[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 in this 
volume in Chapter 17, ``Federal Receipts,'' 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 examples of these charges 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.
---------------------------------------------------------------------------
  \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.
---------------------------------------------------------------------------
  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 2009, total offsetting 
collections and receipts from the public are estimated to be $330.2 
billion, and total user charges are estimated to be $256.1 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   -----------------------
                                                                                 2007        2008        2009
----------------------------------------------------------------------------------------------------------------
Gross outlays...............................................................     3,050.9     3,269.6     3,437.6

Offsetting collections and receipts from the public:
  User charges \1\..........................................................       229.5       248.0       252.1
  Other.....................................................................        91.2        90.4        78.1
                                                                             -----------------------------------
Subtotal, offsetting collections and receipts from the public...............       320.7       338.4       330.2
                                                                             -----------------------------------
Net outlays.................................................................     2,730.2     2,931.2     3,107.4

----------------------------------------------------------------------------------------------------------------
\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....................        229.5        248.0        252.1
  Receipts...............................................................          3.9          3.5          4.0
                                                                          --------------------------------------
    Total, User charges..................................................        233.3        251.5        256.1



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                              USER CHARGES

                     I. Introduction and Background

  The Federal Government often assesses user charges on 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 $233.3 billion in 2007, and are estimated 
to increase to $251.5 billion in 2008 and to $256.1 billion in 2009, 
growing to an estimated $303.8 billion in 2013, 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 2009, growing to an estimated $19.7 billion in 2013.

  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\
---------------------------------------------------------------------------
  \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.
---------------------------------------------------------------------------

  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

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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 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\
---------------------------------------------------------------------------
  \3\ Policies for setting user charges are promulgated in OMB Circular 
No. A-25: ``User Charges'' (July 8, 1993).
---------------------------------------------------------------------------
  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 $4.0 billion in 2009 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 $252.1 billion in 2009, 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.
  As shown in Table 18-4, an estimated $157.2 billion of user charges 
for 2009 are credited directly to expenditure accounts, and are 
generally available for expenditure when they are collected, without 
further action by the Congress. An estimated $94.9 billion of user 
charges for 2009 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 $256.1 billion in 2009, 
increasing to $303.8 billion in 2013. User charge collections by the 
Postal Service

[[Page 274]]



                                   Table 18-2.  TOTAL USER CHARGE COLLECTIONS
                                            (In millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                               Estimates
                                             Actual  -----------------------------------------------------------
                                              2007      2008      2009      2010      2011      2012      2013
----------------------------------------------------------------------------------------------------------------

                 Receipts

Judicial Branch: Filing fees, U. S. courts       189       189       193       209       214       219       224
Department of Agriculture: Agricultural          472       537       560       577       594       612       630
 quarantine inspection fees...............
Department of the Interior: Abandoned mine       305       295       299       305       315       317       287
 reclamation fund.........................
Department of State: Immigration,              1,067       821       915     1,036     1,033     1,029     1,029
 passport, and consular fees..............
Department of the Treasury: Premiums,       ........  ........       116       327       554     1,336       773
 terrorism risk insurance program.........
Corps of Engineers: Harbor maintenance         1,262     1,353     1,446     1,556     1,685     1,825     1,969
 fees.....................................
Other.....................................       562       330       446       402       408       443       415
                                           ---------------------------------------------------------------------
  Subtotal, receipts......................     3,857     3,525     3,975     4,412     4,803     5,781     5,327

