[Analytical Perspectives]
[Federal Receipts and Collections]
[18. User Charges and Other Collections]
[From the U.S. Government Printing Office, www.gpo.gov]
[[Page 271]]
18. USER CHARGES AND OTHER COLLECTIONS
In addition to collecting taxes and other receipts by the exercise of
its sovereign powers, which is discussed in the previous chapter, the
Federal Government collects income from the public from market-oriented
activities and the financing of regulatory expenses. These collections
are classified as user charges, and they include the sale of postage
stamps and electricity, charges for admittance to national parks,
premiums for deposit insurance, and proceeds from the sale of assets,
such as rents and royalties for the right to extract oil from the Outer
Continental Shelf.
Depending on the laws that authorize the user charges, most are
credited to expenditure accounts as ``offsetting collections,'' or to
receipt accounts as ``offsetting receipts.'' The budget refers to these
amounts as ``offsetting'' because they are subtracted from gross outlays
rather than added to taxes on the receipts side of the budget. The
purpose of this treatment is to produce budget totals for receipts,
outlays, and budget authority in terms of the amount of resources
allocated governmentally, through collective political choice, rather
than through the market. \1\ In addition, some regulatory fees therefore
are classified as governmental receipts and are on the receipts side of
the budget.
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\1\ Showing collections from business-type transactions as offsets on
the spending side of the budget follows the concept recommended by the
Report of the President's Commission on Budget Concepts in 1967. The
concept is discussed in Chapter 26: ``The Budget System and Concepts''
in this volume.
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Usually offsetting collections are authorized to be spent for the
purposes of the account without further action by the Congress.
Offsetting receipts may or may not be earmarked for a specific purpose,
depending on the legislation that authorizes them. When earmarked, the
authorizing legislation may either authorize them to be spent without
further action by the Congress, or require them to be appropriated in
annual appropriations acts before they can be spent.
Offsetting collections and receipts include most user charges, which
are discussed below, as well as some amounts that are not user charges.
Table 18-1 summarizes these transactions. For 2008, total offsetting
collections and receipts from the public are estimated to be $319.3
billion, and total user charges are estimated to be $244.6 billion.
The following section discusses user charges and the Administration's
user charge proposals. The subsequent section displays more information
on offsetting collections and receipts. The offsetting collections and
receipts by agency are displayed in Table 21-1, which appears in Chapter
21, ``Outlays to the Public, Gross and Net,'' of this volume.
Collections specifically related to credit programs are discussed in
Chapter 7, ``Credit and Insurance.''
Table 18-1. GROSS OUTLAYS, USER CHARGES, OTHER OFFSETTING COLLECTIONS AND RECEIPTS FROM THE PUBLIC, AND NET
OUTLAYS
(In billions)
----------------------------------------------------------------------------------------------------------------
Estimate
Actual -----------------------
2006 2007 2008
----------------------------------------------------------------------------------------------------------------
Gross outlays............................................................... 2,935.5 3,100.3 3,221.1
Offsetting collections and receipts from the public:
User charges \1\.......................................................... -197.8 -226.8 -241.2
Other..................................................................... -82.2 -89.2 -78.1
-----------------------------------
Subtotal, offsetting collections and receipts from the public........... -280.1 -316.0 -319.3
-----------------------------------
Net outlays................................................................. 2,655.4 2,784.3 2,901.9
----------------------------------------------------------------------------------------------------------------
\1\ Total user charges are shown below. They include user charges that are classified on the receipts side of
the budget in addition to the amounts shown on this line. For additional details of total user charges, see
Table 18-2, ``Total User Charge Collections.''
Total user charges:
Offsetting collections and receipts from the public.................... 197.8 226.8 241.2
Receipts............................................................... 3.5 3.5 3.4
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Total, User charges.................................................. 201.4 230.3 244.6
[[Page 272]]
USER CHARGES
I. Introduction and Background
The Federal Government often charges those who benefit directly from a
particular activity or those subject to regulation. Based on the
definition used in this chapter, Table 18-2 shows that user charges were
$201.4 billion in 2006, and are estimated to increase to $230.3 billion
in 2007 and to $244.6 billion in 2008, growing to an estimated $275.5
billion in 2012, including the user charges proposals that are shown in
Table 18-3. This table shows that the Administration's user charge
proposals, including extension of expiring charges, would increase user
charges by an estimated $4.5 billion in 2008, growing to an estimated
$19.1 billion in 2012.
Definition. User charges are fees, charges, and assessments levied on
individuals or organizations directly benefiting from, or subject to
regulation by, a Government program or activity. In addition, the payers
of the charge must be limited to those benefiting from, or subject to
regulation by, the program or activity, and may not include the general
public, and generally does not apply to a broad segment of the public
(such as those who pay income taxes or customs duties).
Examples of business-type or market-oriented user charges
include charges for the sale of postal services (the sale of
stamps), electricity (e.g., sales by the Tennessee Valley
Authority), proceeds from the sale of goods by defense
commissaries, payments for Medicare voluntary supplemental
medical insurance, life insurance premiums for veterans,
recreation fees for parks, and proceeds from the sale of
assets (property, plant, and equipment) and natural resources
(such as timber, oil, and minerals).
Examples of regulatory and licensing user charges include
charges for regulating the nuclear energy industry, bankruptcy
filing fees, immigration fees, food inspection fees, passport
fees, and patent and trademark fees.
The ``user charges'' concept used here aligns these estimates with the
concept that establishes policy for charging prices to the public for
the sale or use of goods, services, property, and resources (see OMB
Circular No. A-25, ``User Charges,'' July 8, 1993).
User charges do not include all offsetting collections and receipts
from the public, such as repayments received from credit programs;
interest, dividends, and other earnings; payments from one part of the
Federal Government to another; or cost sharing contributions. Nor do
they include earmarked taxes (such as taxes paid to social insurance
programs or excise taxes on gasoline), or customs duties, fines,
penalties, and forfeitures.
Alternative definitions. The definition used in this chapter is useful
because it is similar to the definition used in OMB Circular No. A-25,
``User Charges,'' which provides policy guidance to Executive Branch
agencies on setting prices for user charges. Alternative definitions may
be used for other purposes. Much of the discussion of user charges
below--their purpose, when they should be levied, and how the amount
should be set--applies to these alternatives as well.
Other definitions of user charges could, for example:
be narrower than the one used here, by limiting the
definition to proceeds from the sale of goods and services
(and excluding the sale of assets), and by limiting the
definition to include only proceeds that are earmarked to be
used specifically to finance the goods and services being
provided. This definition is similar to one the House of
Representatives uses as a guide for purposes of committee
jurisdiction. (See the Congressional Record, January 3, 1991,
p. H31, item 8.)
be even narrower than the user fee concept described above,
by excluding regulatory fees and focusing solely on business-
type transactions.
be broader than the one used in this chapter by including
beneficiary- or liability-based excise taxes, such as gasoline
taxes. \2\
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\2\ Beneficiary- and liability-based taxes are terms taken from the
Congressional Budget Office, The Growth of Federal User Charges, August
1993, and updated in October 1995. In addition to gasoline taxes,
examples of beneficiary-based taxes include taxes on airline tickets,
which finance air traffic control activities and airports. An example of
a liability-based tax is the excise tax that formerly helped fund the
hazardous substance superfund in the Environmental Protection Agency.
This tax was paid by industry groups to finance environmental cleanup
activities related to the industry activity but not necessarily caused
by the payer of the fee.
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What is the purpose of user charges? The purpose of user charges is to
improve the efficiency and equity of certain Government activities, and
to reduce the burden on taxpayers to finance activities whose benefits
accrue to a relatively limited number of people, or to impose a charge
on activities that impose a cost on the public.
