644 (1999)
2002
West Point Bicentennial
P.L. 103-328, §207, 108 Stat. 2375 (1994)

Olympic Winter Games
P.L. 106-435, 114 Stat. 1916 (2000)
2003
First Flight Centennial
P.L. 105-124, §6, 111 Stat. 2537 (1997)
2004
Lewis & Clark Bicentennial
P.L. 106-126, §301, 113 Stat. 1647 (1999)

Thomas Alva Edison
P.L. 105-331, 112 Stat. 3073 (1998)
2005
Chief Justice John Marshall
P.L. 108-290, 118 Stat. 1021 (2004)

Marine Corps 230th Anniversary
P.L. 108-291, 118 Stat. 1024 (2004)

16 For more information on Olympic Commemorative Coins, see CRS In Focus IF12261, Olympic Commemorative
Coins: Background and Considerations for Congress, by Jacob R. Straus.
17 P.L. 104-208, §529, 110 Stat. 3009-349 (1996); 31 U.S.C. §5112(m)(1).
18 U.S. Department of Treasury, United States Mint, “Modern Commemorative Coins,” at https://www.usmint.gov/
mint_programs/commemoratives/?action=modern.
Congressional Research Service

3

link to page 9 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Year
Commemorative Coin Subject
Authorizing Statute
2006
San Francisco Old Mint
P.L. 109-230, 120 Stat. 391 (2006)

Benjamin Franklin
P.L. 108-464, 118 Stat. 3878 (2004)
2007
Little Rock Central High School Desegregation
P.L. 109-146, 119 Stat. 2676 (2005)

Jamestown 400th Anniversary
P.L. 108-289, 118 Stat. 1017 (2004)
2008
Bald Eagle
P.L. 108-486, 118 Stat. 3934 (2004)
2009
Abraham Lincoln
P.L. 109-285, 120 Stat. 1215, (2006)

Louis Brail e
P.L. 109-247, 120 Stat. 582 (2006)
2010
Boy Scouts of America
P.L. 110-363, 122 Stat. 4015 (2008)

American Veterans Disabled for Life
P.L. 110-277, 122 Stat. 2599 (2008)
2011b
United States Army
P.L. 110-450, 122 Stat. 5017 (2008)

Medal of Honor
P.L. 111-91, 123 Stat. 2980 (2009)
2012
Star Spangled Banner
P.L. 111-232, 124 Stat. 2490 (2010)

National Infantry Soldier
P.L. 110-357, 122 Stat. 3997 (2008)
2013
Girl Scouts of the USA
P.L. 111-86, 123 Stat. 2881 (2009)

Five Star Generals
P.L. 111-262, 124 Stat. 2780 (2010)
2014
Civil Rights Act of 1964
P.L. 110-451, 122 Stat. 5021 (2008)

National Baseball Hall of Fame
P.L. 112-152, 126 Stat. 1155 (2012)
2015
U.S. Marshals Service 225th Anniversary
P.L. 112-104, 126 Stat. 286 (2012)

March of Dimes
P.L. 112-209, 126 Stat. 1510 (2012)
2016
Mark Twain
P.L. 112-201, 126 Stat. 1479 (2012)

National Park Service Centennial
P.L. 113-291, §3055, 128 Stat. 3808 (2014)
2017
Lions Club International Foundation
P.L. 112-181, 126 Stat. 1416 (2012)

Boys Town Centennial
P.L. 114-30, 129 Stat. 424 (2015)
2018
Breast Cancer Awareness
P.L. 114-148, 130 Stat. 360 (2016)

WWI American Veterans
P.L. 113-212, 128 Stat. 2082 (2014)
2019
Apol o 11 50th Anniversary
P.L. 114-282, 130 Stat. 1441 (2016)

American Legion 100th Anniversary
P.L. 115-65, 131 Stat. 1191 (2017)
2020
Naismith Memorial Basketball Hal of Fame
P.L. 115-343, 132 Stat. 5043 (2018)

Women’s Suffrage Centennial
P.L. 116-71, 133 Stat. 1147 (2019)
2021
Christa McAuliffe
P.L. 116-65, 133 Stat. 1124 (2019)

National Law Enforcement Officers Museum
P.L. 116-94, Div. K, 133 Stat. 3086 (2019)
2022
Negro Leagues Baseball Centennial
P.L. 116-209, 134 Stat. 1011 (2020)

Purple Heart Hall of Honor
P.L. 116-247, 134 Stat. 1120 (2020)
2023
No Commemorative Coins Authorized

Source: U.S. Department of the Treasury, U.S. Mint, “Modern Commemorative Coins,” at
https://www.usmint.gov/mint_programs/commemoratives/?action=modern; U.S. Department of the Treasury,
U.S. Mint, “Commemorative Coin Programs,” at https://www.usmint.gov/mint_programs/?action=
commemoratives; and CRS examination of public laws.
Congressional Research Service

4

link to page 9 link to page 9 link to page 9 Commemorative Coins: Background, Legislative Process, and Issues for Congress

a. The American Buffalo commemorative coin was also known as the National Museum of the American
Indian commemorative coin (P.L. 106-375, §1).
b. In 2011, Congress also authorized “the striking of silver medals in commemoration of the 10th anniversary
of September 11, 2001, terrorist attacks on the U.S. and the establishment of the National September 11
Memorial & Museum at the World Trade Center” (P.L. 111-221). For more information, see U.S.
Department of the Treasury, U.S. Mint, “National Medal Commemorating 10th Anniversary of September 11
Terrorist Attacks available from United States Mint,” press release, September 8, 2011, at
https://www.usmint.gov/news/press-releases/20110908-national-medal-commemorating-10th-anniversary-of-
september-11-terrorists-attacks-available-from-the-united-states-mint.
Since 1998, the average coin minted during this period was authorized three years prior to being
struck, with the longest period between authorization and minting for the West Point Bicentennial
commemorative coin, which was authorized in 1994 to be struck in 2002. The shortest period
between authorization and minting was for the San Francisco Old Mint commemorative coin,
which was authorized and struck in the same year: 2006.
In addition to completed commemorative coin programs, Congress has authorized coins to be
minted in 2024 and 2025. No coins were authorized for 2023, or have been authorized for 2025 or
beyond. Table 2 lists current and future commemorative coins, including their authorizing
statutes.
Table 2. Authorized Current and Future Commemorative Coins, 2024-2028
Year
Commemorative Coin
Authorizing Statute
2024
Greatest Generation
P.L. 117-162, 136 Stat. 1349 (2022)

Harriet Tubman Bicentennial
P.L. 117-163, 136 Stat. 1353 (2022)
2025
United States Marine Corps 250th Anniversary
P.L. 118-10, 137 Stat. 56 (2023)

[Open]

2026
[Open]

[Open]

2027
[Open]

[Open]

2028
[Open]

[Open]

Source: CRS examination of public laws.
In each Congress, Members introduce legislation to authorize new commemorative coins. Table 3
lists proposals for new commemorative coins that were introduced in the 117th Congress (2021-
2022). The bills introduced in the 117th Congress would have authorized coins for minting
between 2022 and 2028. Legislation that became law (or its companion measures)—authorizing
commemorative coins for the Greatest Generation and Harriet Tubman Bicentennial, both to be
minted in 2024—is not included in Table 3.
Table 3. Proposed Commemorative Coin Legislation, 117th Congress
Proposed Year
Bill
Proposed Commemorative Coin
2022
H.R. 905
Coronavirus Front-Line Responders
2023
H.R. 1648
National Women’s Hall of Fame

S. 867
National Women’s Hall of Fame
Congressional Research Service

5

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Proposed Year
Bill
Proposed Commemorative Coin

H.R. 4703
Sultana Steamboat Disaster

H.R. 5232
Working Dogs

H.R. 6681
100th Anniversary of the Lincoln Memorial

H.R. 8244
Granite Mountain Hotshots
2024
H.R. 1900
Coronavirus Front-Line Responders

H.R. 2404
Cesar Chavez

H.R. 6663
100th Anniversary of the Fleet Reserve Association

H.R. 7469
James Weldon Johnson
2025
H.R. 5601
Erie Canal Bicentennial

H.R. 8182
James Weldon Johnson

H.R. 9316
250th Anniversary of the Marine Corps

S. 5112
250th Anniversary of the Marine Corps
2026
H.R. 4429
Semiquincentennial (250th Anniversary) of the United States

S. 2384
Semiquincentennial (250th Anniversary) of the United States
2028
H.R. 8047
Los Angeles 2028 Olympic and Paralympic Games

S. 4382
Los Angeles 2028 Olympic and Paralympic Games
Source: CRS examination of proposed legislation on https://www.congress.gov.
Note: In the 117th Congress, two commemorative coin bil s became law and are not included in the table. H.R.
1057 (P.L. 117-162) authorized the Greatest Generation commemorative coin for minting in 2024; and H.R.
1842 (P.L. 117-163) authorized the Harriet Tubman bicentennial commemorative coin for minting in 2024.
a. In the 117th Congress, H.R. 5940 would have authorized coins to honor Paul Laurence Dunbar. The bil
would have authorized three coins (a $5 gold coin, a $1 silver coin, and a half-dol ar clad coin) in 2023. H.R.
5940 is not included in Table 3 because it contained an exemption (§7b) that would have excluded it from
the commemorative coin programs authorized under 31 U.S.C. §5112(m)(1).
Authorizing Commemorative Coins
Legislative Features
Commemorative coin legislation generally has certain features, including
• findings that summarize the commemorative subject’s history and importance;
• specifications for denominations, weight, and metallic makeup;
• design requirements, including required dates, words, and images;
• start and end dates for minting coins and any other limitations;
• requirements for selling coins;
• coin surcharge and distribution to designated groups; and
• assurances that costs of the coin program are recouped by the U.S. Mint.
The following provides examples of the features generally found in a commemorative coin bill.
Congressional Research Service