 Offsetting Collections and Receipts from
                the Public
Discretionary
  Department of Agriculture: Food safety         299       292       307       285       289       288       290
   inspection and other charges...........
  Department of Commerce: Patent and           1,929     2,050     2,209     2,334     2,509     2,770     3,029
   trademark, fees for weather services,
   and other charges......................
  Department of Defense: Commissary and       10,290    10,301    10,296    10,285    10,285    10,285    10,285
   other charges..........................
  Department of Energy: Federal Energy           998     1,601     1,548     1,486     1,499     1,492     1,484
   Regulation Commission, power marketing,
   and other charges......................
  Department of Health and Human Services:     1,329     1,501     1,398     1,247     1,256     1,250     1,246
   Food and Drug Administration, Centers
   for Medicare and Medicaid Services, and
   other charges..........................
  Department of Homeland Security: Border      2,474     2,258     2,486     2,551     2,636     2,724     2,815
   and Transportation Security and other
   charges................................
  Department of the Interior: Minerals           660       723       858       815       841       835       817
   Management Service and other charges...
  Department of Justice: Charges for             293       370       293       281       284       282       281
   bankruptcy oversight and other charges.
  Department of State: Passport and other      1,189     2,138     2,216     2,283     2,353     2,424     2,498
   charges................................
  Department of Transportation: Pipeline         158       161       221     8,763     9,064     9,606    10,167
   safety, aviation, and other charges....
  Department of the Treasury: Sale of          2,430     2,762     2,741     2,631     2,654     2,641     2,627
   commemorative coins and other charges..
  Department of Veterans Affairs: Medical      2,334     2,448     2,579     2,738     2,851     2,959     3,136
   care and other charges.................
  General Services Administration: Federal       155        82        42        40        41        40        40
   buildings fund and other charges.......
  Social Security Administration: State          119       135       145       159       184       166       193
   supplemental fees, supplemental
   security income........................
  Federal Communications Commission:             381       397       423       407       409       408       405
   Regulatory fees........................
  Federal Trade Commission: Regulatory           167       165       191       183       185       184       183
   fees...................................
  Nuclear Regulatory Commission:                 669       779       855       825       832       830       828
   Regulatory fees........................
  Securities and Exchange Commission:          1,539     1,147     1,332     1,280     1,291     1,286     1,280
   Regulatory fees........................
  All other agencies, discretionary user         783       330       170       162       163       162       159
   charges................................
                                           ---------------------------------------------------------------------
    Subtotal, discretionary user charges..    28,196    29,640    30,310    38,755    39,626    40,632    41,763

Mandatory
  Department of Agriculture: Crop              2,053     1,983     3,054     3,057     2,956     2,874     2,875
   insurance and other charges............
  Department of Defense: Commissary              992       816       779       599       601       558       558
   surcharge and other charges............
  Department of Energy: Proceeds from the      4,540     4,559     4,689     4,500     4,636     4,609     4,499
   sale of energy, nuclear waste disposal,
   and other charges......................
  Department of Health and Human Services:    55,017    59,325    62,187    64,196    67,302    71,418    77,408
   Medicare Part B and Part D insurance
   premiums and other charges.............
  Department of Homeland Security:             7,715     8,671     9,230     9,060     9,390     9,677     9,547
   Customs, immigration, and other charges
  Department of the Interior: Recreation       4,892     5,666     6,552     7,799     6,481     5,894     6,604
   and other charges......................
  Department of Justice: Federal Prison          508       528       570       584       597       611       625
   Commissary fees and other charges......
  Department of Labor: Insurance premiums      3,629     3,830     5,296     7,697     8,436     8,970     9,313
   to guaranty private pensions and other
   charges................................
  Department of the Treasury: Bank             1,077     1,137     1,197     1,242     1,284     1,329     1,376
   regulation, and other charges..........
  Department of Veterans Affairs: Veterans     2,374     2,342     2,220     2,222     2,194     2,224     2,220
   life insurance and other charges.......
  Office of Personnel Management: Federal     11,652    12,309    13,023    13,912    14,943    15,880    16,994
   employee health and life insurance fees
  Federal Deposit Insurance Corporation:         592     5,546     9,947    13,141    14,462    14,426    13,865
   Deposit insurance and other charges....
  National Credit Union Administration:          440       390       434       446       453       481       500
   Credit union share insurance and other
   charges................................
  Postal Service: Fees for postal services    73,891    76,961    78,322    80,395    82,784    84,822    86,254
  Tennessee Valley Authority: Proceeds         9,451    10,106    10,523    10,573    10,124    10,509    10,619
   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:           6,850       300       200       200       175       220       215
   Spectrum auction receipts..............
  Outer Continental Shelf receipts and         6,763    11,200    10,369    10,675    11,131    11,166    12,014
   other collections......................
  All other agencies, mandatory user           1,990       845     1,118     1,143     1,186     1,195     1,249
   charges................................
                                           ---------------------------------------------------------------------
    Subtotal, mandatory user charges......   201,276   218,314   221,768   238,445   239,139   247,869   256,741
                                           ---------------------------------------------------------------------
    Subtotal, user charges that are          229,472   247,954   252,078   277,200   278,765   288,501   298,504
     offsetting collections and receipts
     from the public......................
                                           ---------------------------------------------------------------------
TOTAL, User charges.......................   233,329   251,479   256,053   281,612   283,568   294,282   303,831
----------------------------------------------------------------------------------------------------------------


[[Page 275]]

and for Medicare premiums are the largest and are estimated to be more 
than half of total user charge
collections in 2009.