User charges that are set to cover the costs of production of goods
and services can provide efficiency in the allocation of resources
within the economy. They allocate goods and services to those who value
them the most, and they signal to the Government how much of the goods
or services it should provide. Prices in private, competitive markets
serve the same purposes.
User charges for goods and services that do not have special social
benefits improve equity, or fairness, by requiring that those who
benefit from an activity are the same people who pay for it. The public
often perceives user charges as fair because those who benefit from the
good or service pay for it in whole or in part, and those who do not
benefit do not pay.
When should the Government charge a fee? Discussions of whether to
finance spending with a tax or a fee often focus on whether the benefits
of the activity are to the public in general or to a limited group of
people. In general, if the benefits accrue broadly to the public, then
the program should be financed by taxes paid by the public; in contrast,
if the benefits accrue to a limited number of private individuals or
organizations, then the program should be financed by charges paid by
the private beneficiaries. For Federal
[[Page 273]]
programs where the benefits are entirely public or entirely private,
applying this principle is relatively easy. For example, according to
this principle, the benefits from national defense accrue to the public
in general and should be (and are) financed by taxes. In contrast, the
benefits of electricity sold by the Tennessee Valley Authority accrue
exclusively to those using the electricity, and should be (and are)
financed by user charges.
In many cases, however, an activity has benefits that accrue to both
public and to private groups, and it may be difficult to identify how
much of the benefits accrue to each. Because of this, it can be
difficult to know how much of the program should be financed by taxes
and how much by fees. For example, the benefits from recreation areas
are mixed. Fees for visitors to these areas are appropriate because the
visitors benefit directly from their visit, but the public in general
also benefits because these areas protect the Nation's natural and
historic heritage now and for posterity.
As a further complication, where a fee may be appropriate to finance
all or part of an activity, some consideration must be given to the ease
of administering the fee.
What should be the amount of the fee? For programs that have private
beneficiaries, the amount of the charge should depend on the costs of
producing the goods or services and the portion of the program that is
for private benefits. If the benefit is primarily private and any public
benefits are incidental, current policies support charges that cover the
full cost to the Government, including both direct and indirect costs.
When the Government is not acting in its capacity as sovereign and
engages in a business-type transaction (i.e., leasing or selling goods,
services, or resources), market price should be the basis for
establishing the fee. \3\
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\3\ Policies for setting user charges are promulgated in OMB Circular
No. A-25: ``User Charges'' (July 8, 1993).
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The Executive Branch is working to put cost accounting systems in
place across the Government that would make the calculation of full cost
more feasible. The difficulties in measuring full cost are associated in
part with allocating to an activity the full costs of capital,
retirement benefits, and insurance, as well as other Federal costs that
may appear in other parts of the budget. Guidance in the Statement of
Federal Financial Accounting Standards No. 4, ``Managerial Cost
Accounting Standards'' for the Federal Government (July 31, 1995),
should underlie cost accounting in the Federal Government.
Classification of user charges in the budget. As shown in Table 18-1,
most user charges are classified as offsets to outlays on the spending
side of the budget, but a few are classified on the receipts side of the
budget. An estimated $3.4 billion in 2008 are classified on the receipts
side and are included in the totals described in Chapter 17. ``Federal
Receipts.'' They are classified as receipts because they are regulatory
charges collected by the Federal Government by the exercise of its
sovereign powers. Examples include filing fees in the United States
courts, agricultural quarantine inspection fees, and passport fees.
These regulatory charges are unlike user fees classified as offsets to
outlays, which are normally for identifiable goods or services whose
benefits primarily fall to the party paying the fee and for which
alternatives may exist in the private sector or State and local sector.
The remaining user charges, an estimated $241.2 billion in 2008, are
classified as offsetting collections and receipts on the spending side
of the budget. Some of these are collected by the Federal Government by
the exercise of its sovereign powers and conceptually would appear on
the receipts side of the budget, but are required by law to be
classified on the spending side as offsetting collections or receipts.
Examples of these fees include immigration examination fees, U. S.
customs processing fees, and nuclear regulatory fees.
An estimated $141.8 billion of user charges for 2008 are credited
directly to expenditure accounts, and are generally available for
expenditure when they are collected, without further action by the
Congress. An estimated $99.4 billion of user charges for 2008 are
deposited in offsetting receipt accounts, and are available to be spent
only according to the legislation that established the charges.
As a further classification, the accompanying Tables 18-2 and 18-3
identify the user charges as discretionary or mandatory. These
classifications are terms from the Budget Enforcement Act of 1990 as
amended and are used frequently in the analysis of the budget.
``Discretionary'' in this chapter refers to user charges generally
controlled through annual appropriations acts and under the jurisdiction
of the appropriations committees in the Congress. ``Mandatory'' refers
to user charges controlled by permanent laws and under the jurisdiction
of the authorizing committees.
These and other classifications are discussed further in this volume
in Chapter 26, ``The Budget System and Concepts.''
II. TOTAL USER CHARGES
As shown in Table 18-2, total user charge collections (including those
proposed in this Budget) are estimated to be $244.6 billion in 2008,
increasing to $275.5 billion in 2012. User charge collections by the
Postal Service and for Medicare premiums are the largest and are
estimated to be more than half of total user charge collections in 2008.
[[Page 274]]
Table 18-2. TOTAL USER CHARGE COLLECTIONS
(In millions of dollars)
----------------------------------------------------------------------------------------------------------------
Estimates
Actual -----------------------------------------------------------
2006 2007 2008 2009 2010 2011 2012
----------------------------------------------------------------------------------------------------------------
Receipts
Judicial Branch: Filing fees, U.S. courts. 221 144 172 157 153 159 164
Department of Agriculture: Agricultural 418 455 494 502 509 517 524
quarantine inspection fees...............
Department of the Interior: Abandoned mine 303 301 295 270 275 282 286
reclamation fund.........................
Department of State: Immigration, 861 719 732 731 730 729 728
passport, and consular fees..............
Corps of Engineers: Harbor maintenance 1,207 1,264 1,367 1,461 1,561 1,663 1,770
fees.....................................
Other..................................... 538 567 357 304 306 309 312
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Subtotal, receipts...................... 3,548 3,450 3,417 3,425 3,534 3,659 3,784
Offsetting Collections and Receipts from
the Public
Discretionary
Department of Agriculture: Food safety 316 312 309 305 304 309 312
inspection and other charges...........
Department of Commerce: Patent and 1,779 1,892 2,034 2,182 2,368 2,574 2,757
trademark, fees for weather services,
and other charges......................
Department of Defense: Commissary and 10,079 10,564 10,417 10,393 10,392 10,392 10,392
other charges..........................
Department of Energy: Federal Energy 982 1,131 1,345 1,323 1,319 1,349 1,361
Regulation Commission, power marketing,
and other charges......................
Department of Health and Human Services: 1,247 972 1,193 1,104 1,100 1,124 1,134
Food and Drug Administration, Centers
for Medicare and Medicaid Services, and
other charges..........................
Department of Homeland Security: Border 2,051 2,431 2,761 2,842 2,937 3,035 3,136
and Transportation Security and other
charges................................
Department of the Interior: Minerals 736 721 843 826 811 848 850
Management Service and other charges...
Department of Justice: Charges for 301 329 364 358 357 365 368
bankruptcy oversight and other charges.
Department of State: Passport and other 948 1,308 1,576 1,622 1,670 1,719 1,769
charges................................
Department of Transportation: FAA user 188 105 252 8,422 8,908 9,344 9,766
fee proposal, pipeline safety, and
other charges..........................