6

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Findings
Commemorative coin legislation typically includes a section of findings. These include historical
facts about the people, places, events, and institutions being honored by the coin. For example,
the legislation to authorize the Star-Spangled Banner commemorative coin stated
SEC. 2. FINDINGS.
The Congress finds as follows:
(1) During the Battle for Baltimore of the War of 1812, Francis Scott Key visited the
British fleet in the Chesapeake Bay on September 7, 1814, to secure the release of Dr.
William Beanes, who had been captured after the British burned Washington, DC.
(2) The release of Dr. Beanes was secured, but Key and Beanes were held by the British
during the shelling of Fort McHenry, one of the forts defending Baltimore.
(3) On the morning of September 14, 1814, after the 25-hour British bombardment of
Fort McHenry, Key peered through the clearing smoke to see a 42-foot by 30-foot
American flag flying proudly atop the Fort.
(4) He was so inspired to see the enormous flag still flying over the Fort that he began
penning a song, which he named The Defence of Fort McHenry, to commemorate the
occasion and he included a note that it should be sung to the tune of the popular British
melody To Anacreon in Heaven.
(5) In 1916, President Woodrow Wilson ordered that the anthem, which had been
popularly renamed the Star-Spangled Banner, be played at military and naval occasions.
(6) On March 3, 1931, President Herbert Hoover signed a resolution of Congress that
officially designated the Star-Spangled Banner as the National Anthem of the United
States.19
Coin Specification
The coin specification section typically provides details on the type and the maximum number of
coins authorized to be minted. Additionally, this section generally includes language that makes
the coin legal tender and a numismatic item. In some cases, this section also includes specific
language on coin design. For example, the legislation authorizing the National Baseball Hall of
Fame commemorative coin includes language on the three types of coins authorized—$5 gold
coin, $1 silver coin, and half-dollar clad coin—and a sense of Congress that the reverse side of
the coin should be “convex to more closely resemble a baseball, and the obverse concave.”20
SEC. 3. COIN SPECIFICATIONS.
(a) DENOMINATIONS.—In recognition and celebration of the National Baseball Hall
of Fame, the Secretary of the Treasury (hereafter in this Act referred to as the
‘‘Secretary’’) shall mint and issue the following coins:
(1) $5 GOLD COINS.—Not more than 50,000 $5 coins, which shall—
(A) weigh 8.359 grams;

19 P.L. 111-232, §2, 124 Stat. 2490 (2010).
20 P.L. 112-152, §3(d), 126 Stat. 1156 (2012).
Congressional Research Service

7

Commemorative Coins: Background, Legislative Process, and Issues for Congress

(B) have diameter of 0.850 inches; and
(C) contain 90 percent gold and 10 percent alloy.
(2) $1 SILVER COINS.—Not more than 400,000 $1 coins, which shall—
(A) weigh 26.73 grams;
(B) have a diameter of 1.500 inches; and
(C) contain 90 percent silver and 10 percent copper.
(3) HALF-DOLLAR CLAD COINS.—Not more than 750,000 half-dollar coins
which shall—
(A) weigh 11.34 grams;
(B) have a diameter of 1.205 inches; and
(C) be minted to the specifications for half-dollar coins contained in section
5112(b) of title 31, United States Code.
(b) LEGAL TENDER.—The coins minted under this Act shall be legal tender, as
provided in section 5103 of title 31, United States Code.
(c) NUMISMATIC ITEMS.—For purposes of sections 5134 and 5136 of title 31,
United States Code, all coins minted under this Act shall be considered to be numismatic
items.
(d) SENSE OF CONGRESS.—It is the sense of Congress that, to the extent possible
without significantly adding to the purchase price of the coins, the $1 coins and $5 cons
minted under this Act should be produced in a fashion similar to the 2009 International
Year of Astronomy coins issued by Monnaie de Paris, the French Mint, so that the
reverse of the coin is convex to more closely resemble a baseball and the obverse
concave, providing a more dramatic display of the obverse design chosen pursuant to
section 4(c).21
Design of Coins
Commemorative coin legislation also typically specifies requirements for the design of the coin.
These include official language on words or dates that are to appear on the coin and instructions
about how the design might be chosen. For example, the legislation to authorize the Civil Rights
Act of 1964 commemorative coin stated
SEC. 4 DESIGN OF COINS.
(a) DESIGN REQUIREMENTS.—The design of the coins minted under this Act shall
be emblematic of the enactment of the Civil Rights Act of 1964 and its contribution to
civil rights in America.
(b) DESIGNATION AND INSCRIPTIONS.—On each coin minted under this Act there
shall be—
(1) a designation of the value of the coin;
(2) an inscription of the year ‘‘2014’’; and

21 P.L. 112-152, §3, 126 Stat. 1156 (2012).
Congressional Research Service

8

Commemorative Coins: Background, Legislative Process, and Issues for Congress

(3) inscriptions of the words ‘‘Liberty’’, ‘‘In God We Trust’’, ‘‘United States of
America’’, and ‘‘E Pluribus Unum’’.
(c) SELECTION.—The design for the coins minted under this Act shall be—
(1) selected by the Secretary after consultation with the Commission of Fine Arts;
and
(2) reviewed by the Citizens Coinage Advisory Committee established under
section 5135 of title 31, United States Code.22
Issuance of Coins
The issuance of coins section typically specifies the time period that the coin will be available for
sale and provides any instructions to the Secretary of the Treasury as to which mint location
should strike the coins and the quality of the coins to be issued. For example, the March of Dimes
commemorative coin authorization stated
SEC. 5. ISSUANCE.
(a) Quality of Coins.—Coins minted under this Act shall be issued in uncirculated and
proof qualities.
(b) Mint Facility.—For the coins minted under this Act, at least 1 facility of the United
States Mint shall be used to strike proof quality coins, while at least 1 other such facility
shall be used to strike the uncirculated quality coins.
(c) Period for Issuance.—The Secretary of the Treasury may issue coins minted under
this Act only during the 1-year period beginning on January 1, 2015.23
Sale of Coins
The sale of coins section typically sets the sale price of the coin and provides instructions to the
Mint on bulk sales and prepaid coin orders. For example, the statute authorizing the Five-Star
Generals commemorative coin stated
SEC. 6. SALE OF COINS.
(a) SALE PRICE.—The coins issued under this Act shall be sold by the Secretary at a
price equal to the sum of—
(1) the face value of the coins;
(2) the surcharge provided in section 7(a) with respect to such coins; and
(3) the cost of designing and issuing the coins (including labor, materials, dies, use
of machinery, overhead expenses, marketing, and shipping).
(b) BULK SALES.—The Secretary shall make bulk sales of the coins issued under this
Act at a reasonable discount.

22 P.L. 110-451, §4, 122 Stat. 5022 (2008).
23 P.L. 112-209, §5, 126 Stat. 1511 (2012).
Congressional Research Service

9

link to page 20 Commemorative Coins: Background, Legislative Process, and Issues for Congress

(c) PREPAID ORDERS.—
(1) IN GENERAL.—The Secretary shall accept prepaid orders for the coins minted
under this Act before the issuance of such coins.
(2) DISCOUNT.—Sale prices with respect to prepaid orders under paragraph (1)
shall be at a reasonable discount.24
Surcharges
The surcharges section of the legislation typically sets the surcharges (amount above the face
value that the U.S. Mint charges) per coin and designates the distribution of these surcharges to
recipient organizations. For example, the statute to authorize the U.S. Army commemorative coin
stated
SEC. 7. SURCHARGES.
(a) In General.—All sales of coins minted under this Act shall include a surcharge as
follows:
(1) A surcharge of $35 per coin for the $5 coin.
(2) A surcharge of $10 per coin for the $1 coin.
(3) A surcharge of $5 per coin for the half dollar coin.
(b) Distribution.—Subject to section 5134(f) of title 31, United States Code, all
surcharges received by the Secretary from the sale of coins issued under this Act shall
be promptly paid by the Secretary to the Foundation to help finance the National
Museum of the United States Army.
(c) Audits.—The Foundation shall be subject to the audit requirements of section
5134(f)(2) of title 31, United States Code, with regard to the amounts received by the
Foundation under subsection (b).
(d) Limitation.—Notwithstanding subsection (a), no surcharge may be included with
respect to the issuance under this Act of any coin during a calendar year if, as of the
time of such issuance, the issuance of such coin would result in the number of
commemorative coin programs issued during such year to exceed the annual 2
commemorative coin program issuance limitation under section 5112(m)(1) of title 31,
United States Code (as in effect on the date of the enactment of this Act). The Secretary
of the Treasury may issue guidance to carry out this subsection.25
More information on surcharges and disbursement to designated recipient organizations can be
found below under “Disbursement of Surcharges.”