                       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 
2009, increasing to $19.7 billion in 2013. These amounts are collections 
and receipts only. They do not include related spending.

A. Discretionary User Charge Proposals

1. Offsetting collections

Department of Agriculture: Forest Service

   Fees for ecosystem services. The Budget reflects the President's 
commitment to cooperative conservation and includes Ecosystems Services 
Demonstration Projects that bring new partners together with the Forest 
Service in a broad effort to advance market-based conservation. The 
Budget provides the Secretary of Agriculture with the authority to 
retain the proceeds of payments made by willing entities such as 
municipalities for services derived from a particular set of management 
activities that restore, enhance, and protect ecosystem function on 
National Forest System lands. Examples of the outcomes of these 
management activities include protecting water quality, restoring long 
leaf pine forests, or reducing the risk of catastrophic wildfires.

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 2009 savings for these 
proposals is estimated to be $1,184 million.

Department of Health and Human Services: Food and Drug Administration 
(FDA)

   Drug review user fees for generic animal drugs. The purpose of the 
user fee is to improve review times of generic animal drug applications. 
The Budget proposes a new user fee to generate additional resources to 
support FDA generic animal drug review activities. The proposed generic 
drug user fee would be targeted to improve review times and reduce the 
current backlog of generic animal drug applications.
   Generic drug review activities fees. 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 current backlog of 
applications.
   Follow-on biologics user fees. The Budget proposes to establish a new 
regulatory pathway for FDA to approve follow-on biologics (FOB). FOBs 
are generic versions of therapies that contain proteins derived from 
living cells. The Administration proposal would protect patient safety, 
promote innovation, and include a financing structure to cover the costs 
of this activity through user fees. The 2009 Budget does not include 
user fee estimates.
   Animal drug user fee reauthorization. The Animal Drug User Fee Act 
will expire on October 1, 2008. This law authorizes FDA to assess and 
collect fees associated with the pre-market review of animal drugs. The 
Administration supports reauthorizing the collection and spending of 
these fees.

Centers for Medicare and Medicaid Services

   Survey and certification user fees. The Budget proposes a 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.

Department of the Interior

   Bureau of Land Management: 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 user fees for the mandatory funding provided by the Act. 
The proposed fees are expected to generate at least $34 million per year 
beginning in 2009, thereby reducing the cost to taxpayers for operating 
a program that benefits specific users. Notwithstanding the fee 
prohibition, a comparable oil and gas permitting fee was enacted as part 
of the 2008 Consolidated Appropriations Act, but this fee is only in 
place for fiscal year 2008. The Administration is proposing a more 
permanent solution through a repeal of the Energy Policy Act fee 
prohibition.

[[Page 276]]



                            Table 18-3.  USER FEE AND OTHER USER CHARGE PROPOSALS \1\
                                 (Estimated collections in millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                   2008     2009     2010     2011     2012     2013   2009-2013
----------------------------------------------------------------------------------------------------------------


      OFFSETTING COLLECTIONS AND RECEIPTS

DISCRETIONARY:

1. Offsetting collections

Department of Agriculture
  Forest Service: Fees for ecosystem services..  .......       10  .......  .......  .......  .......        10

Department of Defense
  Medical care enrollment fees and deductible..  .......    1,184    2,598    3,703    4,043    4,397    15,925

Department of Health and Human Services
  Food and Drug Administration:
    Drug review user fees for generic animal     .......        5        5        5        5        5        25
     drugs.....................................
    Generic drug review activities fees........  .......       17       17       17       17       17        84
    Follow-on biologics user fees..............  .......  .......  .......  .......  .......  .......  .........
    Animal drug user fee reauthorization.......  .......       14       14       14       14       15        70
  Centers for Medicare and Medicaid Services:    .......       35       34       34       34       34       171
   Survey and certification user fees..........

Department of the Interior
  Bureau of Land Management: Repeal Energy Act   .......       34       34       34       34       34       170
   fee prohibition.............................

Department of Transportation
  Federal Aviation Administration: User fee      .......  .......    8,550    8,849    9,392    9,953    36,744
   proposal....................................

2. Offsetting receipts

Department of Housing and Urban Development
  Office of Federal Housing Enterprise           .......      -67      -64      -65      -65      -70      -331
   Oversight...................................
                                                ----------------------------------------------------------------
      Subtotal, discretionary user charge        .......    1,232   11,187   12,590   13,473   14,384    52,867
       proposals...............................

