NEW DOLLAR COIN

Public Prefers Statue

of Liberty Over

Sacagawea

United States General Accounting Office

GAO Report to the Honorable

Michael N. Castle

House of Representatives

January 1999

GAO/GGD-99-24

United States

General Accounting Office

Washington, D.C. 20548

General Government Division

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Page 1 GAO/GGD-99-24 New Dollar Coin

GAO

January 22, 1999

The Honorable Michael N. Castle

House of Representatives

Dear Mr. Castle:

This report responds to your request that we conduct a public opinion

survey regarding a design for the face of the new dollar coin authorized by

Public Law 105-124, the United States $1 Coin Act of 1997. As agreed with

your office, the objectives of our survey were to determine (1) the public’s

preference for either Sacagawea—a Shoshone interpreter who

accompanied the Lewis and Clark expedition—or the Statue of Liberty as

the image on the face of the new dollar coin, (2) how strongly the public

felt about their preference, and (3) reasons for their choice.

To address our objectives, we contracted with International

Communications Research (ICR), a national market research firm. ICR

conducted a statistically representative survey of 1,014 adults 18 years of

age or older. Survey participants were randomly selected from the

continental United States between November 18 and November 22, 1998.

We did not attempt to estimate the likely demand for the new dollar coin

or potential sales to collectors. We requested comments on a draft of this

report from the Secretary of the Treasury. The Treasury Department’s

comments are discussed near the end of this letter. We conducted our

audit work from November 1998 to January 1999 in accordance with

generally accepted government auditing standards. Appendix I provides

further details about our objectives, scope, and methodology.

The results of the ICR survey indicate that most adults 18 years of age or

older in the continental United States would prefer the Statue of Liberty

rather than Sacagawea to be the image on the face of the new dollar coin.

When asked to choose, an estimated 65 percent said that they preferred

the Statue of Liberty, and 27 percent said that they preferred Sacagawea.

Another 2 percent said either choice was acceptable, about 3 percent said

neither was acceptable, and 3 percent said they had no opinion.

The survey results indicate that most respondents felt very or somewhat

strongly about their choice. Of those who stated a preference for the

Statue of Liberty, about 80 percent said they felt somewhat strongly or

very strongly about their choice. Of those who stated a preference for

Results in Brief
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Sacagawea, about 84 percent said they felt somewhat strongly or very

strongly about their choice.

When asked to explain why they stated a preference for the Statue of

Liberty or Sacagawea, respondents cited reasons that fell into two and

three primary categories, respectively. For survey participants who

preferred the Statue of Liberty, responses fell primarily into the

“symbolism” and “familiarity/recognition” categories, respectively. For

survey participants who chose Sacagawea, responses fell primarily into the

“Native American,” “Different/A change,” and “History” categories.

The new dollar coin, now slated to be issued in the year 2000, will carry the

first new design by the U.S. Mint for a circulating dollar coin since the

Susan B. Anthony dollar coin was issued in 1979. Between 1979 and 1981,

the Mint produced 857 million Susan B. Anthony dollar coins, which were

not widely accepted by the public.

Even though the Susan B. Anthony dollar never achieved a wide

circulation, increased use of the coin, including as a token by some

metropolitan transit authorities and as change by vending machine and

other machine operators, has led to a projected depletion in the stockpile

of Susan B. Anthony dollars. On October 21, 1997, in his testimony

concerning legislation for a new dollar coin before the House

Subcommittee on Domestic and International Monetary Policy, the

Director of the Mint estimated that the Mint’s supply of Susan B. Anthony

dollars would last for about another 2-1/2 years, based on demand for the

coin at the time.

Faced with the prospect of minting additional quantities of a coin that was

not widely accepted by the public, Congress enacted the United States $1

Coin Act of 1997 on December 1, 1997. The act authorizes the U.S. Mint to

develop a new dollar coin with a gold color, a distinctive edge, and visual

and tactile features that would make it easy to identify. The Mint has

announced that the new dollar coin will be similar in size to the Susan B.