24 P.L. 111-262, §6, 124 Stat. 2784 (2010).
25 P.L. 110-450, §7, 122 Stat. 5019 (2008). Many, but not all, commemorative coin measures contain the limitation
provision found in this example. According to the U.S. Mint, this provision would eliminate potential surcharge
payments for all commemorative coin programs in a given year, if Congress authorized more than two commemorative
coin programs for that year, even if the coin program sold enough units to recoup the Mint’s costs and the designated
recipient group raised matching funds to be eligible for a surcharge payment. Telephone conversation with Jennifer
Warren, director of legislative and intergovernmental affairs, U.S. Mint, December 9, 2020.
Congressional Research Service

10

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Financial Assurances
Some bills have included a section on financial assurances. This section generally states that
minting coins will not result in a net cost to the government. The Mint is currently required to
recover its expenses before it can disburse potential surcharges to recipient organizations
designated in a commemorative coin statute.26 The Mint has stated that all commemorative coin
programs have operated at no cost to the taxpayer since 1997.27 For example, the statute to
authorize the American Legion 100th Anniversary commemorative coin stated
SEC. 8. FINANCIAL ASSURANCES.
The Secretary shall take such actions as may be necessary to ensure that—
(1) minting and issuing coins under this Act will not result in any net cost to the United
States Government; and
(2) no funds, including applicable surcharges, are disbursed to the recipient designated
in section 7 until the total cost of designing and issuing all of the coins authorized by
this Act (including labor, materials, dies, use of machinery, overhead expenses,
marketing, and shipping) is recovered by the United States Treasury, consistent with
sections 5112(m) and 5134(f) of title 31, United States Code.28
Consideration of Legislation in Congress
Once a commemorative coin bill is introduced, it is typically referred to the House Committee on
Financial Services or the Senate Committee on Banking, Housing and Urban Affairs.29
Neither House nor Senate rules provide any restrictions specifically concerning consideration of
commemorative coin legislation on the House or Senate floor.30 Pursuant to Senate and House
rules, the Senate Committee on Banking, Housing, and Urban Affairs and the House Committee
on Financial Services have jurisdiction over commemorative coin legislation.31
In the Senate, the Banking, Housing and Urban Affairs Committee rules in recent Congresses
have placed a minimum on the number of cosponsors a commemorative coin bill must have
before committee consideration. Committee Rule 8 has required that “at least 67 Senators must

26 P.L. 104-208, Div. A, title 1, §529(b), 110 Stat. 3009-349 (1996).
27 Email from Betty Birdsong, acting director, Legislative and Intergovernmental Affairs, U.S. Mint, December 18,
2018.
28 P.L. 115-65, §8, 131 Stat. 1191 (2017).
29 U.S. Congress, House, Financial Service Committee, at http://financialservices.house.gov; and U.S. Congress,
Senate, Committee on Banking, Housing, and Urban Affairs, at http://www.banking.senate.gov.
30 This stands in contrast to some other commemorative legislation. For more information on House Rule XII, clause 5,
see CRS Report R43539, Commemorations in Congress: Options for Honoring Individuals, Groups, and Events,
coordinated by Jacob R. Straus.
31 U.S. Congress, Senate, “Rule XXV(d): Committee on Banking, Housing, and Urban Affairs,” Standing Rules of the
Senate, 113th Cong., 1st sess., S.Doc. 113-18 (Washington: GPO, 2013), pp. 26-27, at https://www.gpo.gov/fdsys/pkg/
CDOC-113sdoc18/pdf/CDOC-113sdoc18.pdf#page=26; and U.S. Congress, House, “Rule X(1)(h),” Rules of the House
of Representatives, 116th Cong., 1st sess., January 11, 2019, at https://rules.house.gov/sites/democrats.rules.house.gov/
files/116-1/116-House-Rules-Clerk.pdf#page=9.
Congressional Research Service

11

Commemorative Coins: Background, Legislative Process, and Issues for Congress

cosponsor any ... commemorative coin bill or resolution before consideration by the
Committee.”32
The rules of the House Financial Services Committee adopted for the 118th Congress do not
specifically address committee consideration of commemorative coin legislation,33 although
informal practices may exist.34
Protocols issued by the House majority leader in the 118th Congress also address commemorative
coins.35 The protocols provide that “the Majority Leader shall only consider commemorative coin
bills that receive at least 290 cosponsors and are submitted to the Committee on Financial
Services to be scheduled for the Floor.”36
Design of Coins
After Congress has authorized a commemorative coin, the U.S. Treasury begins the coin design
process. This process involves consultation with the Citizens Coinage Advisory Committee
(CCAC) and a design recommendation by the U.S. Commission of Fine Arts (CFA). The final
decision on a coin’s design is made by the Secretary of the Treasury.37
Citizens Coinage Advisory Committee
Established in 2003,38 the CCAC advises the Secretary of the Treasury on theme and design of all
U.S. coins and medals. For commemorative coins, the CCAC advises the Secretary with regard to
events, persons, or places to be commemorated, the mintage level of coins, and commemorative
coin designs.
The CCAC consists of 11 members appointed by the Secretary of the Treasury, with four persons
appointed upon the recommendation of the congressional leadership (one each by the Speaker of
the House, the House minority leader, the Senate majority leader, and the Senate minority

32 “Senate Committee on Banking, Housing, and Urban Affairs Rules of Procedure,” Congressional Record, daily
edition, vol. 169 (February 9, 2023), pp. S296-S298.
33 U.S. Congress, House, “Rule X(1)(h),” 118th Congress Organizational Meeting: Resolution to Adopt the Rules of the
Committee on Financial Services, 118th Cong., 1st sess., February 1, 2023, at
https://docs.house.gov/meetings/BA/BA00/20230201/115273/HMKP-118-BA00-20230201-SD005.pdf.
34 In some past Congresses, the committee had adopted a rule to prohibit (1) the scheduling of a subcommittee hearing
on commemorative coin legislation unless two-thirds of the House cosponsored the measure, or (2) reporting a bill that
did not meet minting regulations under 31 U.S.C. §5112 (U.S. Congress, House, Committee on Financial Services,
Rules for the Committee on Financial Services, 113th Cong., 1st sess. (Washington: GPO, 2013), p. 6, at
https://www.govinfo.gov/content/pkg/CPRT-113HPRT78856/html/CPRT-113HPRT78856.htm).
35 Leadership “protocols” are not elements of the House Standing Rules and are not enforceable through points of order
on the House floor.
36 U.S. Congress, House, Office of the Majority Leader, “Commemorative Coins,” 118th Congress Floor Protocols, at
https://www.majorityleader.gov/schedule/floor-protocols.htm .Further, the protocols note that “(A) the individual,
event, or institution being honored must be American; (B) the individual, event, or institution must have had a lasting
impact on American history and culture that is likely to be recognized as a major influence long after the individual,
event, or institution’s time; (C) a substantially similar individual, event, or institution has not received a coin
previously; (D) the recipient being honored can’t be an individual who is living; (E) and the bill comports with 31
U.S.C. 5112(m), which provides that no more than two commemorative coin programs may be authorized for a
particular calendar year.”
37 For example, see U.S. Department of the Treasury, U.S. Mint, “Site and Design Selection Process,” American the
Beautiful Quarters Program, at https://www.usmint.gov/learn/coin-and-medal-programs/america-the-beautiful-
quarters?action=designselection#process.
38 31 U.S.C. §5135.
Congressional Research Service

12

link to page 17 link to page 18

Commemorative Coins: Background, Legislative Process, and Issues for Congress

leader).39 The CCAC meets several times each year to consider design suggestions for coins and
medals. For each coin considered, the CCAC provides advice to the Secretary “on thematic,
technical, and design issues related to the production of coins.”40 Recommendations are then
published to the committee’s website, at http://www.ccac.gov.
When making recommendations to the Secretary, the CCAC considers several design aspects.
Figure 1 shows the CCAC’s “Design Aspects We Look For,” when advising groups on coin
design.
Figure 1. Citizens Coinage Advisory Committee Design Elements

Source: Citizens Coinage Advisory Committee, “Design Aspects We Look For,” How to Make Friends and
Influence the Committee (aka How to Get Picked), May 20, 2014, p. 2, at http://ccac.gov/media/aboutUs/
specialReports/Medallic-Design-Elements.pdf.
Figure 2 shows examples of U.S. Commemorative coins. These include the first U.S.
commemorative coin (1893 World’s Columbian Exposition half-dollar), one of the best-selling
commemorative coin programs of all time (1986 Statue of Liberty half-dollar),41 and one of the
most recent (2016 National Park Service Centennial).

39 For a list of current members of the CCAC, see Citizens Coinage Advisory Committee, “Members,” at
https://www.ccac.gov/aboutUs/members.html.
40 CFA, Civic Art, p. 480.
41 In total, the two Statue of Liberty commemorative coins sold more than 15 million units. The program consisted of a
$5 gold coin and a half-dollar coin. For more information on commemorative coin sales, see Department of the
Treasury, U.S. Mint, “Historical Commemorative Coin Sales,” at http://www.usmint.gov/about_the_mint/index.cfm?
action=historical-commemorative-coin-sales.
Congressional Research Service

13

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Figure 2. Examples of Commemorative Coin Designs

Sources: “Columbian Exposition Half Dol ar,” Early Commemorative Coins, at
http://earlycommemorativecoins.com/1892-columbian-half-dol ar; U.S. Department of the Treasury, U.S. Mint,
“1986 Statue of Liberty Half Dol ar,” at https://www.usmint.gov/about_the_mint/CoinLibrary/
index.cfm#statueLib; and U.S. Department of the Treasury, U.S. Mint, “2016 National Park Service 100th
Anniversary Commemorative Coin Program: Gold Obverse and Reverse,” at https://www.usmint.gov/coins/coin-
medal-programs/commemorative-coins/national-park-service-100th-anniversary-gold.
U.S. Commission of Fine Arts
The U.S. Mint also makes a formal presentation of design options to the U.S. Commission of
Fine Arts (CFA). Established in 1910, the CFA advises “upon the location of statues, fountains,
and monuments in the public squares, streets, and parks in the District of Columbia, the selection
of models for statues, fountains, and monuments erected under the authority of the Federal
Government; the selection of artists; and questions of art generally when required to do so by the
President or a committee of Congress.”42 This includes review of commemorative coins when
they are presented by the U.S. Mint and the issuance of recommendations for a coin’s design.