MANDATORY:

1. Offsetting collections

Department of Labor
  Pension Benefit Guaranty Corporation premiums  .......      380    2,217    2,093    2,127    2,056     8,873

Federal Housing Enterprise Regulator
  Government-Sponsored Enterprises regulatory    .......      107      110      113      116      119       565
   fee.........................................

Federal Housing Finance Board
  Federal Home Loan Bank fees..................  .......      -38      -40      -41      -43      -43      -205

2. Offsetting receipts

Department of Agriculture
  Food Safety and Inspection Service user fees   .......       96       98      100      102      104       500
   \2\.........................................
  Grain, Inspection, Packers, and Stockyards     .......       27       30       30       31       32       150
   Administration user fees \2\................
  Animal and Plant Health Inspection Service     .......       20       27       27       28       29       131
   user fees \2\...............................
  Agricultural Marketing Service inspection and  .......       10       10       10       10       10        50
   grading services............................
  Federal crop insurance fees \2\..............  .......  .......       15       15       15       15        60

Department of Health and Human Services
  Food and Drug Administration: Re-inspection    .......       27       28       28       29       30       142
   fees and export certification fees \2\......
  Centers for Medicare and Medicaid: Additional  .......      410      730    1,000    1,320    1,720     5,180
   Medicare premiums...........................

Department of Homeland Security
  Passenger security fee surcharge to fund       .......      426      426      426      426  .......     1,704
   baggage screening systems...................

Department of Housing and Urban Development
  Government-Sponsored Enterprises oversight     .......        6        6        6        6        6        30
   fees........................................

Department of the Interior
  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
  Require upfront payment of coal bonus bid
   receipts:
    Collections for payment to States..........  .......      385      676      -48     -506     -225       282
    Collections deposited in the Treasury......  .......      385      676      -48     -506     -225       282
  Amend Bureau of Land Management's Federal      .......        5       10       50       50       55       170
   land sale authority.........................

Department of Labor
  Foreign labor certification fees.............  .......       95       95       95       95       95       475

Department of Veterans Affairs
  Pharmacy co-pay increase \2\.................  .......      335      292      287      334      355     1,603
  Income-based medical care enrollment fees \2\  .......  .......      129      127      130      128       514
  Third-party insurance co-payment offset \2\..  .......       44       44       44       43       43       218

Corps of Engineers--Civil Works
  Additional recreation fees...................  .......        9       17       17       17       17        77

Environmental Protection Agency
  Pesticide user fees \2\......................  .......       48       48       47       47       59       249
  Pre-manufacture notice user fees \2\.........  .......        4        8        8        8        8        36


[[Page 277]]


Commodity Futures Trading Commission
  Transaction fees \2\.........................  .......       96      100      103      107      111       517

Federal Communications Commission
  Spectrum license fee authority...............       50      150      300      300      400      450     1,600
  Prospective ancillary terrestrial component         30       60      100      125      125      125       535
   spectrum license fees.......................
  Extend spectrum auction authority............  .......  .......  .......  .......      200      200       400
  Domestic satellite spectrum auctions.........      250      100      100       75       20       15       310
                                                ----------------------------------------------------------------
    Subtotal, mandatory user charge proposals..      330    3,187   13,256    4,993    5,737    5,295    32,468
                                                ----------------------------------------------------------------
    Subtotal, user charge proposals that are         330    4,419   24,443   17,583   19,210   19,679    85,335
     offsetting collections and receipts.......


             GOVERNMENTAL RECEIPTS

Department of the Interior
  Migratory bird hunting and conservation        .......       14       14       14       14       14        70
   stamps......................................

Department of Transportation
  Federal Aviation Administration overflight     .......  .......      -54      -56      -58      -60      -228
   fees........................................

Corps of Engineers--Civil Works
  Inland waterways trust fund (net impact).....  .......       99      103      104      136      103       545
                                                ----------------------------------------------------------------
    Subtotal, governmental receipts user charge  .......      113       63       62       92       57       387
     proposals.................................
                                                ----------------------------------------------------------------

Total, user charge proposals...................      330    4,532   24,506   17,645   19,302   19,736    85,722
----------------------------------------------------------------------------------------------------------------
\1\ A negative sign indicates a decrease in collections.
\2\ If enacted, the Administration will work to classify the collections as discretionary offsets beginning in
  2010.