Department of the Treasury: Sale of 1,606 1,992 1,948 1,916 1,909 1,954 1,970
commemorative coins and other charges..
Department of Veterans Affairs: Medical 2,082 2,274 2,431 2,518 2,607 2,703 2,801
care and other charges.................
General Services Administration: 87 452 470 481 491 501 511
Acquisition services fund and other
charges................................
Social Security Administration, State 116 119 135 133 132 135 137
supplemental fees, supplemental
security income........................
Federal Communications Commission: 383 374 397 391 389 398 402
Regulatory fees........................
Federal Trade Commission: Regulatory 133 153 165 162 162 165 167
fees...................................
Nuclear Regulatory Commission: 624 641 765 756 756 774 783
Regulatory fees........................
Securities and Exchange Commission: 1,904 1,379 1,147 1,332 1,520 1,740 1,742
Regulatory fees........................
All other agencies, discretionary user -3,036 305 255 249 246 247 248
charges................................
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Subtotal, discretionary user charges.. 22,526 27,454 28,807 37,315 38,378 39,676 40,606
Mandatory
Department of Agriculture: Crop 1,941 1,829 2,648 2,457 2,405 2,444 2,374
insurance and other charges............
Department of Defense: Commissary 1,036 742 784 791 770 703 515
surcharge and other charges............
Department of Energy: Proceeds from the 4,491 4,680 4,553 4,769 4,608 4,670 4,594
sale of energy, nuclear waste disposal,
and other charges......................
Department of Health and Human Services: 47,250 54,956 59,578 64,404 69,320 74,660 80,728
Medicare Part B and Part D insurance
premiums and other charges.............
Department of Homeland Security: 7,024 7,478 8,428 8,345 8,782 9,222 9,646
Customs, immigration, and other charges
Department of the Interior: Recreation 6,156 4,778 5,148 5,654 5,497 5,383 5,866
and other charges......................
Department of Justice: Federal Prison 435 516 549 561 575 588 602
Commissary fees and other charges......
Department of Labor: Insurance premiums 3,160 3,756 3,607 6,575 7,532 7,943 8,561
to guaranty private pensions and other
charges................................
Department of the Treasury: Bank 956 1,048 1,120 1,146 1,186 1,228 1,272
regulation, and other charges..........
Department of Veterans Affairs: Veterans 2,468 2,499 2,207 2,291 2,258 2,230 2,239
life insurance and other charges.......
Office of Personnel Management: Federal 11,164 11,560 12,207 13,001 13,947 14,991 15,978
employee health and life insurance fees
Federal Deposit Insurance Corporation: 252 865 2,526 5,318 6,946 8,105 6,330
Deposit insurance fees and other
charges................................
National Credit Union Administration: 353 401 453 477 434 461 487
Credit union share insurance and other
charges................................
Postal Service: Fees for postal services 70,348 73,672 76,733 70,273 70,533 70,865 71,312
Tennessee Valley Authority: Proceeds 9,051 9,136 9,410 8,428 8,708 8,987 9,354
from the sale of energy................
Undistributed Offsetting Receipts:
Department of Commerce: Digital ........ ........ 11,800 2,058 ........ ........ ........
television transition and public
safety fund..........................
Department of the Interior: Arctic ........ ........ ........ 7,004 4 1,006 6
National Wildlife Refuge, lease
bonuses..............................
Executive Office of the President: ........ 6,850 ........ ........ ........ ........ ........
Spectrum relocation receipts.........
Federal Communications Commission: 111 6,900 50 100 100 100 ........
Auction receipts.....................
Outer Continental Shelf receipts and 7,283 6,940 9,621 10,662 9,558 10,166 10,208
other collections....................
All other agencies, mandatory user 1,815 765 957 957 973 1,018 1,004
charges................................
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Subtotal, mandatory user charges...... 175,294 199,371 212,379 215,271 214,136 224,770 231,076
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Subtotal, user charges that are 197,820 226,825 241,186 252,586 252,514 264,446 271,682
offsetting collections and receipts
from the public......................
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TOTAL, User charges....................... 201,368 230,275 244,603 256,011 256,048 268,105 275,466
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[[Page 275]]
III. USER CHARGE PROPOSALS
As shown in Table 18-3, the Administration is proposing new or
increased user charges, including proposed extensions of expiring
charges, that would increase collections by an estimated $4.5 billion in
2008, increasing to $19.1 billion in 2012. These amounts are collections
and receipts only. They do not include related spending.
A. Discretionary User Charge Proposals
1. Offsetting collections
Department of Commerce: Minority Business Development Agency
Conference fees. The Budget proposed to give the Minority Business
Development Agency (MBDA) the authority to collect and retain fees to
offset the costs of conducting conferences. MBDA conducts the annual
Minority Enterprise Development (MED) Week conference and estimated fees
are less than $500 thousand per year.
Department of Defense (DOD)
Medical care enrollment fees and deductible. The Budget gives DOD the
authority to increase enrollment fees and deductibles for military
retirees under age 65 (and families). The new cost shares differ for
officer and enlisted retirees and for those in the different types of
plans. The Budget also assumes that retail pharmacy co-payments for all
military retirees will increase. None of these changes apply to active-
duty members and their dependents. DOD will take into account the
recommendations of the DOD Task Force on the Future of Military Health
Care before final implementation. The total 2008 savings for these
proposals is estimated to be $1,862 million.
Department of Health and Human Services
Food and Drug Administration (FDA)
Generic drug review activities fee. Generic drugs play an important
role in reducing the cost of pharmaceuticals. The Budget proposes a new
user fee to generate additional resources to support FDA's generic drug
review activities. Similar to the purpose of FDA's current prescription
drug user fees, the proposed generic drug user fee would be targeted
towards improving review times and reducing the backlog of applications.
Expiring user fees. The Prescription Drug User Fee Act, the Medical
Devices User Fee and Modernization Act, and the Mammography Quality
Standards Act will expire on September 30, 2007. These laws authorize
the FDA to assess and collect fees associated with the pre-market review
of prescription drugs, medical devices, and activities related to
ensuring mammography quality. The Administration supports reauthorizing
the collection and spending of these fees.
Centers for Medicare and Medicaid Services
Survey and certification user fee. The Budget proposes a new user fee
for the survey and certification program within the Centers for Medicare
and Medicaid Services. The agency would charge facilities participating
in Medicare and Medicaid a fee for conducting follow-up surveys, which
verify that they have taken appropriate action to correct identified
deficiencies in compliance with specific Federal health, safety, and
quality standards.
[[Page 276]]
Table 18-3. USER FEE AND OTHER USER CHARGE PROPOSALS \1\
(Estimated collections in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008 2009 2010 2011 2012 2008-2012
----------------------------------------------------------------------------------------------------------------
DISCRETIONARY:
1. Offsetting collections
Department of Commerce: Minority Business
Development Agency
Conference fees.............................. ....... * * * * * 2
Department of Defense
Medical care enrollment fees and deductible.. ....... 1,862 2,322 2,815 3,424 4,061 14,484
Department of Health and Human Services
Food and Drug Administration:
Generic drug review activities fee......... ....... 16 16 16 16 16 80
Prescription drug user fee................. ....... 339 333 332 340 343 1,687
Medical devices user fee................... ....... 48 47 47 48 49 239
Mammography standards user fee............. ....... 18 18 18 18 18 90
Centers for Medicare and Medicaid Services: ....... 35 34 34 35 35 173
Survey and certification user fee...........
Department of Transportation
Federal Aviation Administration: User fee ....... ....... 8,173 8,660 9,092 9,511 35,436
proposal....................................