42 40 U.S.C. §9102.
Congressional Research Service

14

Commemorative Coins: Background, Legislative Process, and Issues for Congress

For example, in March 2016, the U.S. Mint presented several alternative designs for the Boys
Town Centennial Commemorative Coin program. In a letter to the U.S. Mint, the CFA provided
recommendations on the design for each of the three statutorily required coins. CFA’s letter
stated43
24 March 2016
Dear Mr. Jeppson:
In its meeting of 17 March, the Commission of Fine Arts reviewed alternative designs for the three coins of the
Boys Town Centennial Commemorative Coin Program. The Commission members provided the fol owing
recommendations.
Five-dollar gold coin. The Commission members recommended the obverse and reverse pairing presented as
alternative #1, with the suggestion to substitute the text “The Work Wil Continue” for the proposed inscription
“Saving Children – Healing Families.”
One-dollar silver coin. The Commission members recommended the obverse and reverse pairing that was presented
as the half-dol ar clad coin’s alternative #13, consistent with the recommendation of the Citizens Coinage
Advisory Committee (CCAC); they supported the modified locations of inscriptions as requested by the CCAC.
Half-dollar clad coin. The Commission members recommended the obverse and reverse pairing that was presented
as the one-dol ar silver coin’s alternative #16, acknowledging that some of the complex linework in the presented
drawing of the reverse may need to be simplified as the design is sculpted for coinage.
As always, the staff is available to assist you with future submissions.
Sincerely,
/s/Thomas E. Luebke, FAIA
Secretary
U.S. Mint
After receiving advice from the CCAC and the CFA, the Secretary of the Treasury, through the
U.S. Mint, finalizes the coin’s design and schedules it for production at the appropriate time. In
some cases, the U.S. Mint holds a competition for coin designs. For example, in February 2016,
the U.S. Mint announced a design competition for the 2018 commemorative coin to World War I
American Veterans.44 Additionally, designers competed for the 2018 Breast Cancer Awareness
commemorative coin.45 The final design was announced in October 2017.46
Commemorative Coin Timeline
From authorization to coin launch, the CCAC has estimated that a commemorative coin takes a
minimum of between 56 and 60 weeks. This includes the coin design process, engraving,
marketing, printing materials, and coin launch. This timeline, however, does not account for coin
programs that might be authorized years in advance of the coins’ scheduled release. In those

43 Letter from Thomas E. Luebke, secretary, U.S. Commission of Fine Arts, to Rhett Jeppson, principal deputy director,
U.S. Mint, March 24, 2016, at https://www.cfa.gov/records-research/project-search/cfa-17mar16-5.
44 U.S. Department of the Treasury, “United States Mint Launches Design Competition,” press release, February 18,
2016, https://www.treasury.gov/connect/blog/Pages/United-States-Mint-Launches-Design-Competition.aspx. The
competition occurs in two stages. First, applicants submit three to five samples of work. Second, a group of invited
applicants is asked to submit coin designs. The initials of the competition’s winner will be placed on the coin and the
winner will receive $10,000. Currently, the competition for the World War I commemorative coin is ongoing.
45 U.S. Mint, “Coin Design Competitions,” at http://www.usmint.gov/competition.
46 U.S. Mint, “Breast Cancer Awareness Commemorative Coin Program,” at https://www.usmint.gov/learn/coin-and-
medal-programs/commemorative-coins/breast-cancer-awareness.
Congressional Research Service

15

link to page 20 link to page 10

Commemorative Coins: Background, Legislative Process, and Issues for Congress

circumstances, the process from authorization to coin launch will be considerably longer. The
process, as described by the CCAC, is shown in Figure 3.
Figure 3. Commemorative Coin Process

Source: Citizen Commemorative Coin Advisory Committee, 2000 Annual Report, at https://www.usmint.gov/
foia/reading-room/cccac-2000-annual-report.
Note: The Citizens Commemorative Coin Advisory Committee (CCCAC) became the Citizens Coinage
Advisory Committee pursuant to P.L. 108-15 (§103, 117 Stat 615 [2003]).
Disbursement of Surcharges
As discussed above under “Authorizing Commemorative Coins,” each authorizing statute sets a
surcharge amount per coin and designates one or more recipient organizations to receive the
surcharges. A designated recipient organization is “any organization designated, under any
provision of law, as the recipient of any surcharge imposed on the sale of any numismatic item.”47
Commemorative coin legislation generally includes the name(s) of the organization(s) that will
benefit from the sale of the coin and how the surcharges will be divided, if necessary. For
example, the legislation authorizing a commemorative coin for the U.S. Marshals Service
specified four groups to receive distribution from the program.48 They were
• the U.S. Marshals Museum, Inc.,
• the National Center for Missing & Exploited Children,
• the Federal Law Enforcement Officers Association Foundation, and
• the National Law Enforcement Officers Memorial Fund.49
Additionally, the law might also specify how much money the designated recipient organization
should receive. For the Marshals Service commemorative coin, the first $5 million was specified
for the U.S. Marshals Museum. After that, additional surcharges were divided equally among the

47 P.L. 104-208, §529, 110 Stat. 3009-349 (1996).
48 P.L. 112-104, 126 Stat. 289 (2012).
49 P.L. 112-104, §7.
Congressional Research Service

16

Commemorative Coins: Background, Legislative Process, and Issues for Congress

National Center for Missing & Exploited Children, the Federal Law Enforcement Officers
Association Foundation, and the National Law Enforcement Officers Memorial Fund.50
Once a commemorative coin has been authorized, the CCRA requires that certain standards be
met before surcharge payments can be distributed to designated recipient organizations:51
1. The recipient organization must raise funds from private sources “in an amount
that is equal to or greater than the total amount of the proceeds of such surcharge
derived from the sale of such numismatic item.”52
2. The qualifying funds raised from private sources must be for the purposes
specified by the enabling legislation.
3. The U.S. Mint must recover “all numismatic operation and program costs
allocable to the program.”53
4. The recipient organization must submit an audited financial statement and submit
the results of annual audits to demonstrate, to the satisfaction of the Secretary of
the Treasury, that it has qualified for surcharge proceeds and is properly
expending them.54
Guidance provided by the U.S. Mint in Surcharge Recipient Organization’s Compliance
Procedures for Surcharge Eligibility & Payments includes further details of the requirements
placed on designated recipient groups before surcharge payments can be made. These include
requirements for documentation on the amount of money raised from private sources and the
period of fund raising. To document these requirements, designated recipient groups must fill out

50 P.L. 112-104, §7.
51 To guide designated recipient groups, the U.S. Mint has published guidance on surcharge disbursement. U.S. Mint,
Surcharge Recipient Organization’s Compliance Procedures for Surcharge Eligibility & Payments, at
https://www.usmint.gov/wordpress/wp-content/uploads/2016/06/Surcharge-Recipient-Organizations-Compliance-
Procedures-for-Surcharge-Eligibility-and-Payments.pdf. [Hereinafter, Surcharge Recipient Manual].
52 The CCRA requires that designated recipient organizations demonstrate that funds have been raised from private
sources for the project designated to receive the surcharges from the commemorative coin program. In order to receive
surcharge payments, “the total of qualifying private funds raised must be greater than or equal to the total amount of the
proceeds of such surcharge derived from the sale of such numismatic item.” Further, “private funds are funds raised
from non-governmental sources,” and can include cash contribution and other assets that can be readily converted to
cash. Other assets that can be readily converted to cash might include “donations of common stock or marketable real
estate.” In-kind donations are not considered “funds,” and are not included in calculations for the purpose of surcharge
disbursement. Fundraising time limits are also placed on designated recipient organizations. All eligible private funds
must be raised “during the period between the inception of the recipient organization and the date two years after the
last day any coin in the respective program is issued by the Secretary” (Surcharge Recipient Manual, pp. 4-5).
53 Further, payments are not generally made until “the recipient organization satisfactorily demonstrates that it has
raised qualifying funds from private sources in an amount equal to or greater than the maximum amount the
organization may receive from the proceeds of surcharges under the respective [commemorative coin] program”
(Surcharge Recipient Manual, p. 14). If the recipient organization has demonstrated that qualifying funds have been
raised, “the United States Mint will consider accommodating the recipient organization by making interim surcharge
payments at the United States Mint’s discretion,” although “any interim surcharge payment will depend on the financial
performance of the program and the risk of loss to which the United States Mint may be exposed by releasing surcharge
funds before the termination of the program” (Surcharge Recipient Manual, p. 12). Interim payments may be made
starting six months after the start of the commemorative coin program with payments up to 50% of surcharges collected
by the U.S. Mint. Further payments of up to 25% may be made nine months after the start of the program, with the
remainder paid upon program close out.
54 Surcharge Recipient Manual, p. 1. Additionally, audits are required for privately raised funds. “The auditor’s report
shall cover the period necessary to demonstrate that required funds from private sources have been raised by the
recipient organization. The period reported should be by fiscal year of the recipient organization and must correspond
with the period covered by the recipient organization’s assertion. The auditor should submit its report promptly to the
recipient organization upon completion” (Surcharge Recipient Manual, p. 6).
Congressional Research Service

17

link to page 22 link to page 23 link to page 23 link to page 23 Commemorative Coins: Background, Legislative Process, and Issues for Congress

a “Schedule of Funds Raised From Private Sources,” which is provided in an appendix to the
Surcharge Recipient Organization’s Compliance Procedures for Surcharge Eligibility &
Payments publication.55
Following completion of these tasks, and after the Mint has recouped any expenses related to
minting the commemorative coin, surcharges are then disbursed to the designated recipient
organization.56 Since 1982, when the commemorative coin program was restarted, the U.S. Mint
has raised more than $506 million in surcharges for various designated recipient groups.57
Production costs for each commemorative coin can differ based on design, administrative costs,
and metals used. For example, Table 4 shows how the U.S. Mint calculated surcharges for a
commemorative coin for the 2007 Benjamin Franklin Commemorative Coin.58
Table 4. Example Calculation of Commemorative Coin Surcharge Payments

