Secretary, Lawrence M. Small, the Smithsonian Board of Regents reversed course yet again in June 2001 and agreed to support a stand-alone National Museum of African American History and Culture. The Smithsonian asked Congress to establish a federally funded study commission. Congress swiftly agreed, and on December 29, President George W. Bush signed legislation establishing a 23-member commission to study the need for a museum, how to raise the funds to build and support it, and where it should be located. At the signing ceremony, the president expressed his opinion that the museum should be located on the National Mall. The study commission's work took nearly two years, not the anticipated nine months. In November 2002, in anticipation of a positive outcome, the insurance company AFLAC donated $1 million to help build the museum. On April 3, 2003, the study commission released its final report. As expected, the commission said a museum was needed, and recommended an extremely high-level site: A plot of land adjacent to the Capitol Reflecting Pool, bounded by Pennsylvania and Constitution Avenues NW and 1st and 3rd Streets NW. The commission ruled out establishing the museum within the Arts & Industries Building, concluding renovations to the structure would be too costly. It considered a site just west of the National Museum of American History and a site on the southwest Washington waterfront, but rejected both. The commission considered whether the museum should have an independent board of trustees (similar to that of the United States Holocaust Memorial Museum) or a board answerable both to the Smithsonian and independent trustees (similar to that of the National Gallery of Art), but rejected these approaches in favor of a board appointed by and answerable only to the Smithsonian Board of Regents. The commission proposed a 350,000 square-foot museum that would cost $360 million to build. Half the construction funds would come from private money, half from the federal government. Legislation to implement the commission's report was sponsored in the Senate by Sam Brownback and in the house by John Lewis. As Congress considered the legislation, the museum's location became the major sticking point. Various members of the public, Congress, and advocacy groups felt the Capitol Hill site was too prominent and made the National Mall look crowded. Alternative proposed sites included the Liberty Loan Federal Building at 401 14th Street SW and Benjamin Banneker Park at the southern end