Anthony dollar coin. On October 21, 1997, in his testimony concerning

legislation for a new dollar coin before the House Subcommittee on

Domestic and International Monetary Policy, the Assistant to the Board,

System Affairs, Board of Governors of the Federal Reserve System, noted

that existing vending machines would have to be modified at a

considerable cost to the vending machine industry and its customers if a

new dollar coin with significantly different dimensions was put into

circulation.

Background
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While the United States $1 Coin Act of 1997 required a gold color and

distinctive edge for the new dollar coin, it did not call for specific designs

for the coin. Instead, the act authorized the Secretary of the Treasury to

select appropriate designs for the obverse (face) and reverse sides of the

dollar coin, in consultation with Congress.

On May 19, 1998, the Secretary of the Treasury established a Dollar Coin

Design Advisory Committee (DCDAC) to consider alternatives and select a

design concept for the obverse side of the new dollar coin. The DCDAC

was composed of a Vice Chair of the President’s Committee on the Arts

and the Humanities; the President of an architectural firm, who is also a

member of the President’s Committee on the Arts and the Humanities; the

President of the American Numismatic Society; the President of Trinity

College; the Under Secretary of the Smithsonian Institution; the Executive

Director, Business and Professional Women, USA; an artist with

experience in sculpture and drawing; and the Chairman of the House

Subcommittee on Domestic and International Monetary Policy. The

Director of the Mint acted as the (non-voting) chair of the committee.

According to Mint officials, the Committee Charter called for the DCDAC

to use the following parameters in making its recommendation: (1) the

design shall maintain a dignity befitting the nation’s coinage, (2) the design

shall have broad appeal to the citizenry of the nation and shall avoid

subjects or symbols that are likely to offend, (3) the design should not

include any inscriptions beyond those required by statute, and (4) the

design concept shall not depict a living person. In addition, the Secretary

determined that the obverse design should be a representation of one or

more women.

According to Mint officials, during a meeting of the DCDAC on June 8 and

9, 1998, in Philadelphia, the DCDAC heard formal presentations from the

public; received suggestions for designs from the public; reviewed

historical United States coin designs, and developed decision factors for

the design concept that, according to a description of the DCDAC by the

Mint, best represented America and comported with the parameters

established in the DCDAC charter. On June 12, the DCDAC recommended

that the new dollar coin bear a design of Liberty represented by a Native

American woman, inspired by Sacagawea. The DCDAC did not conduct a

public poll to compare public preference for Sacagawea with other design

candidates.

American artists were then invited to submit designs with Sacagawea

depicted on the obverse side and an eagle on the reverse of the new dollar

coin. According to Mint officials, 121 obverse and reverse designs were
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reviewed by Members of Congress, employees of the Mint, artists,

educators, historians, and representatives from Native American

organizations. On December 7, 1998, Mint officials announced six

semifinalist obverse designs and seven semifinalist reverse designs. The

officials then narrowed the field and submitted three finalist designs for

the obverse and four finalist designs for the reverse side of the coin to the

U.S. Commission of Fine Arts on December 17, 1998, for further

consideration. According to Mint officials, the Secretary of the Treasury is

scheduled to select a final design in January 1999.

Mint officials estimated that as of November 30, 1998, the total inventory

of Susan B. Anthony dollars in the U.S. Mint and the Federal Reserve was

approximately 66 million coins. In November 1998, Mint officials said that

the earliest possible date by which they could issue a new dollar coin

would be January 2000. Under the United States $1 Coin Act of 1997, the

Mint could produce more Susan B. Anthony dollars in the interim to avoid

any shortfall in the supply of dollar coins until production of the new

dollar coin begins. Mint officials said that a decision on the minting of

additional Susan B. Anthony dollars is to be made by March 1999.

The ICR survey results indicated that almost two-thirds of adults 18 years

of age or older in the continental United States would prefer the Statue of

Liberty for an image on the face of the new dollar coin. When asked to

choose between Sacagawea and the Statue of Liberty, an estimated 65

percent said that they preferred the Statue of Liberty, and 27 percent said

that they preferred Sacagawea. Another 2 percent said either choice was

acceptable, about 3 percent said neither was acceptable, and 3 percent had

no opinion. (See table 1.)

