Estimated Costs and COVID-19 Protective Measures for 2020 Fourth of July Events (GAO-21-458)
Summary
A GAO report to congressional requesters, GAO-21-458, dated June 2021, on Independence Day celebrations. It reports that federal agencies and state and local jurisdictions combined spent millions of dollars for the estimated costs of 2020 Fourth of July events in Washington, D.C., and at Mount Rushmore. The federal agencies involved included the United States Capitol Police, the Executive Office of the President, and the Departments of the Interior, Defense, Homeland Security, and Health and Human Services. The report also describes the COVID-19 protective measures taken for the events.
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United States Government Accountability Office
Report to Congressional Requesters
INDEPENDENCE
June 2021
DAY CELEBRATIONS
Estimated Costs and
COVID-19 Protective
Measures for 2020
Fourth of July Events
GAO-21-458
June 2021
INDEPENDENCE DAY CELEBRATIONS
Estimated Costs and COVID-19 Protective Measures
for 2020 Fourth of July Events
Highlights of GAO-21-458, a report to
congressional requesters
Why GAO Did This Study What GAO Found
Since July 4, 1776, Americans have Federal agencies and state and local jurisdictions combined spent millions of
celebrated Independence Day through dollars for the estimated costs of 2020 Fourth of July events in Washington, D.C.,
events held in towns and cities across and at Mount Rushmore. The various federal agencies involved in the events
the nation. In the nation’s capital, included the United States Capitol Police; the Executive Office of the President;
Washington, D.C., visitors have and the Departments of the Interior, Defense, Homeland Security, and Health
celebrated on the National Mall with and Human Services. Beyond the federal effort, the District of Columbia
federally sponsored parades, concerts, Government (DC Government), the state of South Dakota, and local law
fireworks, and in 2019 the Salute to enforcement played a role in the events.
America. In 2020, additional federally
sponsored activities were held at the Fourth of July Estimated Costs for Events in 2020
Mount Rushmore National Memorial in Estimated costs
South Dakota. Because of the COVID- Event (dollars)
19 pandemic, federal Fourth of July General event costs a 2,610,164
celebrations in 2020 required A Capitol Fourth Concert 3,888,607
adjustments and precautions in order Independence Day fireworks 2,546,737
to mitigate the spread of COVID-19. Salute to America 1,610,811
GAO was asked to review the Mount Rushmore National Memorial Events 3,917,289
estimated costs associated with the Total 14,573,608
2020 Fourth of July events and Source: GAO analysis of estimated cost data provided by federal agencies and state and local jurisdictions. | GAO-21-458
describe protective measures taken a
General event costs are those that cannot be attributed to a specific event.
because of COVID-19. This report
describes (1) the total estimated costs Costs incurred were associated with contracts, equipment, and federal
that federal agencies and state and personnel, such as costs for overtime pay. Officials GAO interviewed from
local jurisdictions incurred for federal federal agencies and state and local jurisdictions said they did not incur COVID-
2020 Fourth of July events, the 19 mitigation costs for the events because personal protective equipment (PPE)
appropriations used to pay the federal and other related supplies used were from existing stockpiles. Federal agencies
costs, and the extent to which the and the DC Government primarily used annual appropriations to fund the events.
federal government reimbursed costs The National Park Service also used the Centennial Challenge and Federal
incurred by state and local jurisdictions Lands Recreation Enhancement Act appropriation accounts to fund portions of
and (2) the protective measures that the Salute to America and Mount Rushmore events and to cover costs incurred
federal agencies and state jurisdictions as part of the fireworks display. The DC Government used funds from other
took to help ensure the health and
available appropriations to cover the cost of events occurring after the obligation
safety of the public, federal employees,
of its $18 million appropriation for fiscal year 2020 security costs, including the
and other essential workers at the
events. $1.4 million estimated cost of the 2020 Fourth of July events. The United States
Park Police reimbursed state and local jurisdictions outside of Washington, D.C.,
To perform this work, GAO reviewed $35,057 for their costs associated with the events in the District.
documentation and interviewed
personnel from federal agencies and During the 2020 Fourth of July events, Centers for Disease Control and
state and local jurisdictions about their Prevention–issued federal guidelines as well as state and local guidelines that
estimated costs and actions at the South Dakota and Washington, D.C., issued were in effect. These guidelines
events in response to the COVID-19 encouraged event organizers and the public to take a variety of steps to help
pandemic. prevent the spread of COVID-19. Events held on federal property in Washington,
D.C., were to follow federal guidelines that included recommendations for social
distancing of 6 feet, use of cloth face coverings, and frequent handwashing.
South Dakota state guidance was in effect for the events at the Mount Rushmore
View GAO-21-458. For more information, National Memorial. Federal agencies and state and local jurisdictions instructed
contact Kristen Kociolek at (202) 512-2989 or their employees to follow relevant COVID-19 guidance and provided employees
kociolekk@gao.gov. with PPE. In addition, federal and state agencies made PPE, such as masks,
available to the public.