Benjamin Franklin
REVENUE
$20,348,835
COST OF GOODS SOLD

Manufacturing and Assembling
$7,576,163
Order Fulfil ment
$549,513
Total Cost of Goods Sold
$8,125,676
RESULTS BEFORE SELLING, GENERAL & ADMINISTRATIVE
$12,223,159
Selling, General & Administrative

Promotional
$1,000,000
Travel
$2,290
General & Administrative & Marketing
$2,529,656
Total Sel ing, General & Administrative
$3,531,946
PROFIT BEFORE SURCHARGES
$8,691,213
SURCHARGE ON REVENUEa
$4,995,570
ESTIMATED PROFIT (LOSS)b
$3,695,643
POTENTIAL UNRECOVERED MINT INVESTMENTc

55 Surcharge Recipient Manual, p. 1. The “Schedule of Funds Raised From Private Sources,” documentation must be
audited pursuant to U.S. Mint guidelines and be accompanied by “a written assertion by its Chief Executive Officer
(CEO) or Chief Financial Officer (CFO) that it has met the compliance requirements of the CCRA and specific
enabling legislation.” The assertion must include the amount of qualifying funds received; that private funds raised are
“for the purposes described in the enabling legislation”; and that “none of the qualifying funds raised from private
sources have been used to compensate, directly or indirectly, any agent or attorney for services rendered to support or
influence in any way legislative actions of Congress relating to numismatic coin activity [pursuant to P.L. 104-208,
§529].” For more information, see Surcharge Recipient Manual, p. 5. The Mint’s Surcharge Recipient Manual does not
specify whether or not a recipient organization may include borrowed money in its demonstration of qualified matching
funds (p. 4).
56 31 U.S.C. 5134 (f)(1)(A)(i). The provision reads: “Notwithstanding any other provision of law, no amount derived
from the proceeds of any surcharge imposed on the sale of any numismatic item shall be paid from the fund to any
designated recipient organization unless- (i) all numismatic operation and program costs allocable to the program under
which such numismatic item is produced and sold have been recovered.... ”
57 U.S. Mint, “FAQ: Who Decides What Commemorative Coins are Minted?,” WWI Centennial 2018 Commemorative
Coin Design Competition, at http://www.usmint.gov/competition/wwi/?action=faqs#top.
58 P.L. 108-464, 118 Stat. 3878 (2004).
Congressional Research Service

18

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Benjamin Franklin
Melting
$1,710
Manufacturing and Assembling
$511,527
TOTAL
$513,237
SURCHARGE FORWARDED TO RECPIENT ORGANIZATIONS
$3,369,060
Source: Adapted from U.S. Department of the Treasury, U.S. Mint, FY2007 1st Quarter Financial Report of the
United States Mint Commemorative Coin Programs, p. 6, at https://www.usmint.gov/wordpress/wp-content/uploads/
2016/06/ccra2007q1.pdf.
a. Surcharge on revenue are the proceeds col ected for designated recipient organizations.
b. “P.L. 104-208 requires the United States Mint to recover all allocable operation and program costs prior to
the release of surcharge funds. The United States Mint wil reduce the surcharge payment to recover these
costs as necessary.” For more information, see U.S. Department of the Treasury, U.S. Mint, FY2007 1st
Quarter Financial Report of the United States Mint Commemorative Coin Programs, p. 6, at
https://www.usmint.gov/wordpress/wp-content/uploads/2016/06/ccra2007q1.pdf.
c. As required by P.L. 104-208, §529.
Issues for Congress
As Members of Congress contemplate introducing legislation, and the House or the Senate
potentially considers commemorative coin measures, there are several issues that could be
considered. These can be divided into issues for individual Members of Congress with respect to
individual coins, and issues for Congress as an institution. Individual issues include choices
Members may make about which people, places, events, or institutions might be honored; which
groups might receive surcharge payments; and whether specific design elements might be
required for a proposed coin. Institutional issues might include committee or chamber rules on the
consideration of commemorative coins and the limit on the number of commemorative coins
minted per year.
Individual Considerations
Groups and Events Honored
Some commemorative coin programs are more popular than others. For example, since the
commemorative coin program was restarted in 1982, the average commemorative coin program
has sold approximately 1 million coins. The 1986 U.S. Statue of Liberty coins (15,491,169 coins)
sold the most, while the 1997 Franklin Delano Roosevelt gold $5 coin sold the fewest (41,368).59
The introduction of commemorative coin legislation often serves two purposes: to honor people,
places, events, or institutions and to provide designated recipient groups with potential surcharge
funds. These two purposes often go together. Since two coins may be minted in a given year,
Congress may face a ranking of which groups are honored at any given time. In making that
decision, consideration might be given to coins that are likely to sell their authorized allotment
and provide the designated recipient group with disbursed surcharges over coins that might be
less popular and might not sell enough units to provide surcharges to the designated recipient
group.

59 Department of the Treasury, U.S. Mint, “Historical Commemorative Coin Sales Figures,” at
https://www.usmint.gov/about/production-sales-figures/historical-commemorative-coin-sales.
Congressional Research Service

19

link to page 14 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Alternatively, Congress could decide that a person, place, event, or institution merits a
commemorative coin regardless of the potential sales of the coin. In this instance, the
authorization for a coin might not expect that the allotment would be fully sold, but that the
recognition provided by the coin was nevertheless desirable.
Disbursement of Surcharges
An important part of commemorative coin legislation is the designation of groups to receive
potential surcharges from the coin sales. Often, when drafting legislation, Members have specific
organizations in mind as recipients of potential surcharges. As that legislation is being drafted,
however, Members face a choice of whether surcharges should be directed to a single group, or to
more than one entity.
For a group to receive surcharge payments, it must go through two stages: (1) raise sufficient
matching funds from private sources,60 and (2) be subject to annual audits on its use of surcharge
payments.61 Designated recipient groups are required to raise matching funds from private
sources prior to the disbursement of surcharges. A group’s ability to raise sufficient funds is a
potentially important consideration. Should a group not raise sufficient private funds, the full
surcharge payment for which they could be eligible might not be disbursed.
Authorizing legislation generally includes language about how the group might use surcharges.
As shown in “Surcharges” above, these purposes are often broad. For example, the legislation
that authorized the 1993 Thomas Jefferson Commemorative coin directed surcharges to two
organizations: the Jefferson Endowment Fund and the Corporation for Jefferson’s Poplar Forest.62
Funds for the Jefferson Endowment Fund were to be used “to establish and maintain an
endowment to be a permanent source of support for Monticello and its historic furnishings; and
for the Jefferson Endowment Fund’s educational programs, including the International Center for
Jefferson Studies.”63 For the Corporation for Jefferson’s Poplar Forest, funds were to be used for
the “restoration and maintenance of Poplar Forest.”64
Once sufficient funds are raised and surcharges are disbursed, designated recipient groups are
subject to an audit of surcharge payments.65 Additionally, the surcharge payments must be
“accounted for separately from all other revenues and expenditures of the organization.”66 These
audits are conducted “in accordance with generally accepted government auditing standards by an
independent public accountant selected by the organization.”67 Should a group not use payments
properly, that information would likely be discovered by the required audit and could potentially
result in a sanction, although no specific penalty is mentioned in law.

60 31 U.S.C. §5134(f)(1).
61 31 U.S.C. §5134(f)(2).
62 P.L. 103-186, §108, 107 Stat. 2246 (1993).
63 P.L. 103-186, §108(1).
64 P.L. 103-186, §108(2). Poplar Forest was owned by Thomas Jefferson and is located in Forest, VA. For more
information, see Thomas Jefferson’s Poplar Forest, at http://www.poplarforest.org.
65 31 U.S.C. §5134(f)(2).
66 31 U.S.C. §5134(f)(2)(C).
67 31 U.S.C. §5134(f)(2)(A). For example, the Government Accountability Office (GAO) found that the Thomas
Jefferson Memorial Foundation received surcharges and had deposited them in proper accounts, but had not yet spent
any surcharge funds. For more information, see U.S. Government Accountability Office, Jefferson Memorial
Foundation Commemorative Coin Program, B-276273, July 18, 1997, at http://www.gao.gov/assets/90/86670.pdf.
Congressional Research Service

20

link to page 15 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Specification of Design Elements
In some cases, commemorative coin authorizations have required the Mint to incorporate design
elements beyond requirements for specific words (e.g., “Liberty,” or “E Pluribus Unum”), the
denomination (e.g., “one dollar”), or the year.68 In these cases, the authorizing legislation
specifically states the design element. For example, it was a sense of Congress that the National
Baseball Hall of Fame commemorative coin was to be curved to look more like a baseball.69
Similarly, the 2018 Breast Cancer Awareness $5 gold coin is to be minted using “pink gold.”70
Should a Member wish to have a specific design element incorporated into a future
commemorative coin, the authorizing legislation would likely need to contain that language either
as a sense of Congress or as part of the coin specification section. Including language that would
require a certain design element would likely ensure that the Member’s vision for the
commemorative coin would be incorporated into the design and minting process. Such
specification, however, could serve to limit design choice for the commemorative coin and might
alter the cost structure of striking a coin, if the required element diverges from standard coin-
minting practices.71
Institutional Considerations
Requirements for Legislative Consideration
As discussed above under “Consideration of Legislation in Congress,” neither House nor Senate
rules provide any restrictions specifically concerning consideration of commemorative coin
legislation on the House or Senate floor.72 The Senate Committee on Banking, Housing, and
Urban Affairs, however, has in recent Congresses had a committee rule that requires that at “least
67 Senators must cosponsor any ... commemorative coin bill or resolution before consideration by
the Committee.”73 The House Financial Services Committee has not, in recent years, adopted any
specific rules concerning committee consideration of commemorative coin legislation, although it
has required a minimum number of cosponsors in past Congresses.74
As demonstrated by the discontinuation of the House Financial Services Committee rule requiring
a minimum number of cosponsors for committee commemorative coin legislation, committee
rules can be changed from Congress to Congress. Should the House want to place requirements
on the consideration of commemorative coin legislation, the Financial Services Committee could