“There are two choices for the image on the face of the coin: (1) Sacagawea, a

Native American woman who guided the Lewis and Clark expedition, or (2) the

Statue of Liberty. Which of these would you prefer for the image on this new dollar

coin?”

Response Percenta

Statue of Liberty 65

Sacagawea 27

Either is acceptable 2

Neither is acceptable 3

No opinion 3

Note: The interviewers conducting the survey read the following statement prior to reading the survey

questions: “The U.S. Mint is planning to introduce a new coin worth one dollar. It will replace the

Susan B. Anthony dollar coin. The new coin will be golden in color and will have an edge that will

easily distinguish it from the quarter. However, the dollar bill will continue to be produced.”

a

Sampling errors are plus or minus 4 percentage points or less.

Source: November 1998 ICR Survey.

Almost Two-thirds of

Respondents Preferred

the Statue of Liberty

Table 1: Responses to Survey Question

Regarding Preference for an Image on

the Face of the New Dollar Coin.
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The survey also indicated that more adults said they preferred the Statue

of Liberty to Sacagawea regardless of their income, gender, region, or age.

(For results on survey data by demographic group, see appendix II.)

The survey results indicated that most respondents felt very or somewhat

strongly about their choice of either the Statue of Liberty or Sacagawea. Of

those who stated a preference for the Statue of Liberty, an estimated 80

percent1

 said that they felt somewhat strongly or very strongly about their

choice. (See table 2.)

“How strongly do you feel about your selection of the Statue of Liberty to be on the

new dollar coin?”

Response Percenta

Very strongly 47

Somewhat strongly 34

Not strongly 18

Don’t know/No opinion 2

a Percentages do not add to 100 because of rounding. Sampling errors are plus or minus 5 percentage

points or less.

Source: November 1998 ICR Survey.

Of those who stated a preference for Sacagawea, an estimated 84 percent

said they felt somewhat strongly or very strongly about their choice. (See

table 3.)

“How strongly do you feel about your selection of Sacagawea to be on the new

dollar coin?”

Response Percenta

Very strongly 41

Somewhat strongly 43

Not strongly 14

Don’t know/No opinion 2

a

Sampling errors are plus or minus 7 percentage points or less.

Source: November 1998 ICR Survey.

Respondents were asked to briefly explain why they stated a preference

for the Statue of Liberty or Sacagawea. According to the ICR survey

analysis, verbatim responses for the Statue of Liberty and Sacagawea

choices fell into two and three primary categories, respectively.

For survey participants who chose the Statue of Liberty, responses

primarily fell into the “symbolism” and “familiarity/recognition” categories.

Examples of responses under the “symbolism” category were that the

 

1

 Percentage adds to 81 when rounding “Very strongly” and “Somewhat strongly” separately.

At Least 80 Percent of

Respondents Felt Very

or Somewhat Strongly

About Their Choice.

Table 2: Responses to Survey Question

on How Strongly Respondents Preferred

the Statue of Liberty

Table 3: Responses to Survey Question

on How Strongly Respondents Preferred

Sacagawea

Respondents’ Reasons

for Their Preferences
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Statue of Liberty is a symbol for the United States, a symbol of freedom

and independence, and a symbol for liberty and justice. Included in

responses under the “familiarity/recognition” category were statements

that the Statue of Liberty was more recognizable and that more people

identify with the Statue of Liberty. (See table 4.)

“Could you briefly explain why you selected the Statue of Liberty to be on the new

dollar coin?”

Major category/Subcategory Percenta

Symbolism

Symbol for the United States 27

Symbol of freedom/independence 10

Symbol for liberty and justice 6

Represents all Americans 6

Familiarity/Recognition

More recognizable/more people identify with it 13

Not heard of Sacagawea/don’t know who she is 8

More familiar with Statue of Liberty 5

a

Total of all subcategories does not add to 100 percent because subcategories totaling less than 5

percent are not shown.

Source: November 1998 ICR Survey.