United States Government Accountability Office
Contents
Letter 1
2020 Fourth of July Estimated Costs, Funding Sources, and State
and Local Jurisdiction Reimbursements 4
COVID-19 Guidelines and Protective Measures Taken at the
Fourth of July Events 11
Agency and Third-Party Comments 14
Appendix I Objectives, Scope, and Methodology 16
Appendix II GAO Contact and Staff Acknowledgments 18
Tables
Table 1: Fourth of July Estimated Costs for Events in Washington,
D.C., and at Mount Rushmore, 2016–2020 4
Table 2: Fourth of July General Event Estimated Costs in
Washington, D.C., 2020 5
Table 3: Fourth of July A Capitol Fourth Concert Event Estimated
Costs in Washington, D.C., 2020 6
Table 4: Fourth of July Fireworks Display Event Estimated Costs
in Washington, D.C., 2020 7
Table 5: Fourth of July Salute to America Event Estimated Costs
in Washington, D.C., 2020 8
Table 6: Fourth of July Mount Rushmore National Memorial Event
Estimated Costs, 2020 9
Page i GAO-21-458 Independence Day Celebrations
Abbreviations
CDC Centers for Disease Control and Prevention
COVID-19 Coronavirus Disease 2019
DC Government District of Columbia Government
DOD Department of Defense
HHS Department of Health and Human Services
NPS National Park Service
PPE personal protective equipment
WMATA Washington Metropolitan Area Transit Authority
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Page ii GAO-21-458 Independence Day Celebrations
Letter
441 G St. N.W.
Washington, DC 20548
June 21, 2021
The Honorable Patrick Leahy
Chairman
Committee on Appropriations
United States Senate
The Honorable Chris Van Hollen
Chairman
Subcommittee on Financial Services and General Government
Committee on Appropriations
United States Senate
The Honorable Jeff Merkley
Chairman
Subcommittee on Interior, Environment, and Related Agencies
Committee on Appropriations
United States Senate
The Second Continental Congress formally adopted the Declaration of
Independence on July 4, 1776. Since that day, Americans have
celebrated their country’s birth through various events held in towns and
cities across the country. In the nation’s capital, Washington, D.C.,
visitors have celebrated on the National Mall by attending federally
sponsored events, such as the National Independence Day Parade, A
Capitol Fourth Concert, Independence Day Fireworks Display, and in
2019 the Salute to America.
The 2020 Fourth of July events, however, were modified, in part because
of the Coronavirus Disease 2019 (COVID-19) pandemic. In 2020, while
the Independence Day Fireworks Display and the Salute to America were
held, the National Independence Day Parade was canceled and the
Capitol Fourth Concert was prerecorded, without a live audience, from
various locations across the country. Another change during 2020 was a
celebration and fireworks display in South Dakota. Specifically, on July 3,
2020, the state of South Dakota, in coordination with the National Park
Service (NPS), hosted an Independence Day celebration and fireworks
display at the Mount Rushmore National Memorial. These celebrations
drew visitors to the National Mall and Mount Rushmore to watch events
that the federal government, the state of South Dakota, and private
entities sponsored and produced. The planning, production, and
Page 1 GAO-21-458 Independence Day Celebrations
execution of these events were extensive and involved the expenditure of
federal dollars and use of resources from various federal agencies.
In an effort to better understand the cost of the events, including any
COVID-19 mitigation costs, you asked us to review the impacts and
estimated costs associated with the 2020 Fourth of July events. In
addition, you asked us to describe the protective measures that federal
agencies took to ensure the health and safety of the public, federal
employees, and other essential workers at federal Fourth of July events.
This report describes, for the federal 2020 Fourth of July events in
Washington, D.C., and at Mount Rushmore, (1) the total estimated costs
that federal agencies and state and local jurisdictions incurred for
planning, producing, and executing the events, including COVID-19
mitigation costs; the appropriations that were used to pay the federal
costs; and the extent to which the federal government reimbursed costs
incurred by state and local jurisdictions and (2) the protective measures
that federal agencies and state jurisdictions took to help ensure the health
and safety of the public, federal employees, and other essential workers
at the events because of COVID-19.
To determine the estimated costs and understand the financial, physical,
and human capital assets that agencies devoted to the events, we
obtained and reviewed documentation, such as financial data, contracts,
and relevant agreements, from federal agencies and state and local
jurisdictions. We also interviewed officials from agencies and jurisdictions
that contributed resources to the events. We also interviewed officials to
determine the extent to which the federal government reimbursed costs
that state and local jurisdictions incurred. In addition, to determine the
protective measures that were taken, we interviewed officials from
agencies and jurisdictions that contributed resources to the events and
reviewed relevant guidance and recommendations from the Centers for
Disease Control and Prevention (CDC) and other federal, state, and local
public health authorities related to COVID-19.