68 31 U.S.C. §5112(d)(1).
69 P.L. 112-152, §3(d), 126 Stat. 1156 (2012).
70 P.L. 114-148, §3(a)(1)(B), 130 Stat. 362 (2016).
71 For example, see discussion on the size of precious-metal blanks for the 2014 National Baseball Hall of Fame
commemorative coin that accompanied P.L. 113-10 (127 Stat. 445 [2013]), at “National Baseball Hall of Fame
Commemorative Coin Act Amendment,” Congressional Record, vol. 159, daily edition (April 24, 2013), pp. H2260-
H2261.
72 This stands in contrast to a House Rules provision (Rule XII, clause 5) that prohibits the introduction or
consideration of date-specific commemorative legislation. For more information on House Rule XII, clause 5, see CRS
Report R43539, Commemorations in Congress: Options for Honoring Individuals, Groups, and Events, coordinated by
Jacob R. Straus.
73 “Senate Committee on Banking, Housing, and Urban Affairs Rules of Procedure,” Congressional Record, daily
edition, vol. 169 (February 9, 2023), pp. S296-S298.
74 U.S. Congress, House, Committee on Financial Services, Rules for the Committee on Financial Services, 113th
Cong., 1st sess. (Washington: GPO, 2013), p. 6, at https://www.govinfo.gov/content/pkg/CPRT-113HPRT78856/html/
CPRT-113HPRT78856.htm.
Congressional Research Service

21

link to page 14 link to page 20 Commemorative Coins: Background, Legislative Process, and Issues for Congress

readopt its former rule, or something similar. Adopting committee rules to require a minimum
number of cosponsors might encourage bill sponsors to build support among Representatives for
a commemorative coin bill to honor a specified group or event. Such a minimum requirement,
however, could potentially limit the committee in the number or type of commemorative coin
bills it considers.
Since only the Senate Committee on Banking, Housing, and Urban Affairs has in recent years had
a rule that imposes a formal qualification on the potential consideration of commemorative coin
legislation, the possible path forward for a bill can be different within each chamber. Should the
House, the Senate, or both want to adopt similar language for the consideration of
commemorative coin legislation, such language could be incorporated into future committee
rules, into House and Senate Rules, or into law. Taking steps to formally codify the
commemorative coin consideration process might provide sponsors with a single process for coin
consideration, which could make it easier for coin bills to meet minimum requirements for
consideration across both the House and Senate. Such codification could also limit congressional
flexibility and might result in fewer proposals or authorizations to comply with new standards.
Number of Coins Minted Per Year
In 1996, Congress limited the U.S. Mint to issuing two coins per year beginning in calendar year
1998.75 This action was taken in response to the proliferation of commemorative coins authorized
since the program was restarted in 1982.76 Should Congress want to increase or decrease the
maximum number of commemorative coins minted per year, the law could be amended.
Reducing the number of commemorative coins per year would also reduce the number of groups
or events that might be commemorated and reduce the number of designated recipient groups that
might be aided by the disbursement of coin surcharges. A decrease in the number of
commemorative coins per year, however, could increase sales on authorized coins by reducing
potential competition among coin programs.
Should Congress desire to increase the number of coins, more people, places, events, or
institutions could potentially be honored, and a larger variety of designated recipient groups
might receive surcharges from the U.S. Mint. Authorizing additional commemorative coin
programs, however, could increase the number of commemorative coins available and reintroduce
problems associated with competition among commemorative coin programs and result in a
proliferation of coins on the market at any given time. Such a scenario might result in decreased
surcharge disbursement opportunities for individual designated recipient groups.
If Congress authorizes more than two commemorative coin programs for a particular year, groups
might not be eligible to receive surcharge payments. As discussed above under “Surcharges” and
“Disbursement of Surcharges,” some commemorative coin statutes contain limitation provisions
that would eliminate surcharge payments for all commemorative coins in a given year, if
Congress authorizes more than two commemorative coin programs for that year. The limitation
provisions typically say the following:
(d) Limitation.—Notwithstanding subsection (a), no surcharge may be included with
respect to the issuance under this Act of any coin during a calendar year if, as of the time
of such issuance, the issuance of such coin would result in the number of commemorative
coin programs issued during such year to exceed the annual 2 commemorative coin

75 P.L. 104-208, §529, 110 Stat. 3009-349 (1996); 31 U.S.C. §5112(m)(1).
76 U.S. Congress, Senate, The City of New York Tercentennial Commemorative Coin—Veto Message, 83rd Cong., 2nd
sess., February 3, 1954, S.Doc. 94 (Washington: GPO, 1954); and Q. David Bowers, A Guide Book of United States
Commemorative Coins (Atlanta, GA: Whitman Publishing, 2008), p. 16.
Congressional Research Service

22

link to page 7 link to page 7 Commemorative Coins: Background, Legislative Process, and Issues for Congress

program issuance limitation under section 5112(m)(1) of title 31, United States Code (as
in effect on the date of the enactment of this Act). The Secretary of the Treasury may issue
guidance to carry out this subsection.77
For example, for authorized coins in 2021 and 2022, three of the four contain similar limitation
provisions. Only the Christa McAuliffe commemorative coin does not contain the provision.78 As
such, should Congress want to add a third coin for 2021 or 2022 and intend to have surcharge
payments made to designated recipient groups (assuming the U.S. Mint recoups its costs and the
group raises the required funds), those statutes would likely need to be amended to allow such
payments.
Coin Timelines
In recent years, the time between enactment of a commemorative coin law and a coin’s release
has decreased. The compression of the timeline between enactment and sale of the first coin can
be a critical variable for whether a commemorative coin program is successful at potentially
raising money for its designated recipient group(s). As mentioned above under “Commemorative
Coins, 1998-Present,” between 1998 and 2011 coins were authorized, on average, three years
prior to January 1 of the year the coin was issued, with the longest time period between
authorization and the year of issue being the West Point Bicentennial commemorative coin
(which was authorized in 1994 to be struck in 2002). The shortest time period between
authorization and the issue year was the San Francisco Old Mint commemorative coin, which was
authorized and struck in the same year, 2006. For coins authorized for sale between 2012 and
2021, the U.S. Mint reports that the average number of days between enactment and January 1 of
the release year was 795 days. The longest time between enactment and January 1 of the issue
year was the 2014 Civil Rights Act of 1964 coin (1,856 days, or approximately 5 years),79 and the
shortest was the 2020 Women’s Suffrage Centennial coin (37 days).80 The 2020 Women’s
Suffrage Centennial Commemorative Coin Act was enacted on November 25, 2019.
The creation of a newly authorized commemorative coin takes time. The more time between
enactment and issuance, the more opportunity for coin design and marketing to increase the
likelihood of developing a product that honors the individual, group, or event and appeals to
collectors. Designated recipient groups do not receive surcharge payments until after the U.S.
Mint has recouped all of the costs associated with designing, striking, and marketing a coin. For
coins with a long lead time (enactment to sales), the U.S. Mint and the group have a greater
opportunity to consult on the coin design and marketing strategy to ensure the sale of as many
coins as possible. A longer timeline, therefore, might make it more likely a designated recipient
group might receive a surcharge payment.

77 P.L. 116-209, §7(d), 134 Stat. 1014 (2020).
78 P.L. 116-65, 133 Stat. 1124 (2019). The other coins authorization contain the limitation provision: National Law
Enforcement Officers Museum (P.L. 116-94, Div. K, §107(d), 133 Stat. 3088 [2019]); Negro Leagues Baseball
Centennial (P.L. 116-209, §7(d), 134 Stat. 1014 [2020]); and National Purple Heart Hall of Honor (P.L. 116-247, §7(d),
134 Stat. 1120 [2020]).
79 P.L. 110-451, 122 Stat., 5021 (2008).
80 P.L. 116-71, 133 Stat. 1147 (2019).
Congressional Research Service

23

link to page 28

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Non-Fundraising Anniversary Coins
In the 116th Congress (2020-2021), the 1921 Silver Dollar Coin Anniversary Act was enacted.81
This law required the U.S. Mint to issue silver dollar coins in 2021 in honor of the 100th
anniversary of the Morgan Dollar and the 100th anniversary of the Peace Dollar. The U.S. Mint
has since issued Morgan and Peace Dollar coins in 2023 and plans to do so for 2024.82 Figure 4
shows the 2021 Morgan and Peace Dollar coins.
Figure 4. 2021 Morgan and Peace Dollars

Source: United States Mint, “Morgan and Peace Dol ar Anniversary Coin Images.” News Image Library, at
https://www.usmint.gov/news/image-library/morgan-peace-anniversary-coins.