For survey participants who chose Sacagawea, responses primarily fell

into the “Native American,” “different/a change,” and “history” categories.

Among the reasons cited under the “Native American” category were that

selecting Sacagawea would recognize or honor Native Americans.

Examples of responses received under the “different/a change” category

were that the Statue of Liberty was an image that is seen too often and that

a Sacagawea image on the dollar coin would be different. Examples of

responses received under the “history” category were that Sacagawea or

Native Americans were here first, that Sacagawea was a part of history,

and that she crossed the country with Lewis and Clark. (See table 5.)

Table 4: Brief Explanation for Selecting

The Statue of Liberty Response

Category
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“Could you briefly explain why you selected Sacagawea to be on the new dollar

coin?”

Major category/Subcategory Percenta

Native American

Recognizes/honors Native Americans 12

I/my family are Indian/Native American 8

Make up for all bad things we did to them 7

She is an Indian/Native American 7

Different/A change

Statue of Liberty is on everything/tired of Statue of Liberty 14

Would be different/a change 10

History

Sacagawea or Native Americans were here first 6

Sacagawea was a part of history 6

Crossed with Lewis and Clark/traveled cross country 5

Subcategories not part of major category

She’s a woman/great woman 7

She should be honored/recognized 5

a

Total of all subcategories does not add to 100 percent because subcategories totaling less than 5

percent are not shown.

Source: November 1998 ICR Survey.

On December 21, 1998, we requested comments on a draft of this report

from the Secretary of the Treasury. We received written comments from

the Assistant Secretary for Management and Chief Financial Officer of the

Department of the Treasury on January 4, 1999, which are reprinted in

appendix III. The Assistant Secretary noted that her comments represent

the views of all offices within the Treasury Department, including the U.S.

Mint.

The Assistant Secretary said that, although the Department did not dispute

the mechanics of the survey conducted for our report, it was concerned

that the narrow scope of the survey was insufficient to justify the proposed

conclusion that the public prefers the Statue of Liberty over Sacagawea.

The Assistant Secretary said that, although the survey methodology used in

our report was well described and the questionnaire did not appear to be

biased, (1) the entire questionnaire used for the telephone survey was not

included in the report; (2) the telephone survey omitted the substantial

number of Americans without telephones, many of whom are ethnic

minorities; and (3) there was no indication that the survey was conducted

in any other language than English. We agree that it is important to include

all questions regarding our survey of public preference for an image on the

new dollar coin in the report, and we have done so. The survey questions

were placed at the top of each table so that the survey question and the

Table 5: Brief Explanation for Selecting

Sacagawea Response Category

Agency Comments
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Page 8 GAO/GGD-99-24 New Dollar Coin

respondent’s answers to the question appeared together. We also

recognize that, in a telephone survey, the small percentage of the

population of the United States without a telephone, some of whom may

be ethnic minorities, are not included. However, we believe that a national

telephone survey was the best way to measure public opinion on a national

level in a short period of time and at a reasonable cost. Furthermore, the

use of a telephone survey, conducted in English, is a survey technique

commonly used to gauge public opinion.

 The Assistant Secretary stated that the Department’s main concern was

that our conclusion that the majority of citizens prefer the Statue of

Liberty was based solely on the telephone survey and that this finding runs

counter to the conclusion of the U.S. Mint, which she said was based on an

extensive public outreach effort. The Assistant Secretary pointed out the

various approaches Treasury used to obtain the public’s views on the

Sacagawea coin, including focus groups, a citizens advisory committee,

consultations with knowledgeable organizations and individuals, and

comments on proposed coin designs received on the Mint’s Web site.

Further, she pointed out that Sacagawea’s selection has dramatically

gained support as the public has become reacquainted with her story,

particularly among those who have seen the proposed designs for the coin.

Although we agree that the various approaches Treasury used to obtain

public input provided helpful information, Treasury provided no evidence

that those approaches, either individually or collectively, provided results

that were generalizable to the adult population of the continental United

States.

The Assistant Secretary also suggested technical changes that we made

where appropriate.