The scope of our review of the total costs consisted of estimated costs
that federal agencies and state and local jurisdictions incurred for the
2020 Fourth of July events and the associated appropriation accounts.
Federal agencies included the Departments of Defense, the Interior,
Homeland Security, Health and Human Services, Energy, Transportation,
and Justice; the Executive Office of the President; and the United States
Capitol Police. For the purpose of this audit, we define “estimated costs”
as the costs that agencies estimated to have been directly traceable to
Page 2 GAO-21-458 Independence Day Celebrations
the planning, production, and execution of the Fourth of July events in
Washington, D.C., and at Mount Rushmore for 2020.
We excluded costs that were not directly traceable to the planning,
production, and execution of the specific Fourth of July events in
Washington, D.C., and at Mount Rushmore. We also excluded costs that
would have been incurred regardless of whether the events took place.
For example, salary costs for civilian federal employees and military
personnel who performed duties during the events were not included
because those costs would have been incurred regardless of the events
on the Fourth of July. Also, because aircraft used for the events were
existing Department of Defense (DOD) assets, we excluded the costs to
operate and maintain the aircraft. In addition, according to DOD, the flying
hours associated with the event were used to meet annual pilot training
requirements. The value of donations from private entities is not included
in our cost estimates. Cost estimates are attributable to each agency that
provided them. We did not independently verify the data during this audit,
and all costs included in this report are estimates. For the purpose of this
audit, the COVID-19 mitigation costs and protective measures that federal
agencies took are attributable to each agency; we did not assess the
implementation of these measures. Appendix I describes our scope and
methodology in more detail.
We conducted this performance audit from July 2020 to June 2021 in
accordance with generally accepted government auditing standards.
Those standards require that we plan and perform the audit to obtain
sufficient, appropriate evidence to provide a reasonable basis for our
findings and conclusions based on our audit objectives. We believe that
the evidence obtained provides a reasonable basis for our findings and
conclusions based on our audit objectives.
Page 3 GAO-21-458 Independence Day Celebrations
2020 Fourth of July
Estimated Costs,
Funding Sources, and
State and Local
Jurisdiction
Reimbursements
2020 Fourth of July Events According to the estimates we obtained, federal agencies and state and
in Washington, D.C., and local jurisdictions combined spent millions of dollars for the 2020 Fourth
of July events in Washington, D.C., and at Mount Rushmore. Agencies
the Mount Rushmore
and jurisdictions did not track all costs separately for each of the Fourth of
National Memorial Costs July events. Therefore, we grouped estimated costs into six categories,
Estimated at Millions of which include general event costs, as well as costs for each of the
Dollars specific events held in Washington, D.C., and at Mount Rushmore.
Officials we interviewed from federal agencies and state and local
jurisdictions said they did not incur COVID-19 mitigation costs for the
events because personal protective equipment (PPE) and other related
supplies used were from existing stockpiles. Table 1 summarizes the
2020 event costs, and includes 2016 through 2019 event costs for
comparison. 1
Table 1: Fourth of July Estimated Costs for Events in Washington, D.C., and at Mount Rushmore, 2016–2020
In dollars
General event Capitol Salute to Mount
Year costsa Paradeb Concert Fireworks America Rushmore Total
2020 2,610,164 0 3,888,607 2,546,737c 1,610,811d 3,917,289e 14,573,608
2019 3,995,492 0 4,612,249 408,599 4,265,869d n/a 13,282,209
2018 2,335,254 0 3,968,350 294,604 n/a n/a 6,598,208
2017 2,253,306 0 3,941,304 278,718 n/a n/a 6,473,328
2016 2,378,983 0 4,079,088 252,896 n/a n/a 6,710,967
Legend: n/a = not applicable.
Source: GAO analysis of estimated cost data provided by federal agencies and state and local jurisdictions. | GAO-21-458.
a
General event costs are attributable to more than one specific event or costs from agencies that did
not track costs by event.
1GAO, Independence Day Celebrations: Estimated Costs for Fourth of July Events on the
National Mall for 2016 through 2019, GAO-20-470 (Washington, D.C.; June 17, 2020).
Page 4 GAO-21-458 Independence Day Celebrations
b
There are typically no costs to the government because a private entity produced the parade and
managed its participants and associated costs during 2016 through 2019, which was funded through
nonfederal sponsors and the event was canceled in 2020.
c
The 2020 increase in the cost of fireworks displays in Washington, D.C., was due in part to the
National Park Service costs for event security, screening, and other logistical costs. In prior years,
those costs were categorized in the general event cost section, but because the parade was canceled
and the concert was virtual, those costs were only related to the fireworks in 2020.
d
The Salute to America event only occurred in 2019 and 2020. It did not take place in years 2016
through 2018.
e
The Mount Rushmore National Memorial event on July 3, 2020, did not occur in years 2016 through
2019.
In addition to costs that could be directly attributed to Fourth of July
events in Washington, D.C., and at Mount Rushmore, there were costs
associated with federal personnel and assets that we did not capture as
event costs because they would have been incurred regardless of
whether the Fourth of July events had occurred. For example, regular
salaries of federal civilian, military, and law enforcement personnel who
worked during the events were not included in cost estimates because
those salaried personnel would have been paid even if the Fourth of July
events did not occur.
