79–006 

1 ‘‘About the Memorial.’’ National September 11 Memorial & Museum. Accessed August 27, 

2018. http://www.911memorial.org/about-memorial. 2 ‘‘Year in Review: 2017 at the 9/11 Memorial & Museum.’’ National September 11 Memorial 

& Museum. December 29, 2017. Accessed August 27, 2018. https://www.911memorial.org/blog/ 

year-review-2017–911-memorial-museum. 

115TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 2d Session 115–930 

9/11 MEMORIAL ACT 

SEPTEMBER 10, 2018.—Committed to the Committee of the Whole House on the 

State of the Union and ordered to be printed 

Mr. BISHOP of Utah, from the Committee on Natural Resources, 

submitted the following 

R E P O R T 

[To accompany H.R. 6287] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Natural Resources, to whom was referred the 

bill (H.R. 6287) to provide competitive grants for the operation, security, and maintenance of certain memorials to victims of the terrorist attacks of September 11, 2001, having considered the same, 

report favorably thereon without amendment and recommend that 

the bill do pass. 

PURPOSE OF THE BILL

The purpose of H.R. 6287 is to provide competitive grants for the 

operation, security, and maintenance of certain memorials to victims of the terrorist attacks of September 11, 2001. 

BACKGROUND AND NEED FOR LEGISLATION

The National 9/11 Memorial located in New York City commemorates the attacks of September 11, 2001. The Memorial is the principal tribute of remembrance and honor to the nearly 3,000 people 

killed in the terror attacks at the World Trade Center site as well 

as the six people killed in the World Trade Center bombing in February 1993.1 The 9/11 Memorial plaza opened on September 11, 

2011, the 10th anniversary of the attacks. Since 2011, more than 

37 million people have visited the plaza.2 The Memorial plaza is located on the western side of the former World Trade Center comVerDate Sep 11 2014 00:29 Sep 12, 2018 Jkt 079006 PO 00000 Frm 00001 Fmt 6659 Sfmt 6602 E:\HR\OC\HR930.XXX HR930

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3https://pentagonmemorial.org/plan/faq. 

4https://pentagonmemorial.org/explore/design-elements. 

5https://pentagonmemorial.org/visitor-education-center-0/project-information. 

6https://pentagonmemorial.org/plan/faq. 

7https://www.nps.gov/flni/planyourvisit/placestogo.htm. 

8https://www.nps.gov/flni/planyourvisit/tower-of-voices-dedication.htm. 

9https://www.nps.gov/flni/learn/news/upload/park_partners.pdf. 10http://www.tribdem.com/news/local_news/flight-national-memorial-luring-growing-numberof-visitors/article_925c350a-461c-5a45-bc72-d5d1ab37e735.html. 11https://www.nps.gov/flni/planyourvisit/hours.htm; https://www.nps.gov/flni/planyourvisit/ 

basicinfo.htm. 

plex. The Memorial’s twin reflecting pools, each nearly an acre in 

size, sit within the footprints where the Twin Towers once stood. 

The names of every person who died in the 2001 and 1993 attacks 

are inscribed into bronze panels edging the Memorial pools. Entrance to the Memorial plaza is free and open to the public yearround. 

The National 9/11 Pentagon Memorial is located at the Pentagon 

in Virginia, across the Potomac River from Washington, D.C. This 

2-acre Memorial commemorates the 184 lives lost in the attack on 

the Pentagon—those on American Flight 77 and those in the Pentagon itself.3 Each person is represented by a cantilevered bench 

located over a small reflecting pool of water. The benches are inscribed with the victim’s name, age and location at the time of the 

attack and are arranged by the age of the victim.4 Visitation to the 

site is projected to reach 3.5 million visitors annually, and a nonprofit group is raising funds for a visitor education center.5 Entrance to the Memorial is free and open 365 days a year.6

The third memorial to 9/11 victims is found near Shanksville, 

Pennsylvania, the Flight 93 National Memorial. There the 40 brave 

passengers and crew who perished on United Airlines Flight 93 

while thwarting a likely attack on the Nation’s capital are memorialized at the Memorial Plaza, a white marble Wall of Names, a visitor center and the Flight Pathway Walkway and Overlook.7 On 

September 9, 2018, the Tower of Voices, containing 40 individual 

wind chimes (one for each victim), was dedicated at the site.8 The 

Memorial is operated by the National Park Service with the support of several non-profit support groups, including the Friends of 

Flight 93.9 Even with a more remote location that the other two 

memorials, visitation at the site is growing, with a half million visitors in 2016.10 The Flight 93 National Memorial is open year round 

and admission is free.11

H.R. 6287, authorizes the Secretary of the Interior to award 

grants, through a competitive process, to tax-exempt, nonprofit organizations for the operation and maintenance of memorials located within the United States established to commemorate the 

events of, and honor the victims of, the terrorist attacks on the 

World Trade Center, the Pentagon, and United Airlines Flight 93 

on September 11, 2001, at the site of the attacks. 

The House of Representatives considered a similar bill in the 

114th Congress, H.R. 3036. It passed the House under suspension 

of the rules on February 9, 2016, by a 387–12 vote. 

COMMITTEE ACTION

H.R. 6287 was introduced on June 28, 2018, by Congressman 

Thomas MacArthur (R–NJ). The bill was referred to the Committee 

on Natural Resources. On September 5, 2018, the Natural ReVerDate Sep 11 2014 00:29 Sep 12, 2018 Jkt 079006 PO 00000 Frm 00002 Fmt 6659 Sfmt 6602 E:\HR\OC\HR930.XXX HR930

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sources Committee met to consider the bill. The Subcommittee was 

discharged by unanimous consent. No amendments were offered, 

and the bill was ordered favorably reported to the House of Representatives by unanimous consent. 