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 
$11.5 billion in 2007, is largely based on taxes on the price of airline 
tickets. This system does not have a direct relationship between the 
taxes paid by users and the air traffic control services provided by the 
FAA. Under the reauthorization proposal, FAA would collect user fees 
from commercial aviation operators for air traffic control (ATC) 
services. Implementing user fees for ATC services creates 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 2010, and estimates 
FAA will collect $8.6 billion in user fees during the first year.

2. Offsetting receipts

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.

B. Mandatory User Charge Proposals

1. Offsetting collections

Department of Labor

   Pension Benefit Guaranty Corporation (PBGC) premiums. While the 
Deficit Reduction Act of 2005 and the Pension Protection Act of 2006 
made significant structural changes to the retirement system, they did 
not fully address the long-term challenges facing PBGC. Further reforms 
are needed to address the current $14 billion gap between PBGC's 
liabilities and its assets. The Budget proposes to give PBGC's Board the 
authority to raise premiums to produce the revenue necessary to meet 
expected future claims and retire PBGC's deficit over ten years. Under 
this proposal, PBGC's Board would have the flexibility to make a broad 
range of changes to premiums in order to improve PBGC's financial 
condition and safeguard the future benefits of American workers. The 
Administration is committed to restoring the solvency of the pension 
insurance system and avoiding a future taxpayer bailout.

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.


[[Page 278]]


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 do not try to completely offset a specific 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, and for individuals or companies who need a license 
to market a veterinary biologic and for permits for biotechnologically 
derived products.
   Agricultural Marketing Service (AMS) inspection and grading services. 
Country of Origin Labeling (COOL) becomes mandatory for all covered 
commodities on September 30, 2008. Currently, AMS operates a small COOL 
enforcement program for fish and shellfish compliance (the only 
commodities where labeling is now required). As part of the 2009 Budget, 
the agency will propose to charge a mandatory fee for the full 
implementation of a complete COOL enforcement program for the following 
commodities, in addition to the current fish and shellfish items: muscle 
cuts of beef (including veal), lamb, and pork; ground beef, ground lamb 
and ground pork; perishable agricultural commodities; and peanuts. 
Additional commodities may also be considered. The additional funds will 
be deposited into the agency's existing trust account.
   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.

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. In order to 
increase beneficiary knowledge about health care choices and costs, the 
Budget proposes to encourage greater individual responsibility for 
health care use and costs for high-income beneficiaries who are most 
able to contribute to the costs of their coverage.

Department of Homeland Security

   Passenger security fee surcharge to fund baggage screening systems. 
The President's Budget proposes a temporary, four-year surcharge on the 
passenger security fee of $0.50 per enplanement with a maximum increase 
of $1.00 per one-way trip. The additional fee collections of an 
estimated $426 million per year would be deposited in the Aviation 
Security Capital Fund to recapitalize checked baggage screening devices 
deployed immediately after September 11, 2001, and accelerate deployment 
of inline systems that will increase baggage throughput up to 300 
percent.

Department of Housing and Urban Development (HUD)

   Government-Sponsored Enterprises (GSE) oversight fees. 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

[[Page 279]]

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

   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 billion and 16 billion barrels. The Budget assumes that 
the first oil and gas lease sale would be held in 2010 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.
   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, it would require the full payment to be made 
in the sale year, increasing near-term revenues, but reducing revenues 
in later years when deferred payments under the current system would 
otherwise be collected. Fifty percent of coal bonus bid revenues are 
currently provided to the States, so the proposal would have an 
identical impact on state revenues.
  Amend Bureau of Land Management's (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 the net proceeds 
from these sales to the Treasury; and (4) cap Department of the Interior 
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.

Department of Labor

  Foreign labor certification fees. The 2009 Budget proposes legislation 
to establish cost-based user fees for new applications under the 
permanent and H-2B temporary foreign labor certification programs, and 
proposes legislation to allow the Department to retain fees for 
applications under the H-2A temporary labor certification program and 
modify the fee to cover program costs. The fees would offset the State 
and Federal costs of administering these programs, and once fully 
implemented would eliminate the need for appropriations for this 
purpose. Upon enactment of the fee, requests for funding in the Foreign 
Labor Certification administration account would be adjusted 
accordingly.

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 $379 million in estimated receipts for 2009.