Federal Election Commission
Registration fees............................ ....... * * * * * 1
2. Offsetting receipts
Department of Homeland Security: U.S.
Citizenship and Immigration Services
Systematic alien verification for ....... 3 3 3 3 3 15
entitlements program........................
Department of Housing and Urban Development
Office of Federal Housing Enterprise ....... -66 -65 -65 -66 -67 -329
Oversight...................................
Department of the Interior
Repeal Energy Act fee prohibition............ ....... 21 21 21 21 21 105
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Subtotal, discretionary user charge ....... 2,277 10,903 11,882 12,932 13,991 51,983
proposals.................................
MANDATORY:
1. Offsetting collections
Department of Labor
Pension Benefit Guaranty Corporation premiums ....... ....... 1,390 1,387 1,400 1,295 5,472
Federal Housing Enterprise Regulator
Government-Sponsored Enterprises regulatory ....... 101 105 105 107 109 527
fee.........................................
Federal Housing Finance Board
Federal Home Loan Bank fees.................. ....... -35 -39 -40 -41 -42 -197
2. Offsetting receipts
Department of Agriculture
Food Safety and Inspection Service user fees. ....... 96 98 100 102 104 500
Grain, Inspection, Packers, and Stockyards ....... 22 22 23 23 24 115
Administration user fees....................
Animal and Plant Health Inspection Service ....... 9 13 13 14 14 63
user fees...................................
Federal crop insurance fees.................. ....... ....... 15 15 15 15 60
Forest county safety net payments............ ....... 467 264 180 137 ....... 1,048
Department of Defense
National defense stockpile asset sales: ....... 69 145 198 145 25 582
Authorization for additional sales..........
Department of Health and Human Services
Food and Drug Administration: Re-inspection ....... 27 28 28 29 30 142
fees and export certification fees..........
Centers for Medicare and Medicaid Services: ....... 403 804 1,116 1,432 1,792 5,547
Additional Medicare premiums................
Department of Housing and Urban Development
Ginnie Mae premium increase.................. ....... 46 46 46 46 46 230
Government-Sponsored Enterprises oversight ....... 6 6 6 6 6 30
fee.........................................
Department of the Interior
Amend Bureau of Land Management Federal land ....... 5 10 14 53 53 135
sale authority..............................
Require upfront payment of coal bonus bid ....... 2 121 115 54 134 426
receipts....................................
Arctic National Wildlife Refuge lease
bonuses:
Collections for payment to Alaska.......... ....... ....... 3,502 2 503 3 4,010
Collections deposited in the Treasury...... ....... ....... 3,502 2 503 3 4,010
Department of Labor
Foreign labor certification fees............. ....... 65 65 65 65 65 325
Department of Veterans Affairs
Pharmacy co-pay increase..................... ....... 311 304 306 307 342 1,570
Income-based medical care enrollment fee..... ....... ....... 138 134 129 125 526
Third-party insurance co-payment offset...... ....... 44 44 44 43 43 218
Corps of Engineers--Civil Works
Additional recreation fees................... ....... 7 10 13 16 19 65
[[Page 277]]
Environmental Protection Agency
Pesticide user fees.......................... ....... 66 57 60 66 57 306
Pre-manufacture notice user fees............. ....... 4 8 8 8 8 36
Commodity Futures Trading Commission
Transaction fees............................. ....... 86 89 92 95 99 461
Federal Communications Commission
Spectrum license fee authority............... ....... 50 150 300 300 400 1,200
Extend spectrum auction authority............ ....... ....... ....... ....... ....... 200 200
Prospective ancillary terrestrial component ....... 150 150 150 150 150 750
spectrum auctions...........................
Domestic satellite spectrum auctions......... 130 252 105 100 100 75 632
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Subtotal, mandatory user charge proposals.. 130 2,253 11,152 4,582 5,807 5,194 28,989
GOVERNMENTAL RECEIPTS
Department of Transportation
Federal Aviation Administration: Aviation ....... ....... -56 -58 -60 -62 -236
overflight fees.............................
----------------------------------------------------------------
Total, user charge proposals............... 130 4,530 21,999 16,406 18,679 19,123 80,736
----------------------------------------------------------------------------------------------------------------
\1\ A negative sign indicates a decrease in collections.
*$500 thousand or less
Department of Transportation: Federal Aviation Administration (FAA)
User fee proposal. The Budget includes a reauthorization proposal
that would make the Federal Aviation Administration's financing system
more cost-based. The FAA's current excise tax system, which generated
$10.6 billion in 2006, largely based on taxes on the price of airline
tickets, does not have a direct relationship between the taxes paid by
users and the air traffic control services provided by the FAA. Under
its reauthorization proposal, FAA would collect user fees from
commercial aviation operators for air traffic control services.
Implementing user fees for services provided should create incentives to
make the system more efficient and responsive to user needs. FAA would
have the authority to collect the user fees that directly offset the
cost of its operations; expenditure of the proceeds from these fees
would be subject to the appropriations process. The Budget assumes FAA
will implement its new financing system starting in 2009, and estimates
FAA will collect $8 billion in user fees during the first year.
Federal Election Commission
Registration fees. The Federal Election Commission hosts public
conferences on subjects related to campaign finance. The Administration
proposes to grant the FEC authority to collect registration fees from
attendees to cover the cost of these events.
2. Offsetting receipts
Department of Homeland Security: U.S. Citizenship and Immigration
Services (USCIS)
Systematic alien verification for entitlements program. The Budget
requests authority for the Secretary of the Department of Homeland
Security (DHS) to deposit fees collected from the Systematic Alien
Verification for Entitlements (SAVE) Program into the USCIS immigration
examinations fee account. This program is an intergovernmental
information-sharing intiative that aids organizations in determining an
applicant's/recipient's immigration status, and thereby ensure that only
entitled applicants/recipients receive Federal, State, or local public
benefits as required by the Immigration Reform and Control Act. The
proposed language will clarify DHS authority to collect these fees and
provide them the authority to deposit those fees in their mandatory fee
account.
Department of Housing and Urban Development
Office of Federal Housing Enterprise Oversight. This proposal is
discussed below in the section on the Federal Housing Enterprise
Regulator.
Department of the Interior
Repeal Energy Act fee prohibition. A last-minute addition to the 2005
Energy Policy Act prohibited the Bureau of Land Management from
implementing new user fees for oil and gas permit processing and instead
diverted existing rental receipts to make up for the lost program
funding. The Budget proposes to repeal these changes and substitute new
user fees for the mandatory funding provided by the Act. The proposal
would also repeal a mandatory geothermal program fund drawn from Federal
geothermal royalties and return to the traditional 50/50 Federal-State
revenue sharing arrangement for geothermal revenues. The proposed fees
are expected to generate at least $20 million per year beginning in
2008, thereby reducing the cost to taxpayers for operating these
programs. Additional savings will be generated by discontinuing the
Act's mandatory spending provisions related to geothermal receipts.
[[Page 278]]
B. Mandatory User Charge Proposals
1. Offsetting collections
Department of Labor
Pension Benefit Guaranty Corporation (PBGC) premiums. The Budget re-
proposes increases to the premiums paid to the PBGC for single-employer
defined benefit pension insurance. Despite improvements in the recently
enacted Pension Protection Act, further premium increases are needed to
reduce PBGC's $19 billion deficit.
Federal Housing Enterprise Regulator
Government-Sponsored Enterprises (GSE) regulatory fee. The
Administration will again propose broad reform of the supervisory system
for GSEs in the housing market. Fees currently collected by the Office
of Federal Housing Enterprise Oversight in the Department of Housing and
Development and the Federal Housing Finance Board would instead be
collected by a new housing GSE safety and soundness regulator. For
additional information, see the ``Credit and Insurance'' chapter in this
volume.