81 P.L. 116-286, 134 Stat. 4879 (2021). For more information on silver dollars, see CRS In Focus IF11773, Redesigning
Circulating Quarters, Half Dollars, and Dollar Coins: Current and Future Designs, by Jacob R. Straus.
82 U.S Mint, “United States Mint Announces Pause in Production and Sales of Morgan and Peace Dollars for 2022,
Popular Historic Program Will Return in 2023,” press release, March 13, 2022, at https://www.usmint.gov/news/press-
releases/united-states-mint-announces-pause-in-production-and-sales-of-morgan-and-peace-dollars-for-2022-popular-
historic-program-will-return-in-2023; and U.S. Mint, “United States Mint Opens Sales for eth 2023 Morgan and Peace
Proof Silver Dollars on August 9,” press release, August 4, 2023, at https://www.usmint.gov/news/press-
releases/united-states-mint-opens-sales-for-the-2023-morgan-and-peace-proof-silver-dollars-on-august-9.
Congressional Research Service

24

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Neither the 2021 Morgan and Peace Dollar coins, nor the subsequent 2023 and planned 2024
coins, are commemorative coins according to the traditional definition of that term.
Commemorative coins, as defined in this report, by the U.S. Mint, and by the Commemorative
Coin Reform Act (CCRA), are authorized by Congress to “celebrate and honor American people,
places, events, and institutions” and “help raise money for important causes.”83 The 2021 Morgan
and Peace dollars were differentiated from commemorative coins because proceeds from their
sale were not statutorily designated for a specific recipient group. They were solely minted to
mark the 100th anniversary of the coins, not to raise money.
Historically, the U.S. Mint has had the authority to strike precious metal coins made from gold,84
platinum,85 palladium,86 and bullion.87 In some instances, the Mint chooses to honor particular
historic events through the issuance of precious metal coins. For example, in 2020, the U.S. Mint
issued gold $10 coins to honor the 400th anniversary of the Mayflower.88 These coins, while
commemorating the Mayflower, are not commemorative coins according to traditional definitions
of that term since they were not authorized to raise money for a designated recipient group.
Concluding Observations
Commemorative coins have long been a popular way to honor people, places, and events.
Historically, commemorative coins were issued to celebrate state anniversaries, expositions, and
event anniversaries, or to support the building of memorials. Coins were generally sold to
sponsoring organizations, who then resold them to raise funds.89 In the modern era, two coins can
be minted per year at the same time; according to the U.S. Commission of Fine Arts (CFA), the
“range of subject matter [has] expanded to include subjects such as women, historical events, and
even buildings and landscapes.”90 Additionally, instead of selling coins to organizations to raise
money, the concept of surcharges as a method to direct money to designated groups has been
introduced.
As Congress considers the authorization of new coins to support designated recipient groups,
consideration might be given to coins that could maximize sales and provide groups with the
ability to earn as much money as possible for surcharges to support group activities. On the other
hand, if Congress’s intent for a coin is to recognize a person, place, event, or institution, then
smaller sales numbers might not factor into legislative decisionmaking. Some commemorations
inherently have broader appeal than others and the sale of commemorative coins often reflects the
popularity of a particular person, place, event, or institution to coin collectors and the broader
general public.

83 U.S. Mint, “Commemorative Coins,” at https://catalog.usmint.gov/coins/coin-programs/commemorative-coins/?_ga=
2.206604115.1323343518.1611061516-633680901.1591635300.
84 U.S. Mint, “Gold Coins,” at https://catalog.usmint.gov/coins/precious-metal-coins/gold.
85 U.S. Mint, “Platinum Coins,” at https://catalog.usmint.gov/coins/precious-metal-coins/platinum.
86 U.S. Mint, “Palladium Coins,” at https://catalog.usmint.gov/coins/precious-metal-coins/palladium.
87 U.S. Mint, “United States Bullion Coins,” at https://catalog.usmint.gov/coins/precious-metal-coins/bullion-
coins.html.
88 U.S. Mint, “Mayflower 400th Anniversary Gold Reverse Proof Coin,” at https://catalog.usmint.gov/mayflower-400th-
anniversary-gold-reverse-proof-coin-20XC.html?cgid=null&q=mayflower&navid=search.
89 U.S. Government Accountability Office, Commemorative Coins Could Be More Profitable, GAO/GGD-96-113,
August 1996, p. 2, at http://www.gao.gov/products/GGD-96-113.
90 CFA, Civic Art, p. 480.
Congressional Research Service

25

link to page 18 Commemorative Coins: Background, Legislative Process, and Issues for Congress

To potentially maximize the appeal and sale of commemorative coins to support designated
recipient organizations, Congress might consider whether the people, places, events, or
institutions to be commemorated have a broad appeal and whether design elements might be
specified that would make the coin more appealing to the general public. For example, the 1986
Statue of Liberty commemorative coin (shown in Figure 2) sold over 15 million units, while
other coins have sold as few as approximately 40,000. For a designated recipient organization to
earn surcharges, the U.S. Mint’s production costs must be recouped before payments can be
made. As a result, coins that sell out of statutory allotments are more likely to generate significant
surcharges than those that struggle to find a market beyond commemorative coin collectors.
Similarly, on at least four occasions, Congress has provided specific requirements to the U.S.
Mint on the design of commemorative coins. These included
• that the 2014 National Baseball Hall of Fame coin be curved to represent a
baseball;
• that the 2018 National Breast Cancer Awareness coin be tinted pink, to reflect the
color associated with breast cancer awareness efforts;
• that the 2019 Apollo 11 50th Anniversary coin be convex to resemble an
astronaut’s helmet; and
• that the 2020 Naismith Basketball Hall of Fame coin be curved to represent a
basketball.
Evidence from the coin collecting community suggests that a coin with unique design features
may be more attractive for coin collectors and noncollectors alike. For example, a coin-collecting
publication reported that the National Baseball Hall of Fame coin was so popular that the U.S.
Mint had difficulty meeting demand for orders, especially because it was the “first U.S. coin to
utilize this [curved or dish design] production method and with a baseball theme, [it] ended up
being a homerun with collectors.”91
The goal of commemorative coins is twofold: to commemorate a person, place, event, or
institution and to provide surcharges to groups. As Congress considers future commemorative
coins, the ability to appeal to broad segments of the population to purchase coins in support of
designated recipient groups might be a consideration. If Congress considers what people, places,
events, or institutions might be honored and the coins’ designs, the commemorative coin program
could create innovative designs that raise significant monies for designated recipient groups.
Since not all people, places, events, or institutions have the same appeal to the general public,
consideration of which might be the best subject of commemorative coins would ensure that the
U.S. Mint dedicates its resources to coins that are more likely to sell out authorized allotments
and provide maximum surcharge payments. Alternatively, Congress could recognize important
people, places, events, or institutions with a coin without consideration of the potential
surcharges. In this case, historically important people, places, events, or institutions could be
recognized by the United States regardless of potential amounts raised for these groups.

91 Louis Golino, “The Coin Analyst: Baseball Hall of Fame Commemorative Coin Prices Move Higher,” CoinWeek,
May 5, 2014, at http://www.coinweek.com/coins/commemoratives/baseball-hall-of-fame-commemorative-coin-prices-
move-highe.
Congressional Research Service

26

link to page 31 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Appendix A. Historical Commemorative Coins
Table A-1 provides a list of the commemorative coins authorized by Congress between 1892 and
1954, organized by the year in which they were struck by the mint. The table also includes the
type of coin, the subject, and the authorization statute.
Table A-1. Historical Commemorative Coins, 1892-1954
Year(s)
Issued
Type(s)
Subject
Authorization
1951-54
Half-Dol ar
George Washington Carver & Booker T. Washington
65 Stat. 334
1946-51
Half-Dol ar
Booker T. Washington Memorial
60 Stat. 863
1946
Half-Dol ar
Iowa Centennial
60 Stat. 864
1938
Half-Dol ar
New Rochelle, New York
49 Stat. 1259
1937
Half-Dol ar
Roanoke Island, North Carolina
49 Stat. 1911
1937
Half-Dol ar
Battle of Antietam
50 Stat. 306
1936
Half-Dol ar
York County, Maine Tercentennial
49 Stat. 1973
1936
Half-Dol ar
Wisconsin Territorial Centennial
49 Stat. 1276
1936
Half-Dol ar
Robinson-Arkansas Centennial
49 Stat. 1981
1936
Half-Dol ar
Providence, Rhode Island Tercentennial
49 Stat. 165
1936
Half-Dol ar
Norfolk, Virginia Bicentennial
50 Stat. 322
1936
Half-Dol ar
Lynchburg, Virginia Sesquicentennial
49 Stat. 1387
1936
Half-Dol ar
Long Island Tercentennial
49 Stat. 1205
1936
Half-Dol ar
Battle of Gettysburg
49 Stat. 1524
1936
Half-Dol ar
Elgin, Il inois Centennial
49 Stat. 1523
1936
Half-Dol ar
Delaware Tercentennial
49 Stat. 1352
1936
Half-Dol ar
Columbia, South Carolina Sesquicentennial
49 Stat. 1165
1936
Half-Dol ar
Cleveland Great Lakes Exposition
49 Stat. 1257
1936
Half-Dol ar
Cincinnati Music Center
49 Stat. 1187
1936
Half-Dol ar
Bridgeport, Connecticut Centennial
49 Stat. 1277
1936
Half-Dol ar
Bay Bridge San Francisco-Oakland
49 Stat. 1972
1936
Half-Dol ar
Albany, New York Charter
49 Stat. 1522
1935-36
Half-Dol ar
San Diego-California-Pacific Exposition
49 Stat. 174
1935
Half-Dol ar
Old Spanish Trail
49 Stat. 324
1935
Half-Dol ar
Hudson, New York Sesquicentennial
49 Stat. 165
1935
Half-Dol ar
Connecticut Tercentennial
48 Stat. 1200
1935-39
Half-Dol ar
Arkansas Centennial
49 Stat. 776
1934-38
Half-Dol ar
Texas Centennial
48 Stat. 149
1934
Half-Dol ar
Maryland Tercentennial
48 Stat. 679
1934-38
Half-Dol ar
Daniel Boone Bicentennial
48 Stat. 807
1928
Half-Dol ar
Hawaiian Sesquicentennial
45 Stat. 198
Congressional Research Service