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 $300 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 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 2012. The Administration proposes to

[[Page 280]]

eliminate the prohibition and collect the tolerance fee in 2009. 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 proposed 
increase in maintenance fees 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 fee 
on the settlement of contracts on commodity futures, options on futures, 
and other transactions cleared by derivatives clearing organizations. 
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 $96 million in 2009. Similar 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 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 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 
estimated to begin in 2008, and total $4.1 billion through 2018.
   Prospective ancillary terrestrial component spectrum license fees. 
The Administration proposes legislation to improve the management of 
hybrid terrestrial - satellite mobile communications spectrum licenses 
by setting a fee on the terrestrial authority of these integrated 
networks. Under current policy, these licenses are granted free of 
charge, though providers will compete with terrestrial wireless carriers 
that have purchased licenses at auction. Setting a fee on the Ancillary 
Terrestrial Component of Mobile Satellite Service licenses will help to 
ensure that the radio spectrum is put to its most highly valued use by 
promoting consideration of the economic value of the spectrum, provide 
incentive for timely and robust network development, and improve equity 
relative to service providers that purchase their spectrum licenses in 
auctions. Receipts associated with this policy are estimated to begin in 
2008, and total $1.2 billion through 2018.
   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 
$1.4 billion through 2018.
   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 
Federal Communications Commission will be restored. Auction receipts 
associated with this clarification are estimated to begin in 2008, and 
total $593 million through 2018.

C. User Charge Proposals that are Governmental Receipts

Department of the Interior

   Migratory bird hunting and conservation stamps. Federal migratory 
bird hunting and conservation stamps, commonly know as ``Duck Stamps,'' 
were originally created in 1934 as the Federal licenses required for 
hunting migratory waterfowl. Today, ninety-eight percent of the receipts 
generated from the sale of these stamps ($15 per stamp per year) are 
used to acquire important migratory bird breeding areas, migration 
resting places, and wintering areas. The land and water interests 
located and acquired with the Duck Stamp funds establish or add to 
existing migratory bird refuges and waterfowl production areas. The 
price of the Duck Stamp has not increased since 1991; however, the cost 
of land and water has increased significantly over the past 16 years. 
The Administration proposes to increase these fees to $25 per stamp per 
year, effective beginning in 2009.

Department of Transportation: Federal Aviation Administration

   Overflight fees. This proposed change is part of the Department of 
Transportation proposal discussed above for Federal Aviation 
Administration user fees.

Corps of Engineers--Civil Works

  Inland waterways trust fund (net impact). Commercial barges that use 
the inland waterways now pay an excise tax of 20 cents per gallon on 
diesel fuel, which is deposited in the Inland Waterways Trust Fund. The 
tax does not raise enough revenue to cover the required 50 percent non-
Federal share of the costs

[[Page 281]]

that the Army Corps of Engineers is spending to construct, replace, 
expand, and rehabilitate the locks and dams and other features that make 
barge transportation possible on the inland waterways. To address this 
imbalance between receipts and expenditures, the Administration proposes 
to phase out the current excise tax for inland waterways users and 
replace it with a more efficient user fee tied to the level of spending 
for inland waterways construction, replacement, expansion, and 
rehabilitation work.

                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 $330.2 billion in 2009. Of these, an 
estimated $183.3 billion are offsetting collections credited to 
expenditure accounts and an estimated $146.9 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 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 $782.1 billion in 2009: 
$635.2 billion are intragovernmental transactions; and $146.9 billion 
are from the public. The $146.9 billion in offsetting receipts from the 
public consist of proprietary receipts from the public ($136.6 billion) 
and offsetting governmental receipts ($10.4 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.

[[Page 282]]



    Table 18-4.  OFFSETTING COLLECTIONS AND RECEIPTS FROM THE PUBLIC
                        (In billions of dollars)
------------------------------------------------------------------------
                                                       Estimate
                                    Actual   ---------------------------
                                     2007         2008          2009
------------------------------------------------------------------------
Offsetting collections (credited
 to expenditure accounts):
  User charges:
    Postal service stamps and           73.9          77.0          78.3
     other postal fees (off-
     budget)....................
    Defense Commissary Agency...         5.5           5.5           5.6
    Employee contributions for           9.4           9.9          10.6
     employees and retired
     employees health benefits
     funds......................
    Sale of energy:
      Tennessee Valley Authority         9.5          10.1          10.5
      Bonneville Power                   3.3           3.2           3.5
       Administration...........
    All other user charges......        36.4          41.5          48.8
                                 ---------------------------------------
      Subtotal, user charges....       138.0         147.2         157.2
  Other collections credited to
   expenditure accounts:
    Commodity Credit Corporation        11.5          11.8          10.9
     fund.......................
    Supplemental security income         4.3           4.5           4.7
     (collections from the
     States)....................
    Other collections...........        12.4          10.4          10.5
                                 ---------------------------------------
      Subtotal, other                   28.3          26.6          26.1
       collections..............
                                 ---------------------------------------
    Subtotal, offsetting               166.3         173.9         183.3
     collections................