Federal Housing Finance Board
Federal Home Loan Bank fees. This proposal is discussed above in the
section on the Federal Housing Enterprise Regulator.
2. Offsetting receipts
Department of Agriculture
Food Safety and Inspection Service (FSIS) user fees. This Budget
proposes two new user fees, a licensing fee and a performance fee. These
two fees are different from those proposed in recent budgets and do not
try to completely offset a portion of the Food Safety and Inspection
Services operational expenses. The recommended fees, estimated to be $96
million in the first year, include:
$92 million for a licensing fee scaled to the size of the
operation, and
$4 million for a performance fee. Plants that have
resampling and retesting due to positive samples, recalls, or
are linked to outbreaks would pay a fee to FSIS for each
incident.
Grain Inspection, Packers, and Stockyards Administration (GIPSA) user
fees. The Administration proposes to establish a fee to cover the cost
associated with GIPSA's standardization activities and a licensing fee
to cover the cost associated with administering meat packers and
stockyards activities.
Animal and Plant Health Inspection Service user fees. The
Administration proposes to establish user fees for animal welfare
inspections, for animal research facilities, carriers, and in-transit
handlers of animals.
Federal crop insurance fees. The Administration proposes to implement
a participation fee in the Federal crop insurance program to fund
modernization and future maintenance of the existing information
technology (IT) system. The fee would be charged to insurance companies
participating in the Federal crop insurance program based on a rate of
about one-half cent per dollar of premium sold. Because it is the
companies that will most benefit from better, more advanced computer
systems, it is reasonable that they contribute to the modernization and
maintenance of these systems.
Forest county safety net payments. The Budget includes a legislative
proposal that authorizes the Secretary of Agriculture to dispose of
certain Forest Service lands, up to $800 million, identified in National
Forest plans as suitable for exchange since they are isolated or
inefficient to manage. Along with additional proceeds, these receipts
will finance payments to the most affected areas and for national forest
land acquisition in States where parcels are sold. For the 2007 payment
(to be made in 2008), the Administration will continue to work with
Congress to identify mutually agreeable offsets.
Department of Defense
National Defense stockpile asset sales: Authorization for additional
sales. The Administration proposes legislation to permit the sale of the
remaining government-owned industrial commodities in the National
Defense Stockpile that are not needed for national defense requirements.
Sales of these commodities are expected to result in mandatory sales
receipts of an estimated $69 million in 2008. Sales receipts are subject
to fluctuation based on commodity price changes.
Department of Health and Human Services
Food and Drug Administration (FDA)
Re-inspection fees. FDA conducts post-market inspections of food,
human drug, biologic, animal drug and feed, and medical device
manufacturers to assess their compliance with Good Manufacturing
Practice requirements. The Administration proposes new fees that would
be assessed for repeat inspections due to violations found during the
first inspection.
Food and animal feed export certification fees. FDA collects user
fees for the issuance of export certifications for human and animal
drugs, and medical devices as authorized by the Federal Food, Drug, and
Cosmetic Act. The Administration proposes to expand FDA's authority to
collect user fees for the issuance of export certificates for foods and
animal feed. Timely issuance of food/feed export certificates funded
through user fees would improve the ability of food and animal feed
producers to export their products.
Centers for Medicare and Medicaid Services
Additional Medicare premiums. Medicare beneficiaries share in the
costs of their health services through premiums, deductibles, and co-
insurance. The Medicare Prescription Drug, Improvement, and
Modernization Act of 2003 (MMA) began to limit the growth in subsidies
for certain higher-income beneficiaries. Beneficiaries who are most able
to contribute to the costs of their coverage have more responsibility
and ownership over their health care utilization and costs.
[[Page 279]]
To help improve Medicare's long-term sustainability, the Budget proposes
to broaden the application of reduced subsidies for certain higher-
income beneficiaries.
Department of Housing and Urban Development (HUD)
Ginnie Mae premium increase. This proposal will create an upfront
premium of 6 basis points on new mortgage-backed securities that will be
charged to security issuers. This will generate receipts to cover the
total cost of administrating the Government National Mortgage
Association (Ginnie Mae) and promote oversight of such spending.
Government-Sponsored Enterprises (GSE) oversight fee. Upon enactment
of the Administration's proposal for a strengthened regulator for GSEs,
the cost of HUD's responsibilities under the Federal Housing Enterprise
Safety and Soundness Act of 1992, and amendments as proposed, would be
assessed on Fannie Mae and Freddie Mac. These responsibilities include
the establishment and enforcement of affordable housing goals for the
GSEs, ensuring GSE compliance with fair housing laws, and providing
consultation to the safety and soundness regulator on the GSEs' new
activities. The cost of these regulatory responsibilities is currently
in the HUD salaries and expenses account as a non-reimbursable expense.
Department of the Interior
Amend Bureau of Land Management (BLM) Federal land sale authority.
The Administration will propose legislation to amend BLM's land sale
authority under the Federal Land Transaction Facilitation Act (FLTFA)
to: (1) allow BLM to use updated management plans to identify areas
suitable for disposal; (2) allow a portion of the receipts to be used by
BLM for restoration projects; (3) return 70 percent of land sale
proceeds to the Treasury; and (4) cap receipt retention at $60 million
per year. BLM is currently limited to selling lands that had been
identified for disposal in land use plans that were in effect prior to
enactment of FLTFA. Use of the receipts is currently limited to the
purchase of other lands for conservation purposes. The new receipts
shown in this chapter reflect only a portion of the savings from this
proposal; additional savings will be generated by redirecting receipts
under the existing FLFTA authority to the Treasury. The amounts shown in
Table 18-3 reflect receipts only and do not include related spending.
Require upfront payment of coal bonus bid receipts. The Budget
proposes to amend the Mineral Leasing Act to change the current practice
of allowing bonus bid payments for coal lease sales to be made over a
five-year period, instead requiring the full payment to be made in the
sale year. This proposal would increase near-term revenues, but would
reduce revenues in later years when deferred payments under the current
system would otherwise be collected.
Arctic National Wildlife Refuge lease bonuses. The Budget includes a
proposal to authorize the Department of the Interior to conduct
environmentally responsible oil and gas exploration and development
within a small area of the Arctic National Wildlife Refuge, sometimes
referred to as the ``1002 Area,'' located in northern Alaska. The
Department of the Interior estimates that recoverable oil from this area
is between 5.7 and 16 billion barrels. The Budget assumes that the first
oil and gas lease sale would be held in 2009 and would result in an
estimated $7 billion in new revenues. All oil and gas revenues from the
1002 Area would be shared fifty percent with the State of Alaska,
including the estimated $6 million in annual rental payments. The
Federal share of revenues would be deposited in the Treasury.
Department of Labor
Foreign labor certification fees. The 2008 Budget re-proposes
legislation to establish a cost-based user fee for new applications
under the permanent foreign labor certification program. Fee proceeds
would offset the costs of administering the program. Upon enactment of
the fee, funding for these activities now included in the program
administration account will be reviewed and adjusted.
Department of Veterans Affairs
Medical care fees. The President's Budget includes legislation to
implement new or higher fees for non-disabled higher-income veterans (PL
7/8 veterans). These veterans will pay higher drug co-pays (from $8 to
$15) and new income-based annual enrollment fees that start at $250 for
those with household incomes of $50,000 and rise to $750 for those with
incomes of $100,000 or greater. These proposals do not pertain to
veterans who are considered among VA's core mission and the highest
priority--those with service disabilities, lower incomes, or special
needs. The Budget also includes technical correction language to ensure
that current co-pays are charged to all eligible veterans equally and
not reduced if a veteran has health insurance. These proposals will
result in an additional $355 million in estimated receipts for 2008.