General Event Costs We categorized costs that could not be attributed to a specific event, and
costs incurred by agencies that did not track costs by event, as general
event costs. According to documents we reviewed and interviews with
officials, more than $2.6 million was spent on general event costs in 2020.
Table 2 contains general event estimated costs by federal agency and
local jurisdiction.
Table 2: Fourth of July General Event Estimated Costs in Washington, D.C., 2020
In dollars
Entity Amount
District of Columbia Government 1,376,320
Department of Health and Human Services 1,214,011
Department of Justice – Federal Bureau of Investigation 18,789
Department of Homeland Security – Federal Emergency Management Agency 1,044
Total 2,610,164
Source: GAO analysis of estimated cost data provided by federal agencies and state and local jurisdictions. | GAO-21-458.
General event costs consisted of costs related to the events in
Washington, D.C. The District of Columbia Government (DC
Government) costs supported security and traffic control, fire and
emergency support services, trash collection and city sanitization, vendor
Page 5 GAO-21-458 Independence Day Celebrations
licensing, and a command-and-control center in collaboration with the
United States Park Police. The Department of Health and Human
Services (HHS) incurred personnel and supply costs for medical aid
stations for participants and attendees and veterinarian medical care for
service animals working that day. The Federal Bureau of Investigation
and Federal Emergency Management Agency incurred costs for holiday
pay and compensatory time.
National Independence Day Because of COVID-19, the National Independence Day Parade was
Parade canceled in 2020. As a result, no federal agency, state, or local
jurisdiction incurred costs for the parade.
A Capitol Fourth Concert According to documents we reviewed and agency officials we
interviewed, the 2020 Capitol Fourth Concert cost the federal government
an estimated $3.9 million (see table 3). The costs are primarily for the
contractor that planned and executed the concert. Normally the concert
takes place on the grounds of the Capitol. However, because of COVID-
19, in 2020 the concert was prerecorded in June on the west front area of
the Capitol and involved lighting and camera vehicles. The public was not
allowed to attend the prerecording. On the night of July 4, the event was
broadcast along with historical footage, and there were no performers
present. NPS provided funding to a private contractor that produced the
virtual concert through a cooperative agreement. NPS provided minimal
operational support to the private contractor but was responsible for
funding the concert from its annual appropriations. The Army transferred
$3.2 million from its annual appropriations for fiscal year 2020 to NPS to
support the Capitol Fourth Concert.
Table 3: Fourth of July A Capitol Fourth Concert Event Estimated Costs in
Washington, D.C., 2020
In dollars
Entity Amount
Department of the Interior – National Park Servicea 3,888,256
United States Capitol Police 351
Total 3,888,607
Source: GAO analysis of estimated cost data provided by federal agencies. | GAO-21-458.
a
The Army transferred $3.2 million from its annual appropriations for fiscal year 2020 to the National
Park Service to support the Capitol Fourth Concert.
The United States Capitol Police is the primary law enforcement agency
responsible for security on the Capitol grounds. According to agency
Page 6 GAO-21-458 Independence Day Celebrations
officials, the Capitol Police estimated that it incurred a small amount of
overtime costs while filming the concert in June 2020 and for securing a
lighting truck on the night of July 4 that would not have been incurred had
the concert filming not taken place.
Independence Day Fireworks The Independence Day Fireworks Display event estimated costs totaled
Display about $2.6 million (see table 4). NPS contracted with an entity that
produced and executed the fireworks event. Another private entity
donated additional fireworks, including associated logistical and
personnel support. In addition to the contract costs, NPS provided safety
officers who were on-site throughout the event and coordinated with both
private entities. The Park Police, in conjunction with NPS and other state
and local law enforcement, provided access control, emergency
response, and general law enforcement support services. Further, the
Washington Metropolitan Area Transit Authority (WMATA) incurred costs
for extended service levels on July 4, 2020, primarily to accommodate the
fireworks display on the National Mall. WMATA service was generally
adjusted and reduced during July 2020, ending at 9:00 p.m. EST daily,
because of COVID-19. However, on July 4, 2020, WMATA extended
service to end at approximately 11:45 p.m. EST at designated stations
near the National Mall. Finally, the United States Coast Guard incurred
personnel travel costs in support of the event.
Table 4: Fourth of July Fireworks Display Event Estimated Costs in Washington,
D.C., 2020
In dollars
Entity Amount
Department of the Interior – National Park Service 2,310,889
Washington Metropolitan Area Transit Authority 220,000
Department of Homeland Security – United States Coast Guard 15,848
Total 2,546,737
Source: GAO analysis of estimated cost data provided by federal agencies and state and local jurisdictions. | GAO-21-458.
We did not include costs associated with Coast Guard personnel and
boats that patrolled a security perimeter around the fireworks event area.
The Coast Guard stated that these boats and personnel would have been
operating on July 4 regardless of whether the fireworks event occurred.