Offsetting receipts (deposited
 in receipt accounts):
  User charges:
    Medicare premiums...........        50.3          54.4          57.1
    Outer Continental Shelf              6.8          11.1          10.2
     rents, bonuses, and
     royalties..................
    All other user charges......        34.4          35.2          27.6
                                 ---------------------------------------
      Subtotal, user charges            91.5         100.7          94.9
       deposited in receipt
       accounts.................
  Other collections deposited in
   receipt accounts:
    Military assistance program         15.8          15.5          15.0
     sales......................
    Interest income.............        16.0          16.9          15.8
    All other collections               31.1          31.4          21.2
     deposited in receipt
     accounts...................
                                 ---------------------------------------
      Subtotal, other                   62.9          63.8          52.0
       collections deposited in
       receipt accounts.........
                                 ---------------------------------------
  Subtotal, offsetting receipts.       154.4         164.5         146.9
                                 ---------------------------------------
Total, offsetting collections          320.7         338.4         330.2
 and receipts from the public...

Total, offsetting collections          246.7         261.3         251.8
 and receipts excluding off-
 budget.........................

ADDENDUM:

  User charges that are                229.5         248.0         252.1
   offsetting collections and
   receipts \1\.................
  Other offsetting collections          91.2          90.4          78.1
   and receipts from the public.
                                 ---------------------------------------
    Total, offsetting                  320.7         338.4         330.2
     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 283]]



                                     Table 18-5. OFFSETTING RECEIPTS BY TYPE
                                            (In millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                         Estimate
           Source                2007    -----------------------------------------------------------------------
                                Actual       2008        2009        2010        2011        2012        2013
----------------------------------------------------------------------------------------------------------------
      INTRAGOVERNMENTAL
        TRANSACTIONS:
On-budget receipts:
  Federal intrafund
   transactions:
    Distributed by agency:
      Interest from the              737         699         858       1,110       1,299       1,544       1,721
       Federal Financing
       Bank.................
        Proposed Legislation  ..........  ..........         -15         -62        -143        -251        -385
         (Non-PAYGO)........
      Interest on Government       1,957       1,455       1,529         752         775         803         835
       capital in
       enterprises..........
      Interest received by           191         165         175         186         201         220         240
       retirement and health
       benefits funds.......
      General fund payments
       to retirement and
       health benefits
       funds:
          Employees health         5,400       5,600       5,400       5,500       5,500       5,600       5,600
           benefits fund....
          DOD retiree health      19,653      17,734      19,175      20,767      22,542      24,471      26,536
           care fund........
          Miscellaneous              345         357         423         520         483         485         468
           Federal
           retirement funds.
          Other.............       6,931       4,378       4,860       5,380       5,869       6,032       6,721
    Undistributed by agency:
      Employing agency
       contributions
          DOD retiree health      11,548      11,496      10,676      12,919      13,810      14,720      15,636
           care fund........
                             -----------------------------------------------------------------------------------
  Subtotal, Federal               46,762      41,884      43,081      47,072      50,336      53,624      57,372
   intrafund transactions...
  Trust intrafund
   transactions:
    Distributed by agency:
          Payment to               5,411       5,388       5,590       5,928       6,300       6,201       6,593
           railroad
           retirement (from
           off-budget)......
          Other.............           1           1           6           6           6           6           6
                             -----------------------------------------------------------------------------------

  Subtotal, Trust intrafund        5,412       5,389       5,596       5,934       6,306       6,207       6,599
   transactions.............
                             -----------------------------------------------------------------------------------

Subtotal, intrafund               52,174      47,273      48,677      53,006      56,642      59,831      63,971
 transactions...............