Corps of Engineers--Civil Works
Additional recreation fees. The Corps of Engineers manages 4,300
recreation areas at 465 Corps projects (mostly lakes and reservoirs) on
12 million acres in 43 States at an annual cost of about $267 million.
The Administration re-proposes a recreation modernization (``RecMod'')
initiative that would encourage the collection of entrance fees (not
currently authorized) and the creation of public/private partnerships to
improve Corps recreation facilities and services at little or no cost to
the Federal Government. The Corps would implement user fees and private/
public partnerships selectively, at recreation areas where fees would be
appropriate. Some Corps recreation areas are isolated and remote;
raising fees there might not be productive. But others are integral
parts of prosperous urban communities with valuable lake-front property.
Those communities may decide to help upgrade the Corps recreation areas
that their
[[Page 280]]
citizens enjoy to provide amenities that might not otherwise be
available.
Environmental Protection Agency (EPA)
Pesticide user fees. EPA presently collects fees from entities
seeking to register their pesticides and from entities with existing
pesticides registered for use in the United States. The Administration
proposes to better cover the costs of EPA's pesticide services by
increasing collections of currently authorized, but soon to expire,
pesticide user fees. Furthermore, the Federal Food, Drug, and Cosmetic
Act requires EPA to collect fees for the establishment and reassessment
of pesticide tolerances. However, collection of these fees has been
blocked through 2008. The Administration proposes to eliminate the
prohibition and collect the tolerance fee in 2008. In addition,
amendments to the Federal Insecticide, Fungicide, and Rodenticide Act
require EPA to implement a new program to review all registered
pesticides on a 15 year cycle to ensure that registrations reflect
current science. EPA initiated this new Registration Review program in
2007. If EPA determines that a pesticide adversely impacts an endangered
species during registration review, additional work is required to
ensure adequate protections are implemented. The new registration review
fee structure is designed to cover the incremental cost of this work.
Pre-manufacture notice user fees. EPA presently collects fees from
chemical manufacturers seeking to bring new chemicals into commerce.
These fees are authorized by the Toxic Substances Control Act and are
subject to an outdated statutory cap. The Administration proposes to
eliminate the cap so that EPA can recover a greater portion of the cost
of the program.
Commodity Futures Trading Commission (CFTC)
Transaction fees. The CFTC is the only Federal financial regulator
that does not derive its funding from the specialized entities it
regulates. The Administration will propose legislation to collect a new
transaction fee on commodity futures and option contracts traded on
approved exchanges. The fees would be set at a level to equal the costs
to the taxpayer of funding CFTC's Market Oversight and Clearing and
Intermediary Oversight functions, an estimated $86 million in 2008. Such
fees are already imposed on futures exchanges to fund the programs of
the futures industry's self-regulatory organization, and will help to
offset the deficit impact of general taxpayer funding of the CFTC's
activities.
Federal Communications Commission
Spectrum license fee authority. To continue to promote efficient
spectrum use, the Administration proposes legislation to provide the
Federal Communications Commission (FCC) with new authority to use other
economic mechanisms, such as fees, as a spectrum management tool. The
Commission would be authorized to set user fees on unauctioned spectrum
licenses based on public-interest and spectrum-management principles.
Fees would be phased in over time as part of an ongoing rulemaking
process to determine the appropriate application and level for fees. Fee
collections are proposed to begin in 2008 and are estimated to total
more than $3.6 billion through 2017.
Extend spectrum auction authority. The Administration proposes
legislation to extend indefinitely the authority of the FCC to auction
spectrum licenses, which expires on September 30, 2011. The additional
receipts associated with this permanent extension are estimated to total
$1.2 billion through 2017.
Prospective ancillary terrestrial component spectrum auctions. The
Administration proposes legislation to bring greater competition to the
assignment of the land-based component of hybrid terrestrial-satellite
communications networks, such as the Ancillary Terrestrial Component to
Mobile Satellite Services, subject to technical feasibility as
determined by the FCC. The use of auctions to assign the land-based
component for any future satellite licenses for these hybrid networks
will help to ensure that the radio spectrum is assigned efficiently and
effectively. The additional receipts associated with this policy are
estimated to total $1.5 billion through 2017.
Domestic satellite spectrum auctions. The Administration proposes
legislation to ensure that spectrum licenses for predominantly domestic
satellite services are assigned efficiently and effectively through
competitive bidding. Services such as Direct Broadcast Satellite and
Satellite Digital Audio Radio Services were assigned by auction prior to
a 2005 court decision that questioned this practice on technical
grounds. By clarifying through legislation that auctions of licenses for
these domestic satellite services are authorized, prior policy of the
FCC will be restored. The additional receipts associated with this
policy are estimated to total $690 million through 2017.
C. User Charge Proposals that are Governmental Receipts
Federal Aviation Administration (FAA): Aviation overflight fees. This
proposal is part of the proposal discussed above for the FAA user fees.
OTHER OFFSETTING COLLECTIONS AND RECEIPTS
Table 18-4 shows the distribution of user charges and other offsetting
collections and receipts from the public according to whether they are
offsetting collections credited to expenditure accounts or offsetting
receipts. The table shows that total offsetting collections and receipts
from the public are estimated to be $319.3 billion in 2008. Of these, an
estimated $169.9 billion are offsetting collections credited to
expenditure accounts and an estimated $149.4 billion are deposited in
offsetting receipt accounts.
Information on the user charges presented in Table 18-4 is available
in Tables 18-2 and 18-3 and the
[[Page 281]]
discussion that accompanies those tables. Major offsetting collections
deposited in expenditure accounts that are not user charges include
collections by the Commodity Credit Corporation fund in the Department
of Agriculture, which are related to loans; collections from States to
supplement payments in the supplemental security income program; and
pre-credit reform loan repayments. Major offsetting receipts that are
not user charges include military assistance program sales and interest
income.
Table 18-5 includes all offsetting receipts deposited in receipt
accounts. These include offsetting receipts from the public (as
summarized in Table 18-4) and also payments from one part of the
Government to another, called intragovernmental transactions. These
receipts are offset (deducted) from outlays in the Federal budget. In
total, offsetting receipts are estimated to be $737.0 billion in 2008:
$587.6 billion are intragovernmental transactions; and $149.4 billion
are from the public. The $149.4 billion in offsetting receipts from the
public consist of proprietary receipts from the public ($129.9 billion)
and offsetting governmental receipts ($19.5 billion).
As noted above, offsetting collections and receipts by agency are also
displayed in Table 21-1, which appears in Chapter 21, ``Outlays to the
Public, Gross and Net,'' of this volume.
Table 18-4. OFFSETTING COLLECTIONS AND RECEIPTS FROM THE PUBLIC
(In billions of dollars)
------------------------------------------------------------------------
Estimate
Actual ---------------------------
2006 2007 2008
------------------------------------------------------------------------
Offsetting collections (credited
to expenditure accounts):
User charges:
Postal service stamps and 70.3 73.7 76.7
other postal fees (off-
budget)....................
Defense Commissary Agency... 5.5 5.4 5.4
Employee contributions for 9.1 9.4 10.0
employees and retired
employees health benefits
funds......................
Sale of energy:
Tennessee Valley Authority 9.1 9.1 9.4
Bonneville Power 3.3 3.3 3.3
Administration...........
All other user charges...... 29.6 34.5 36.9
---------------------------------------
Subtotal, user charges.... 126.8 135.5 141.8
Other collections credited to
expenditure accounts:
Commodity Credit Corporation 10.2 13.7 13.2
fund.......................