27

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Year(s)
Issued
Type(s)
Subject
Authorization
1927
Half-Dol ar
Vermont Sesquicentennial (Bennington)
43 Stat. 966
1926
Quarter Eagle
Sesquicentennial of American Independence
43 Stat. 1254
1926
Half-Dol ar
Sesquicentennial of American Independence
43 Stat. 1254
1926,
Half-Dol ar
Oregon Trail Memorial
44 Stat. 559
1928,
1933-34,
1936-39
1925
Half-Dol ar
Fort Vancouver Centennial
43 Stat. 966
1925
Half-Dol ar
Stone Mountain Memorial
43 Stat. 23
1925
Half-Dol ar
Lexington-Concord Sesquicentennial
43 Stat. 749
1925
Half-Dol ar
California Diamond Jubilee
43 Stat. 965
1924
Half-Dol ar
Huguenot-Walloon Tercentennial
42 Stat. 1287
1923
Half-Dol ar
Monroe Doctrine Centennial
42 Stat. 1172
1922
Gold Dol ar
Grant Memorial
42 Stat. 362
1922
Half-Dol ar
Grant Memorial
42 Stat. 362
1921
Half-Dol ar
Missouri Centennial
41 Stat. 1363
1921
Half-Dol ar
Alabama Centennial
41 Stat. 595
1920-21
Half-Dol ar
Pilgrim Tercentennial
41 Stat. 597
1920
Half-Dol ar
Maine Centennial
41 Stat. 595
1918
Half-Dol ar
Il inois Centennial
41 Stat. 594
1916-17
Gold Dol ar
McKinley Memorial
39 Stat. 12
1915
Gold $50
Panama-Pacific Exposition
38 Stat. 793
(Octagonal)
1915
Gold $50
Panama-Pacific Exposition
38 Stat. 793
(Round)
1915
Quarter-Eagle
Panama-Pacific Exposition
38 Stat. 793
1915
Gold Dol ar
Panama-Pacific Exposition
38 Stat. 793
1915
Half-Dol ar
Panama-Pacific Exposition
38 Stat. 793
1904-05
Gold Dol ar
Lewis and Clark Exposition
33 Stat. 178
1903
Gold Dol ar
Louisiana Purchase Exposition
32 Stat. 446
(McKinley)
1903
Gold Dol ar
Louisiana Purchase Exposition
32 Stat. 446
(Jefferson)
1900
Dol ar
Lafayette
30 Stat. 1117
1893
Quarter Dol ar
Queen Isabella
27 Stat. 586
1892-93
Half-Dol ar
Columbian Exposition
27 Stat 389
Source: U.S. Department of the Treasury, U.S. Mint, “Commemoratives from 1892-1954,” at
https://www.usmint.gov/mint_programs/commemoratives/?action=premodern; and CRS examination of U.S.
Statutes at Large.
Congressional Research Service

28

link to page 33 link to page 34 link to page 34 link to page 34 link to page 34 Commemorative Coins: Background, Legislative Process, and Issues for Congress

Appendix B. Modern Commemorative Coins,
1982-1997
The modern commemorative coin era began in 1982, when Congress authorized a
commemorative coin for the 250th anniversary of George Washington’s birthday. Table B-1
provides a list of coins authorized by Congress between 1982 and 1997, organized by the year in
which they were struck by the Mint. The table also includes the coin’s subject and authorizing
statute. Coin denominations are not provided for modern commemorative coins because
authorizing legislation generally provides for more than one denomination per commemorative
coin series.
Table B-1. Commemorative Coins Prior to Annual Minting Limits, 1982-1997
Year Commemorative Coin Subject
Authorizing Statute
1982
George Washington 250th Anniversary
P.L. 97-104, 95 Stat. 1491 (1981)
1983
Olympics (Los Angeles, CA)a
P.L. 97-220, 96 Stat. 222 (1982)
1984
Olympics (Los Angeles, CA)a
P.L. 97-220, 96 Stat. 222 (1982)
1986
Statue of Liberty
P.L. 99-61, 99 Stat. 113 (1985)
1987
U.S. Constitution Bicentennial
P.L. 99-582, 100 Stat. 3315 (1986)
1988
Olympics (Seoul, South Korea)
P.L. 100-141, 101 Stat. 832 (1987)
1989
Congress Bicentennial
P.L. 100-673, 102 Stat. 3992 (1988)
1990
Eisenhower Centennial
P.L. 100-467, 102 Stat. 2275 (1988)
1991
Mount Rushmore Golden Anniversary
P.L. 101-332, 104 Stat. 313 (1990)

Korean War Memorial
P.L. 101-495, 104 Stat. 1187 (1990)

USO 50th Anniversary
P.L. 101-404, 104 Stat. 875 (1990)
1992
Olympics (Albertvil e, France and Barcelona, Spain)
P.L. 101-406, 104 Stat. 879 (1990)

White House 200th Anniversary
P.L. 102-281, 106 Stat. 133 (1992)

Christopher Columbus Quincentenary
P.L. 102-281, 106 Stat. 139 (1992)
1993
James Madison and the Bil of Rights
P.L. 102-281, 106 Stat. 145 (1992)

World War II 50th Anniversary
P.L. 102-414, 106 Stat. 2106 (1992)
1994
World Cup USA Tournament
P.L. 102-281, 106 Stat. 135 (1992)

Thomas Jefferson 250th Anniversary
P.L. 103-186, 107 Stat. 2245 (1993)

U.S. Prisoner of War
P.L. 103-186, 107 Stat. 2247 (1993)

Vietnam Veterans War Memorial
P.L. 103-186, 107 Stat. 2247 (1993)

Women in Military Service for America Memorial
P.L. 103-186, 107 Stat. 2247 (1993)

Bicentennial of the U.S. Capitol
P.L. 103-186, 107 Stat. 2252 (1993)
1995
Centennial Olympics (Atlanta, GA)b
P.L. 102-390, title 1, 106 Stat. 1620 (1992)

Civil War Battlefield
P.L. 102-379, 106 Stat. 1362 (1992)

Special Olympics World Games
P.L. 103-328, §204, 108 Stat. 2369 (1994)
1996
Centennial Olympics (Atlanta, GA)b Paralympics
P.L. 102-390, title 1, 106 Stat. 1620 (1992)

National Community Service
P.L. 103-328, §205, 108 Stat. 2372 (1994)
Congressional Research Service

29

Commemorative Coins: Background, Legislative Process, and Issues for Congress

Year Commemorative Coin Subject
Authorizing Statute

Smithsonian Institution 150th Anniversary
P.L. 104-96, 109 Stat. 981 (996)
1997
Jackie Robinson 50th Anniversary
P.L. 104-329, 110 Stat. 4009 (1996)

U.S. Botanic Garden
P.L. 103-328, §208, 108 Stat. 2377 (1994)

Franklin Delano Roosevelt
P.L. 104-329, 110 Stat. 4008 (1996)

National Law Enforcement Officers Memorial
P.L. 104-329, 110 Stat. 4008 (1996)
Source: U.S. Department of the Treasury, U.S. Mint, “Modern Commemorative Coins,” at
https://www.usmint.gov/mint_programs/commemoratives/?action=modern; U.S. Department of the Treasury,
U.S. Mint, “Commemorative Coin Programs,” at https://www.usmint.gov/mint_programs/?action=
commemoratives; and CRS examination of public laws.
a. The 1980 Los Angeles Olympic Commemorative Coins included a total of three coins: two silver dol ars
(one each in 1983 and 1984) and one $10 gold coin issued in 1984. The silver dol ars depicted a discus
thrower (1983) and a coliseum (1984). The gold coin depicted runners (1984). For more information, see
CRS In Focus IF12261, Olympic Commemorative Coins: Background and Considerations for Congress, by Jacob R.
Straus.
b. The 1995 and 1996 Centennial (Atlanta) Olympic Commemorative Coins included a total of 16 coins: two
half dol ars, four silver dol ars, and two $5 gold coins to be issued in 1995 (8 coins) and 1996 (8 coins). In
1995, the half dol ar coins honored baseball and basketball; the silver dol ars honored gymnastics, cycling,
track and field, and the Paralympics; and the $5 gold coins depicted a torch runner and the Olympic
stadium. In 1996, the half dol ar coins honored swimming and soccer; the dol ar coins honored rowing,
tennis, the high jump, and the Paralympics; and the $5 gold coins depicted a flag bearer and the Olympic
cauldron. For more information, see CRS In Focus IF12261, Olympic Commemorative Coins: Background and
Considerations for Congress, by Jacob R. Straus.

Author Information

Jacob R. Straus

Specialist on the Congress

Acknowledgments
Jared C. Nagel, former Senior Research Librarian, provided research support and Amber Wilhelm, Visual
Information Specialist, provided graphics for this report.
Congressional Research Service

30

Commemorative Coins: Background, Legislative Process, and Issues for 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.

Congressional Research Service
R44623 · VERSION 21 · UPDATED
31

Download PDF

Download EPUB

Revision History

Apr. 26, 2024

HTML · PDF

<1% changed

Feb. 16, 2023

HTML · PDF

<1% changed

Aug. 15, 2022

HTML · PDF

3% changed