COMMITTEE OVERSIGHT FINDINGS AND RECOMMENDATIONS

Regarding clause 2(b)(1) of rule X and clause 3(c)(1) of rule XIII 

of the Rules of the House of Representatives, the Committee on 

Natural Resources’ oversight findings and recommendations are reflected in the body of this report. 

COMPLIANCE WITH HOUSE RULE XIII AND CONGRESSIONAL BUDGET

ACT

1. Cost of Legislation and the Congressional Budget Act. With respect to the requirements of clause 3(c)(2) and (3) of rule XIII of 

the Rules of the House of Representatives and sections 308(a) and 

402 of the Congressional Budget Act of 1974, the Committee has 

received the following estimate for the bill from the Director of the 

Congressional Budget Office: 

U.S. CONGRESS, 

CONGRESSIONAL BUDGET OFFICE, 

Washington, DC, September 10, 2018. 

Hon. ROB BISHOP, 

Chairman, Committee on Natural Resources, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for H.R. 6287, the 9/11 Memorial 

Act. 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Janani Shankaran. 

Sincerely, 

KEITH HALL, 

Director. 

Enclosure. 

H.R. 6287—9/11 Memorial Act 

Summary: H.R. 6287 would authorize the appropriation of $25 

million a year through 2023 for the Department of the Interior 

(DOI) to award grants to non-profit organizations for the operation 

and maintenance of certain memorials to victims of the terrorist attacks on September 11, 2001. CBO estimates that implementing 

the bill would cost $100 million over the 2019–2023 period, assuming appropriation of the authorized amounts. 

Enacting the bill would not affect direct spending or revenues; 

therefore, pay-as-you-go procedures do not apply. 

CBO estimates that enacting H.R. 6287 would not increase net 

direct spending or on-budget deficits in any of the four consecutive 

10-year periods beginning in 2029. 

H.R. 6287 contains no intergovernmental or private-sector mandates as defined in the Unfunded Mandates Reform Act (UMRA). 

Estimated cost to the Federal Government: The estimated budgetary effect of H.R. 6287 is shown in the following table. The costs 


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of the legislation fall within budget function 300 (natural resources 

and environment). 

By fiscal year, in millions of dollars— 

2018 2019 2020 2021 2022 2023 2019– 

2023 

INCREASES IN SPENDING SUBJECT TO APPROPRIATION 

Authorization Level ...................................................... 0 25 25 25 25 25 125 

Estimated Outlays ....................................................... 0 20 20 20 20 20 100 

Basis of estimate: For this estimate, CBO assumes that the legislation will be enacted in 2019 and that the authorized amounts will 

be appropriated each year. 

H.R. 6287 would direct DOI to award grants to non-profit organizations whose missions focus on the operation and preservation of 

memorials that commemorate the events of and honor the victims 

of the terrorist attacks on September 11, 2001, at the sites of the 

attacks. The bill would authorize the appropriation of $25 million 

annually over the 2019–2023 period for those purposes. 

CBO estimates that a limited number of non-profit organizations 

would be eligible to receive grants. Based on the costs to operate 

the covered memorials in recent years, CBO estimates that implementing H.R. 6287 would cost $20 million annually and $100 million over the 2019–2023 period. That amount includes costs for 

DOI to manage the grant applications and awards. 

Pay-As-You-Go considerations: None. 

Increase in long-term direct spending and deficits: CBO estimates that enacting H.R. 6287 would not increase net direct spending or on-budget deficits in any of the four consecutive 10-year periods beginning in 2029. 

Mandates: H.R. 6287 contains no intergovernmental or privatesector mandates as defined in UMRA. 

Estimate prepared by: Federal Costs: Janani Shankaran, Mandates: Zachary Byrum. 

Estimate reviewed by: Kim P. Cawley, Chief, Natural and Physical Resources Cost Estimates Unit; H. Samuel Papenfuss, Deputy 

Assistant Director for Budget Analysis. 

2. General Performance Goals and Objectives. As required by 

clause 3(c)(4) of rule XIII, the general performance goal or objective 

of this bill is to provide competitive grants for the operation, security, and maintenance of certain memorials to victims of the terrorist attacks of September 11, 2001. 

EARMARK STATEMENT

This bill does not contain any Congressional earmarks, limited 

tax benefits, or limited tariff benefits as defined under clause 9(e), 

9(f), and 9(g) of rule XXI of the Rules of the House of Representatives. 

COMPLIANCE WITH PUBLIC LAW 104–4

This bill contains no unfunded mandates. 

COMPLIANCE WITH H. RES. 5

Directed Rule Making. This bill does not contain any directed 

rule makings. 


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Duplication of Existing Programs. This bill does not establish or 

reauthorize a program of the federal government known to be duplicative of another program. Such program was not included in 

any report from the Government Accountability Office to Congress 

pursuant to section 21 of Public Law 111–139 or identified in the 

most recent Catalog of Federal Domestic Assistance published pursuant to the Federal Program Information Act (Public Law 95–220, 

as amended by Public Law 98–169) as relating to other programs. 

PREEMPTION OF STATE, LOCAL OR TRIBAL LAW

This bill is not intended to preempt any State, local or tribal law. 

CHANGES IN EXISTING LAW

If enacted, this bill would make no changes in existing law. 

Æ 


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