Salute to America The Salute to America Event estimated costs totaled about $1.6 million
and primarily related to the Executive Office of the President’s production
of the event (see table 5). The United States Secret Service also was
Page 7 GAO-21-458 Independence Day Celebrations
involved with the Salute to America event on the south grounds of the
White House because the President, First Lady, Vice President, and other
government officials attended. In order to prepare for and execute
security for the event, the Secret Service used numerous special agents
and incurred overtime and holiday pay. The Secret Service also incurred
costs for items including antiscale fencing; concrete barriers; project
management (including travel); and support items, such as trucks and
forklifts. In addition, the DOD cost estimates include procurement of
equipment and supplies and overtime and holiday pay for a number of
DOD civilian and military personnel. Finally, the Federal Aviation
Administration incurred costs for overtime pay for air traffic controllers
routing aircraft during the flyovers.
Table 5: Fourth of July Salute to America Event Estimated Costs in Washington,
D.C., 2020
In dollars
Entity Amount
Executive Office of the President 1,022,337a
Department of Homeland Security 478,645
United States Coast Guard 9,863
United States Secret Service 468,782
Department of Defense 104,716
Department of the Air Force 3,925
Department of the Army 62,595
Department of the Navy and United States Marine Corps 38,196
Department of Transportation – Federal Aviation Administration 5,113
Total 1,610,811
Source: GAO analysis of estimated cost data provided by federal agencies. | GAO-21-458.
a
The Executive Office of the President was reimbursed $763,477 of its $1,022,337 estimated cost.
A private foundation provided the flyovers of vintage military aircraft
during the Salute to America event, so there were no costs to the
government. In addition, DOD and the Coast Guard provided military
flyovers at the event, the costs of which—such as crew salaries, fuel, and
asset depreciation—they did not consider attributable to the event. DOD
and the Coast Guard stated that flying hours associated with the event
were used to satisfy annual training requirements for their pilots and crew.
However, some travel costs, such as lodging and food, were incurred for
pilots and crew, which we included in the estimated costs above.
Page 8 GAO-21-458 Independence Day Celebrations
Mount Rushmore National The Mount Rushmore event estimated costs totaled about $3.9 million
Memorial (see table 6). The costs incurred by the Executive Office of the President,
the majority of which were reimbursed with NPS funds, were associated
with logistics, planning, travel, temporary facility enhancement, food
services, and visitor services related to the presidential visit. The state of
South Dakota obtained special use permits from NPS to host the event
and incurred personnel costs for traffic control, event planning, highway
patrol, and travel. It also entered into several contracts for the fireworks,
audio visual services, local fire and emergency medical services, and bus
and shuttle services to transport attendees to and from designated
parking areas. Included in the state of South Dakota’s estimated costs is
a reimbursement to NPS for $470,000 of its costs. NPS incurred costs for
assisting the state of South Dakota, the White House Advance team, and
a private contractor in the logistics, planning, and execution of this event.
Table 6: Fourth of July Mount Rushmore National Memorial Event Estimated Costs,
2020
In dollars
Entity Amount
Executive Office of the President 2,372,443a
State of South Dakota 1,120,315
Department of the Interior – National Park Service 321,293
Department of Defense 93,269
Department of the Navy and United States Marine Corps 55,000
United States National Guard 38,269
Department of Homeland Security – United States Secret Service 5,980
Department of Transportation – Federal Aviation Administration 3,989
Total 3,917,289
Source: GAO analysis of estimated cost data provided by federal agencies and state and local jurisdictions. | GAO-21-458.
a
The Executive Office of the President was reimbursed $2,200,000 of its $2,372,443 estimated cost.
While DOD provided military flyovers during the Mount Rushmore event,
most of the costs associated with the flyovers, such as crew salaries, fuel,
and asset depreciation, according to DOD, were not attributable to the
event. DOD stated flying hours associated with the event were used to
satisfy annual training requirements for their pilots and crew. However,
some travel costs were incurred for pilots and an operation and
maintenance team, which we included in the cost estimates above. The
Secret Service incurred estimated costs for reimbursing DOD travel costs
and providing fencing at the event to protect the President. The Federal
Page 9 GAO-21-458 Independence Day Celebrations
Aviation Administration incurred costs for overtime pay for air traffic
controllers routing aircraft during the flyovers. Finally, NPS received a
donation from a private entity for performers at the event.
Funding Sources and We found that the majority of the federal agencies, including the Capitol
Reimbursements to State Police, Department of Homeland Security, DOD, NPS, Department of
Justice, Department of Transportation, and Executive Office of the
and Local Jurisdictions
President funded costs for the 2020 Fourth of July events in Washington,
D.C., and at Mount Rushmore with annual appropriations. However, NPS
used other funding sources, which are detailed below.