We are sending copies of this report to the Chairman and Ranking Minority

Member of the House Subcommittee, on Domestic and International

Monetary Policy the Chairman and Ranking Minority Member of the

Senate Banking Committee, the Secretary of the Treasury, the Director of
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Page 9 GAO/GGD-99-24 New Dollar Coin

the Mint, and other interested parties. We will also make copies available

to others upon request.

Major contributors to this report are listed in appendix IV. Please contact

me on (202) 512-8387 if you have any questions about this report.

Sincerely yours,

Bernard L. Ungar

Director, Government Business

Operations Issues
Page 10 GAO/GGD-99-24 New Dollar Coin

Contents

1 Letter

Appendix I 12

Objectives, Scope, and

Methodology

Appendix II 14

Demographic

Crosstabulation of

Survey Results

Appendix III 15

Comments From the

Department of the

Treasury

Appendix IV 18

Major Contributors to

This Report

Table 1: Responses to Survey Question Regarding

Preference for an Image on the Face of the New Dollar

Coin.

4

Table 2: Responses to Survey Question on How Strongly

Respondents Preferred the Statue of Liberty

5

Table 3: Responses to Survey Question on How Strongly

Respondents Preferred Sacagawea

5

Table 4: Brief Explanation for Selecting The Statue of

Liberty Response Category

6

Table 5: Brief Explanation for Selecting Sacagawea

Response Category

7

Table II.1: Survey Results by Gender and Age 14

Table II.2: Survey Results by Household Income and

Region

14

Table II.3: Survey Results by Education 14

Tables
Page 11 GAO/GGD-99-24 New Dollar Coin

Contents

Abbreviations

DCDAC Dollar Coin Design Advisory Committee

ICR International Communications Research
Appendix I

Objectives, Scope, and Methodology

Page 12 GAO/GGD-99-24 New Dollar Coin

Our objectives were to determine the public’s preference for the image on

the face of the new dollar coin, how strongly the public felt about their

preference, and reasons for their choice. As agreed with your office, we

limited the choice of images for the face of the new dollar coin to

Sacagawea, the recommendation of the Secretary of the Treasury’s Dollar

Coin Design Advisory Committee, and the Statue of Liberty, which was

suggested as an image for the dollar coin in a previous legislative proposal.

Given the time and cost constraints we faced, we contracted with

International Communications Research (ICR) of Media, Pennsylvania, a

national market research firm, to include our questions regarding the new

dollar coin in one of the national telephone surveys conducted by ICR on a

regular basis.

The survey contained a set of three questions that asked respondents to

state a preference for either Sacagawea or the Statue of Liberty as an

image for the face of the new dollar coin, how strongly they felt about their

preference, and why. The first two questions were closed-ended, with

response options read to the respondents, and the last question was openended, with the respondents asked to briefly explain their choice. We

instructed ICR to rotate the order in which the two possible choices were

read so that half of the respondents were presented with Sacagawea as the

first alternative and half with the Statue of Liberty.

A total of 1,014 adults (18 and older) in the continental United States were

interviewed between November 18 and 22, 1998. The contractor’s survey

was made up of a random-digit-dialing sample of households with

telephones. Once a household was reached, one adult was selected at

random using a computerized procedure based on the birthday of

household members. The survey was conducted over a 5-day period,

including both weekdays and weekends, and up to four attempts were

made to reach each telephone number.

To ensure that survey results could be generalized to the adult population

18 years of age and older in the continental United States, results from the

survey were adjusted by ICR to account for selection probabilities and to

match the characteristics of all adults in the general public according to

demographic groups such as age, gender, region, and education.

Because we surveyed a random sample of the population, the results of the

survey have a measurable precision or sampling error. Sampling errors are

stated at a certain confidence level. The overall results of our survey

regarding the public’s preference for a new dollar coin are surrounded by
Appendix I

Objectives, Scope, and Methodology

Page 13 GAO/GGD-99-24 New Dollar Coin

95 percent confidence levels of plus or minus 4 percentage points or less.