Supplemental security income 4.2 4.4 4.6
(collections from the
States)....................
Other collections........... 14.8 10.5 10.4
---------------------------------------
Subtotal, other 29.1 28.6 28.1
collections..............
---------------------------------------
Subtotal, offsetting 156.0 164.1 169.9
collections................
Offsetting receipts (deposited
in receipt accounts):
User charges:
Medicare premiums........... 45.1 52.8 57.3
Outer Continental Shelf 7.3 6.8 9.2
rents, bonuses, and
royalties..................
All other user charges...... 18.6 31.7 32.9
---------------------------------------
Subtotal, user charges 71.0 91.3 99.4
deposited in receipt
accounts.................
Other collections deposited in
receipt accounts:
Military assistance program 14.2 15.1 13.1
sales......................
Interest income............. 14.7 16.1 16.2
All other collections 24.2 29.4 20.7
deposited in receipt
accounts...................
---------------------------------------
Subtotal, other 53.1 60.5 49.9
collections deposited in
receipt accounts.........
---------------------------------------
Subtotal, offsetting receipts. 124.1 151.8 149.4
---------------------------------------
Total, offsetting collections 280.1 316.0 319.3
and receipts from the public...
Total, offsetting collections 209.7 242.3 242.5
and receipts excluding off-
budget.........................
ADDENDUM:
User charges that are 197.8 226.8 241.2
offsetting collections and
receipts \1\.................
Other offsetting collections 82.2 89.2 78.1
and receipts from the public.
---------------------------------------
Total, offsetting 280.1 316.0 319.3
collections and receipts
from the public............
------------------------------------------------------------------------
\1\ Excludes user charges that are classified on the receipts side of
the budget. For total user charges, see Table 18.1 or Table 18.2.
[[Page 282]]
Table 18-5. OFFSETTING RECEIPTS BY TYPE
(In millions of dollars)
----------------------------------------------------------------------------------------------------------------
Estimate
Source 2006 -----------------------------------------------------------------------
Actual 2007 2008 2009 2010 2011 2012
----------------------------------------------------------------------------------------------------------------
INTRAGOVERNMENTAL
TRANSACTIONS
On-budget receipts:
Federal intrafund
transactions:
Distributed by agency:
Interest from the 391 765 1,023 1,077 1,174 1,272 1,450
Federal Financing
Bank.................
Interest on Government 1,208 1,716 1,654 846 838 850 862
capital in
enterprises..........
Interest received by 198 169 176 183 198 215 235
retirement and health
benefits funds.......
General fund payments
to retirement and
health benefits funds:
Employees health .......... 5,400 5,400 5,400 5,500 5,500 5,600
benefits fund......
DoD retiree health 20,391 19,415 21,185 23,101 25,196 27,461 29,887
care fund..........
Miscellaneous 285 345 362 427 524 487 489
Federal retirement
funds..............
Other................. 1,998 5,723 4,291 4,741 4,726 5,175 5,694
Undistributed by agency:
Employing agency
contributions:
DoD retiree health 11,138 11,550 11,212 12,216 12,993 13,897 14,691
care fund..........
-----------------------------------------------------------------------------------
Total Federal 35,609 45,083 45,303 47,991 51,149 54,857 58,908
intrafunds...........
-----------------------------------------------------------------------------------
Trust intrafund
transactions:
Distributed by agency:
Payments to railroad 4,793 5,211 5,298 5,392 5,710 6,163 5,959
retirement...........
-----------------------------------------------------------------------------------
Total trust intrafunds 4,793 5,211 5,298 5,392 5,710 6,163 5,959
-----------------------------------------------------------------------------------
Total intrafund 40,402 50,294 50,601 53,383 56,859 61,020 64,867
transactions...........
-----------------------------------------------------------------------------------
Interfund transactions:
Distributed by agency:
Federal fund payments
to trust funds:
Contributions to
insurance programs:
Military 23,180 26,048 27,025 28,039 29,090 30,181 31,313
retirement fund..
Supplementary 162,602 175,657 187,749 197,816 212,353 231,110 246,821
medical insurance
Proposed .......... .......... -1,649 -3,594 -5,409 -7,063 -8,916
Legislation
(non-PAYGO)....
Hospital insurance 10,973 11,572 13,248 14,410 16,037 17,775 19,699
Railroad social 129 132 144 159 168 186 205
security
equivalent fund..
Rail industry 337 325 339 355 370 386 401
pension fund.....
Civilian 28,430 32,388 33,831 35,470 37,199 38,969 41,180
supplementary
retirement
contributions....
Unemployment 828 830 807 806 812 800 781
insurance........
Other 782 850 882 831 898 777 767
contributions....
-----------------------------------------------------------------------------------
Subtotal.......... 227,261 247,802 262,376 274,292 291,518 313,121 332,251
-----------------------------------------------------------------------------------
Miscellaneous 1,870 1,762 1,775 1,751 1,731 1,749 1,758
payments...........
Proposed .......... .......... 2,752 .......... .......... .......... ..........
Legislation (non-
PAYGO)...........
-----------------------------------------------------------------------------------
Subtotal............ 229,131 249,564 266,903 276,043 293,249 314,870 334,009
-----------------------------------------------------------------------------------
Trust fund payments to
Federal funds:
Quinquennial 350 .......... .......... .......... .......... .......... ..........
adjustment for
military service
credits............
Other............... 1,757 24,804 1,840 1,894 1,946 2,000 2,201
Proposed .......... .......... 2,315 -437 -432 -424 -424
Legislation (non-
PAYGO)...........
-----------------------------------------------------------------------------------
Subtotal............ 2,107 24,804 4,155 1,457 1,514 1,576 1,777
-----------------------------------------------------------------------------------
Total interfunds 231,238 274,368 271,058 277,500 294,763 316,446 335,786
distributed by agency
-----------------------------------------------------------------------------------
Undistributed by agency:
Employer share,
employee retirement
(on-budget):
Civil service 13,819 14,072 15,714 16,623 18,141 19,723 21,342
retirement and
disability
insurance..........
Proposed .......... .......... 2 8 15 23 31
Legislation (non-
PAYGO)...........
CSRDI from Postal 4,429 3,382 3,596 3,817 4,063 4,327 4,609
Service............
Hospital insurance 2,722 2,839 2,965 3,053 3,180 3,344 3,439
(contribution as
employer) \1\ .....
Postal employer 682 694 720 752 788 827 868
contributions to
FHI................
Military retirement 16,240 16,115 17,249 18,356 19,046 19,806 20,430
fund...............
[[Page 283]]
Other Federal 201 193 195 198 200 202 204
employees
retirement.........
-----------------------------------------------------------------------------------
Total employer 38,093 37,295 40,441 42,807 45,433 48,252 50,923
share, employee
retirement (on-
budget)............
-----------------------------------------------------------------------------------
Interest received by 71,574 75,067 77,710 80,363 83,658 86,270 87,640
on-budget trust
funds..............
Proposed .......... .......... 117 369 779 1,339 2,085
Legislation (non-
PAYGO)...........
-----------------------------------------------------------------------------------
Total interfund 109,667 112,362 118,268 123,539 129,870 135,861 140,648
transactions
undistributed by
agency...............
-----------------------------------------------------------------------------------
Total interfund 340,905 386,730 389,326 401,039 424,633 452,307 476,434
transactions...........
-----------------------------------------------------------------------------------
Total on-budget receipts.. 381,307 437,024 439,927 454,422 481,492 513,327 541,301
-----------------------------------------------------------------------------------
Off-budget receipts:
Trust intrafund
transactions:
Distributed by agency:
Interfund transactions:
Distributed by agency:
Federal fund payments
to trust funds:
Old-age, survivors, 22,056 19,358 19,962 22,034 24,227 27,110 30,069
and disability
insurance..........