In addition to annual appropriation funds from the Operation of the
National Park System account, NPS used the Centennial Challenge 2 and
Federal Lands Recreation Enhancement Act 3 appropriation accounts to
cover costs. 4 For the Salute to America event, the Capitol Fourth Concert,
and the Mount Rushmore events, NPS used annual appropriation funds
from the Operation of the National Park System account. For the Salute
to America and the Mount Rushmore events, NPS also used Federal
Lands Recreation Enhancement Act funds for Reimbursable Agreements
with the Executive Office of the President to provide financial support for
official costs associated with the temporary facility enhancement and
visitor services on the south lawn of the White House. The funds were
also used to provide financial support for costs associated with travel,
temporary facility enhancement, and visitor services related to the
presidential visit to Mount Rushmore. NPS also used the Centennial
Challenge appropriation account to pay for certain costs incurred for the
fireworks display. The Department of the Army entered into an agreement
with NPS and transferred funds from its annual appropriations for fiscal
year 2020 to NPS to support the Capitol Fourth and Memorial Day
concerts, of which $3.2 million was used for the Capitol Fourth Concert.
The DC Government received an appropriation of $18 million for fiscal
year 2020 from the federal government for emergency planning and
security costs in the District of Columbia, which remains available until
2Pub. L. No. 116-94, div. D, 133 Stat. 2534, 2694 (Dec. 20, 2019); 54 U.S.C. § 101701.
316 U.S.C. § 6806.
4We reported on a similar use of Federal Lands Recreation Enhancement Act fees in
Independence Day Celebrations: Estimated Costs for Fourth of July Events on the
National Mall for 2016 through 2019, GAO-20-470 (Washington, D.C.; June 17, 2020),
and are currently considering whether the use of the funds was proper as a matter of
appropriations law.
Page 10 GAO-21-458 Independence Day Celebrations
expended. The appropriation is for the costs of providing public safety at
events related to the presence of the national capital in the District.
According to DC Government officials, they obligated the entire amount
appropriated in fiscal year 2020 for various events. The DC Government
used funds from other available appropriations to cover the cost of events
occurring after the obligation of all of the funds for emergency planning
and security costs, including the $1.4 million estimated cost of the 2020
Fourth of July events. Finally, the Park Police reimbursed state and local
jurisdictions outside the District estimated costs of $35,057 for assistance
with the Washington, D.C., events for 2020.
On January 31, 2020, the Secretary of Health and Human Services
COVID-19 Guidelines declared a state of public health emergency in response to COVID-19. On
and Protective March 11, 2020, the World Health Organization declared COVID-19 a
pandemic, and on March 13, 2020, the President proclaimed that COVID-
Measures Taken at 19 constituted a national emergency. As a result, various federal, state,
the Fourth of July and local entities issued COVID-19 guidelines to help prevent the spread
of the virus, including at events and gatherings. Officials we interviewed
Events said they implemented various protective measures—such as providing
masks and other PPE—to help ensure the health and safety of the public,
federal employees, and other essential workers at the federally
sponsored Fourth of July events.
Federal Guidelines The CDC issued guidance for events and gatherings that was in effect
during the Fourth of July events in Washington, D.C., and at Mount
Rushmore. The guidance was designed to enhance the protection of
individuals and communities and aid in preventing the spread of COVID-
19. The CDC provided the guidance as supplementary guidelines meant
to enhance, and not replace, any state or local health and safety laws,
regulations, and rules.
The CDC defined gatherings as planned or spontaneous events, indoors
or outdoors, with a small or large number of people in attendance, such
as a community event or gathering, concert, festival, conference, parade,
wedding, or sporting event. In order to reduce the spread of COVID-19 for
highest-risk events, the CDC advised event planners to (1) advise those
who have COVID-19 or have been in contact with someone with COVID-
19 to stay home; (2) ensure that there are accessible sinks and enough
supplies for people to clean their hands and cover their coughs and
sneezes; (3) require employees and encourage attendees to use cloth
face coverings; (4) modify layouts and provide guides, such as tape or
signs, to ensure that individuals remain at least 6 feet apart; (5) broadcast
regular announcements on preventing the spread of COVID-19; and (6)
Page 11 GAO-21-458 Independence Day Celebrations
post signs in highly visible locations (e.g., at entrances and in restrooms)
that promote everyday protective measures, such as handwashing and
using proper cloth face coverings. 5
State and Local In response to COVID-19, the Governor of South Dakota issued a series
Guidelines of executive orders, beginning March 13, 2020, declaring a state of
emergency in the state. Executive Order 2020-20, issued on April 28,
2020, initiated South Dakota’s “Back to Normal Plan,” rescinding previous
orders and detailing the expectations for individuals, businesses, schools,
health care providers, and local governments to return to normal business
and social interactions, including practicing good hygiene, staying home
when sick, practicing physical distancing, and taking extra care if a
vulnerable individual.
The Mayor of Washington, D.C., issued Mayor’s Order 2020-045 on
March 11, 2020, declaring a public health emergency because of COVID-
19 in Washington, D.C. Effective May 29, 2020, Mayor’s Order 2020-067
provided a four-phase approach to reopening businesses, government
activities, and other operations. Effective June 22, 2020, Mayor’s Order
2020-075 implemented phase two of the Mayor’s reopening approach
and continued during the Fourth of July events in Washington, D.C.
However, the Mayor’s orders are not applicable to gatherings on property
within the District of Columbia owned by the federal government.
Therefore, all federal events held on federal property in the District of
Columbia, including the Independence Day Fireworks Display, Capitol
Fourth Concert, and Salute to America, were not governed by restrictions
put in place by the Mayor.