Estimates of how strongly respondents felt about their choices and the

tabulations by demographic groups in appendix II were calculated from

smaller numbers of respondents and are therefore subject to larger

sampling errors.

The practical difficulties of conducting any survey may introduce

nonsampling errors. As in any survey, differences in the wording of

questions, in the sources of information available to respondents, or in the

types of people who do not respond can lead to somewhat different

results. We took steps to minimize nonsampling errors. For example, we

developed our survey questions with the aid of a survey specialist and

pretested the questions prior to submitting them to ICR.

To obtain information about past production of the Susan B. Anthony

dollar coin, we reviewed our prior reports on the dollar coin and

congressional testimony on the $1 Coin Act of 1997. We also reviewed

relevant laws, legislative histories, and proposed legislation to obtain

information about the new dollar coin.

To obtain information about the existing inventory of the Susan B.

Anthony dollar coin and design and production plans for the new dollar

coin authorized by the $1 Coin Act of 1997, we reviewed agency

documents and interviewed officials at the U.S. Mint. We did not verify the

inventory level and depletion rate for the Susan B. Anthony dollar coin.

We did our audit work from November 1998 to January 1999 in accordance

with generally accepted government auditing standards.
Appendix II

Survey Results by Demographic Group

Page 14 GAO/GGD-99-24 New Dollar Coin

Gender Age group

Total Male Female 18-34 35-44 45-54 55-64 65+

Statue of Liberty 65% 65% 65% 71% 63% 54% 73% 66%

Sacagawea 27 27 27 23 33 37 23 20

Either 2 2 3 22303

Neither 3 2 3 21304

No opinion 3 4 3 32247

Note: Percentages may not add to 100 because of rounding. Sampling errors are plus or minus 4

percentage points or less for total results, 5 percentage points or less for results based on gender,

and 12 percentage points or less for results based on age group.

Source: November 1998 ICR Survey.

Household incomeaRegion

Total < 15 15-24.9 25-39.9 40-49.9 50+

North

East

North

Central South West

Statue of Liberty 65% 67% 69% 65% 68% 61% 56% 66% 71% 63%

Sacagawea 27 22 24 30 25 32 38 26 19 31

Either 2 1 3 2 1 2 1 42 1

Neither 3 5 3 1 4 2 5 13 1

No opinion 3 4 2 2 2 3 1 34 5

Note: Percentages may not add to 100 because of rounding. Sampling errors are plus or minus 4

percentage points or less for total results, 13 percentage points or less for results based on household

income, and 8 percentage points or less for results based on region.

a

In thousands of dollars.

Source: November 1998 ICR Survey.

Education

Total High school/Less Some college College/Post

Statue of Liberty 65% 69% 66% 55%

Sacagawea 27 23 26 36

Either 2 213

Neither 3 241

No opinion 3 334

Note: Percentages may not add to 100 because of rounding. Sampling errors are plus or minus 4

percentage points or less for total results and 7 percentage points or less for results based on

education.

Source: November 1998 ICR Survey.

Table II.1: Survey Results by Gender and Age

Table II.2: Survey Results by Household Income and Region

Table II.3: Survey Results by Education
Appendix III

Comments From the Department of the

Treasury

Page 15 GAO/GGD-99-24 New Dollar Coin
Appendix III

Comments From the Department of the Treasury

Page 16 GAO/GGD-99-24 New Dollar Coin
Appendix III

Comments From the Department of the Treasury

Page 17 GAO/GGD-99-24 New Dollar Coin
Appendix IV

Major Contributors to This Report

Page 18 GAO/GGD-99-24 New Dollar Coin

John S. Baldwin, Sr., Assistant Director

Brad Dubbs, Evaluator-in-Charge

Wendy Ahmed, Mathematical Statistician

Clair A. Hoffman, Jr., Manager, Finance and Administration

Stuart Kaufman, Senior Social Science Analyst

Sidney H. Schwartz, Senior Mathematical Statistician

General Government

Division
Page 19 GAO/GGD-99-24 New Dollar Coin
Page 20 GAO/GGD-99-24 New Dollar Coin
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