Undistributed by agency:
Employer share, 11,625 12,289 13,108 13,848 14,739 15,788 16,560
employee retirement
(off-budget).......
Interest received by 97,722 106,249 114,618 124,802 136,492 149,278 162,901
off-budget trust
funds..............
Proposed .......... .......... .......... .......... .......... .......... -775
Legislation (non-
PAYGO)...........
-----------------------------------------------------------------------------------
Total off-budget receipts: 131,403 137,896 147,688 160,684 175,458 192,176 208,755
-----------------------------------------------------------------------------------
Total intragovernmental 512,710 574,920 587,615 615,106 656,950 705,503 750,056
transactions...............
===================================================================================
PROPRIETARY RECEIPTS FROM
THE PUBLIC
Distributed by agency:
Interest:
Interest on foreign 285 210 210 210 210 210 210
loans and deferred
foreign collections....
Interest on deposits in 924 1,022 871 834 797 769 767
tax and loan accounts..
Proposed Legislation .......... .......... 10 10 10 10 10
(non-PAYGO)..........
Other interest 11,264 12,494 13,632 14,681 16,041 17,554 19,047
(domestic--civil) \2\ .
-----------------------------------------------------------------------------------
Total interest.......... 12,473 13,726 14,723 15,735 17,058 18,543 20,034
-----------------------------------------------------------------------------------
Dividends and other 2,177 2,382 1,446 1,490 1,511 1,486 1,464
earnings...............
Royalties and rents....... 4,337 3,955 4,271 4,452 4,384 4,392 4,671
Proposed Legislation .......... .......... -44 192 177 58 216
(PAYGO)................
Sale of products:
Sale of timber and other 393 272 279 288 296 305 314
natural land products..
Proposed Legislation .......... .......... 67 64 60 57 ..........
(PAYGO)................
Sale of minerals and 671 74 39 37 36 35 36
mineral products.......
Sale of power and other 725 705 674 644 660 628 630
utilities..............
Proposed Legislation .......... .......... 17 17 17 17 17
(PAYGO)..............
Other................... 102 99 115 112 99 119 115
Proposed Legislation .......... .......... 14 14 14 14 14
(PAYGO)..............
-----------------------------------------------------------------------------------
Total sale of products.. 1,891 1,150 1,205 1,176 1,182 1,175 1,126
-----------------------------------------------------------------------------------
Fees and other charges for
services and special
benefits:
Medicare premiums and 45,108 52,785 57,202 61,923 66,864 72,138 78,222
other charges (trust
funds).................
Proposed Legislation .......... .......... 78 82 -43 -78 -95
(PAYGO)..............
Nuclear waste disposal 752 760 770 771 773 774 775
revenues...............
Veterans life insurance 154 141 128 116 104 92 82
(trust funds)..........
Other \2\ .............. 7,908 12,002 12,060 12,672 13,338 14,130 15,025
Proposed Legislation .......... .......... 21 21 21 21 21
(non-PAYGO)..........
Proposed Legislation .......... .......... 762 1,091 1,306 1,561 1,900
(PAYGO)..............
-----------------------------------------------------------------------------------
Total fees and other 53,922 65,688 71,021 76,676 82,363 88,638 95,930
charges................
-----------------------------------------------------------------------------------
Sale of Government
property:
Sale of land and other 984 191 229 197 195 160 160
real property \2\ .....
Proposed Legislation .......... .......... 376 177 102 99 19
(PAYGO)..............
Military assistance 14,233 15,053 13,054 11,446 11,651 11,861 12,074
program sales (trust
funds).................
[[Page 284]]
Other................... 214 147 164 130 106 99 47
Proposed Legislation .......... .......... 69 145 198 145 25
(PAYGO)..............
-----------------------------------------------------------------------------------
Total sale of Government 15,431 15,391 13,892 12,095 12,252 12,364 12,325
property...............
-----------------------------------------------------------------------------------
Realization upon loans and
investments:
Negative subsidies and 8,600 11,752 713 629 611 609 534
downward reestimates...
Proposed Legislation .......... .......... -21 -21 -21 -21 -21
(non-PAYGO)..........
Proposed Legislation .......... .......... 2,859 46 46 46 46
(PAYGO)..............
Repayment of loans to 328 .......... .......... .......... .......... .......... ..........
foreign nations........
Other................... 475 70 67 80 80 80 80
-----------------------------------------------------------------------------------
Total realization upon 9,403 11,822 3,618 734 716 714 639
loans and investments..
-----------------------------------------------------------------------------------
Recoveries and refunds \2\ 8,169 8,782 8,562 8,935 9,385 9,131 9,276
.........................
Proposed Legislation .......... .......... .......... 58 122 126 130
(non-PAYGO)............
Proposed Legislation .......... .......... 2 492 507 373 379
(PAYGO)................
Miscellaneous receipt 2,980 2,008 1,949 1,961 1,972 1,983 1,994
accounts \2\ ............
Proposed Legislation .......... .......... 14 14 14 14 14
(PAYGO)................
-----------------------------------------------------------------------------------
Total proprietary receipts 110,783 124,904 120,659 124,010 131,643 138,997 148,198
from the public
distributed by agency....
-----------------------------------------------------------------------------------
Undistributed by agency:
Other interest: Interest 2 .......... .......... .......... .......... .......... ..........
received from Outer
Continental Shelf escrow
account..................
Rents, bonuses, and
royalties:
Outer Continental Shelf 967 662 2,404 1,169 875 532 474
rents and bonuses......
Outer Continental Shelf 6,316 6,148 6,740 8,759 8,087 9,035 8,860
royalties..............
Proposed Legislation .......... .......... 50 50 50 50 50
(PAYGO)..............
Arctic National Wildlife
Refuge:
Proposed Legislation .......... .......... .......... 7,004 4 1,006 6
(PAYGO)..............
Sale of major assets...... .......... .......... .......... 323 .......... .......... ..........
Other undistributed .......... 6,850 .......... .......... .......... .......... ..........
offsetting receipts......
-----------------------------------------------------------------------------------
Total proprietary receipts 7,285 13,660 9,194 17,305 9,016 10,623 9,390
from the public
undistributed by agency..
-----------------------------------------------------------------------------------
Total proprietary receipts 118,068 138,564 129,853 141,315 140,659 149,620 157,588
from the public ...........
===================================================================================
OFFSETTING GOVERNMENTAL
RECEIPTS
Distributed by agency:
Regulatory fees........... 5,759 6,108 7,032 7,235 7,527 7,866 8,158
Proposed Legislation .......... .......... -63 -62 -62 -63 -64
(non-PAYGO)............
Proposed Legislation .......... .......... 65 65 65 65 65
(PAYGO)................
Other..................... 159 143 144 144 145 124 125
Proposed Legislation .......... .......... 27 28 28 29 30
(PAYGO)................
Undistributed by agency:
Spectrum auction proceeds. 111 6,900 11,850 2,158 100 100 ..........
Proposed Legislation .......... 130 452 405 550 550 825
(PAYGO)................
-----------------------------------------------------------------------------------
Total offsetting 6,029 13,281 19,507 9,973 8,353 8,671 9,139
governmental receipts....
===================================================================================
Total offsetting receipts... 636,807 726,765 736,975 766,394 805,962 863,794 916,783
----------------------------------------------------------------------------------------------------------------
\1\ Includes provision for covered Federal civilian employees and military personnel.
\2\ Includes both Federal funds and trust funds.