Protective Measures According to documentation we reviewed and officials we interviewed,
Taken in Washington, D.C. Capitol Police personnel took several protective measures during the
production of the Capitol Fourth Concert to mitigate COVID-19 risks. The
Capitol Police business board issued the permit for the prerecorded
Capitol Fourth Concert event on the Capitol grounds in June. This permit
included COVID-19 restrictions, taking into consideration the local and
federal guidelines in place at the time. Specifically, the permit limited the
event to no more than nine participants, required adherence to CDC
guidelines, and required sanitization of all equipment. Capitol Police
personnel involved in the prerecording event and security on the Fourth of
5The CDC defined highest risk events as large in-person gatherings where it is difficult for
individuals to remain spaced at least 6 feet apart and with attendees coming from outside
the local area.
Page 12 GAO-21-458 Independence Day Celebrations
July were provided with and required to use PPE and encouraged to
remain socially distanced.
Numerous protective measures were taken to mitigate the spread of
COVID-19 at the Independence Day Fireworks Display on the National
Mall. Specifically, NPS devised and implemented mitigation strategies to
help ensure the safety and health of the public, federal employees, and
other essential workers at the event. These included (1) encouraging
visitors to wear masks and follow CDC COVID-19 guidelines, placing
signs at all entry points, medical aid stations, and portable toilet banks 20
feet apart from each other; (2) making masks available to the public, law
enforcement, and medical staff; (3) providing 114 handwashing stations;
and (4) disseminating pre-event communications that discouraged those
who were sick from attending.
Multiple other protective measures were taken. For example, restrooms
were stocked with hand sanitizer and were sanitized throughout the day.
Concessionaries were directed to follow the CDC guidelines. A separate
screening area was established outside each medical aid station and
fenced with 6 feet between the fence and the tent to encourage social
distancing. A portion of each station was screened off and designated as
a treatment area for any patient who screened positive for COVID-19
symptoms and was disinfected after each patient discharge. Each station
was supported with a team leader from HHS to maintain adherence to
COVID-19 precautions. HHS also deployed multiple safety officers at the
event to address any concerns and encourage adherence to strict
COVID-19 precautions by medical responders. All HHS personnel were
screened for COVID-19 symptoms, provided with and required to use
PPE, and instructed to take necessary precautions. According to officials
we interviewed, personnel were provided with PPE and recommended to
socially distance and received screening for COVID-19 symptoms before
entering on duty.
The Salute to America event included several COVID-19 precautions.
Specifically, attendee arrival times at the Salute to America event on the
south lawn of the White House were staggered in order to facilitate social
distancing. In addition, markings delineating distancing were placed in all
areas where guests queued, including entrances, beverage stations, and
restrooms. Signs were placed throughout the event encouraging social
distancing, handwashing, and the wearing of face coverings. Attendees
were seated at tables with 50 percent capacity and spaced apart.
According to officials we interviewed, personnel were required to wear
Page 13 GAO-21-458 Independence Day Celebrations
face coverings and maintain social distance where appropriate and were
screened for COVID-19 symptoms.
Protective Measures As outlined in the project agreement, the state of South Dakota,
Taken at the Mount Department of the Interior, and NPS were responsible for the protective
measures taken to help ensure the health and safety of the public, federal
Rushmore National
employees, and other essential workers at Mount Rushmore on July 3,
Memorial 2020. According to the agreement, all parties were responsible for
directing COVID-19 protective measures for the event to ensure
adherence to all CDC guidelines.
Prior to the event, the state of South Dakota included information on the
event’s Frequently Asked Questions page of its website asking
participants to follow CDC guidelines. During the event, NPS provided
PPE to event staff, developed signage that was distributed throughout the
event, and encouraged attendees to remain socially distanced and wear
masks. However, social distancing and mask wearing were not
requirements. The National Guard participants were required to wear
masks and gloves, and the President’s security and those who would
meet or be in proximity to the President were screened for COVID-19
symptoms by state of South Dakota officials at the event.
We provided a draft of this report to the Executive Office of the President,
Agency and Third- DOD, Department of the Interior, Department of Homeland Security,
Party Comments Department of Energy, Capitol Police, DC Government, HHS, WMATA,
DOT, state of South Dakota, and Department of Justice for review and
comment. The Executive Office of the President, Department of the
Interior, DC Government, and Department of Justice provided technical
comments, which we incorporated as appropriate. DOD, Department of
Homeland Security, Capitol Police, Department of Energy, HHS, DOT,
WMATA, and state of South Dakota told us that they had no comments
on the draft report.
We are sending copies of this report to the appropriate congressional
committees, the Executive Office of the President, the Secretary of the
Interior, the Acting Secretary of Homeland Security, the Secretary of
Defense, the Secretary of Health and Human Services, and other
interested parties. In addition, the report is available at no charge on the
GAO website at https://www.gao.gov.
If you or your staff have any questions about this report, please contact
me at (202) 512-2989 or kociolekk@gao.gov. Contact points for our
Offices of Congressional Relations and Public Affairs may be found on
Page 14 GAO-21-458 Independence Day Celebrations
the last page of this report. GAO staff who made key contributions to this
report are listed in appendix II.
Kristen Kociolek
Director
Financial Management and Assurance
Page 15 GAO-21-458 Independence Day Celebrations
Appendix I: Objectives, Scope, and
Appendix I: Objectives, Scope, and
Methodology
Methodology
Our objectives were to describe for the federal 2020 Fourth of July events
in Washington, D.C., and at the Mount Rushmore National Memorial (1)
the total estimated costs that federal agencies and state and local
jurisdictions incurred for planning, producing, and executing the events,
including Coronavirus Disease 2019 (COVID-19) mitigation costs; the
appropriations that were used to pay the federal costs; and the extent to
which the federal government reimbursed costs incurred by state and
local jurisdictions and (2) the protective measures that federal agencies
and state jurisdictions took to help ensure the health and safety of the
public, federal employees, and other essential workers at the events.
To accomplish these objectives, we obtained and reviewed
documentation, such as financial data, contracts, and relevant
agreements, from federal agencies and state and local jurisdictions. We
also interviewed officials from agencies and jurisdictions that contributed
resources to the events. Federal agencies and state and local
jurisdictions we contacted were the Executive Office of the President,
Department of Defense (DOD), Department of the Interior, Department of
Homeland Security, United States Capitol Police, Department of Energy, 1
Department of Health and Human Services, Department of
Transportation, Department of Justice, Washington Metropolitan Area
Transit Authority, District of Columbia Government, and the state of South
Dakota. We also interviewed officials to determine the extent to which the
federal government reimbursed costs incurred by state and local
jurisdictions. In addition, we reviewed cost documents and other agency
records to understand the assets, including financial, physical, and
human capital that each agency devoted to the events. We interviewed
officials about estimated costs, any reimbursed costs, and any COVID-19
mitigation costs.
In addition, we reviewed relevant COVID-19 guidance and
recommendations issued by the Centers for Disease Control and
Prevention and other federal, state, and local public health authorities that
were in place during the 2020 events. We also interviewed officials and
documented the protective measures that, according to officials, federal
agencies took because of COVID-19 to help ensure the health and safety
of the public, federal employees, and other essential workers at the
Fourth of July events. The COVID-19 prevention measures taken for the
1Department of Energy officials stated that the agency did not incur costs directly related
to their involvement with the 2020 Fourth of July events.
Page 16 GAO-21-458 Independence Day Celebrations
Appendix I: Objectives, Scope, and
Methodology
events are based on discussions with federal and state and local officials.
We did not assess the implementation of these measures.
The scope of our review of the total costs consisted of estimated costs
that federal agencies and state and local jurisdictions incurred for the
events and the associated appropriation accounts. For the purpose of this
audit, we define “estimated costs” as the costs that agencies estimated to
have been directly traceable to planning, producing, and executing the
2020 Fourth of July events in Washington, D.C., and at the Mount
Rushmore National Memorial. For example, we included personnel
overtime and holiday pay expenses for federal employees associated with
the events in the estimated costs. The costs also included contracts that
various federal agencies awarded to private entities that were specifically
attributable to the events.
We excluded costs that were not directly traceable to planning, producing,
and executing the specific Fourth of July events in Washington, D.C., and
at the Mount Rushmore National Memorial and that would have been
incurred regardless of whether the events took place. For example, salary
costs for civilian federal employees and military personnel who performed
duties during the events were not included. Also, we excluded the costs
to operate and maintain DOD aircraft that were used in the events
because the aircraft were existing DOD assets. In addition, according to
DOD, the flying hours associated with the event were used to meet
annual pilot training requirements. Further, we excluded the cost
associated with private entity donations. Cost estimates are attributable to
each agency that provided them. We did not independently verify the
estimated cost data provided during this audit.
We conducted this performance audit from July 2020 to June 2021 in
accordance with generally accepted government auditing standards.
Those standards require that we plan and perform the audit to obtain
sufficient, appropriate evidence to provide a reasonable basis for our
findings and conclusions based on our audit objectives. We believe that
the evidence obtained provides a reasonable basis for our findings and
conclusions based on our audit objectives.
Page 17 GAO-21-458 Independence Day Celebrations
Appendix II: GAO Contact and Staff
Appendix II: GAO Contact and Staff
Acknowledgments
Acknowledgments
Kristen Kociolek, (202) 512-2989 or kociolekk@gao.gov
GAO Contact
In addition to the contact named above, Jonathan Meyer (Assistant
Staff Director), Kevin Scott (Auditor in Charge), and John Ledford made major
Acknowledgments contributions to this report. Other key contributors include Carl Barden,
Marcia Carlsen, Angela Clowers, Elizabeth Erdmann, Pat Frey, Richard
Geiger, Gretta Goodwin, Maxine Hattery, William Hong, Jason Kirwan,
and Lisa Motley.
(104443)
Page 18 GAO-21-458 Independence Day Celebrations
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