  Interfund transactions:
    Distributed by agency:
      Federal fund payments
       to trust funds:
        Contributions to
         insurance programs:
          Military                26,048      46,187      47,919      49,717      51,581      53,515      55,523
           retirement fund..
          Supplementary          179,183     181,032     193,263     202,304     219,366     227,564     254,325
           medical insurance
            Proposed          ..........  ..........      -1,804      -3,625      -5,331      -6,955      -8,615
             Legislation
             (Non-PAYGO)....
          Hospital insurance      11,355      13,273      16,244      16,933      18,225      19,677      21,937
          Railroad social            131         140         164         174         186         203         223
           security
           equivalent
           benefit fund.....
          Rail industry              329         306         339         352         365         379         392
           pension fund.....
          Civilian                31,303      30,531      31,310      32,110      32,699      33,499      34,501
           supplementary
           retirement
           contributions....
          Unemployment               756         750         786         802         933         884         848
           insurance........
          Other                      850         937         895         899         863         842         829
           contributions....
        Other payments:
          Miscellaneous            1,506       1,433       1,537       1,468       1,470       1,461       1,453
           payments.........
            Proposed          ..........  ..........       2,710  ..........  ..........  ..........  ..........
             Legislation
             (Non-PAYGO)....
        Trust fund payments
         to Federal funds
          Other.............      18,825       1,858       1,900       1,958       2,007       2,067       2,117
            Proposed          ..........  ..........       2,288        -411        -398        -392        -388
             Legislation
             (Non-PAYGO)....
      Undistributed by
       agency:
        Employer share,
         employee retirement
         (on-budget):
          Civil service           14,480      14,664      15,955      17,392      19,017      20,694      22,957
           retirement and
           disablity
           insurance........
            Proposed          ..........  ..........           2           8          15          23          31
             Legislation
             (Non-PAYGO)....
          CSRDI from Postal        2,883       3,600       3,865       4,144       4,434       4,736       5,048
           Service..........
          Hospital insurance       2,826       2,931       3,007       3,105       3,254       3,340       3,505
           (contribution as
           employer)........
          Postal Service             712         767         799         835         874         916         959
           contributions to
           FHI..............
          Military                16,817      17,702      19,523      19,841      20,583      21,388      22,092
           retirement fund..
          Other federal              210         195         197         200         202         204         207
           employees
           retirements......
          Interest received       71,964      83,527      86,957      88,706      92,369      95,699      99,835
           by on-budget
           trust funds......
            Proposed          ..........  ..........         122         610       1,716       3,423       5,524
             Legislation
             (Non-PAYGO)....
                             -----------------------------------------------------------------------------------
  Subtotal, Interfund            380,178     399,833     427,978     437,522     464,430     483,167     523,303
   transactions.............
                             -----------------------------------------------------------------------------------
Subtotal, On-budget receipts     432,352     447,106     476,655     490,528     521,072     542,998     587,274


[[Page 284]]


Off-budget receipts:
  Interfund transactions:
    Distributed by agency:
      Federal fund payments
       to trust funds:
          Old-age, survivors      19,325      18,725      22,887      25,326      27,484      30,251      33,622
           and disablitity,
           insurance........
    Undistributed by agency:
      Employer share,             12,299      13,087      13,784      14,551      15,543      16,281      17,317
       employee retirement
       (off-budget).........
      Interest received by       106,003     114,311     121,864     131,441     142,233     154,719     167,659
       off-budget trust
       funds................
        Proposed Legislation  ..........  ..........  ..........  ..........  ..........  ..........        -397
         (Non-PAYGO)........
        Proposed Legislation  ..........  ..........         -14         -52         -62         -68         -67
         (PAYGO)............
                             -----------------------------------------------------------------------------------
Subtotal, Off-budget             137,627     146,123     158,521     171,266     185,198     201,183     218,134
 receipts...................
                             -----------------------------------------------------------------------------------
Subtotal, Intragovernmental      569,979     593,229     635,176     661,794     706,270     744,181     805,408
 Transactions...............
                             ===================================================================================
    PROPRIETARY RECEIPTS:
Distributed by agency:
  Interest and dividends:
    Interest on foreign              190         107         107         107         107         107         107
     loans and deferred
     foreign collections....
    Interest on deposits and       1,174       1,026         866         901         928         930         930
     loan accounts..........
      Proposed Legislation    ..........  ..........          10          10          10          10          10
       (PAYGO)..............
    Other interest..........      10,394      12,799      13,420      14,226      15,195      16,197      17,225
  Dividends and other              4,248       2,953       1,436       1,487       1,524       1,525       1,513
   earnings.................
                             -----------------------------------------------------------------------------------
  Subtotal, Interest and          16,006      16,885      15,839      16,731      17,764      18,769      19,785
   dividends................
  Royalties and rents:
    Royalties and rents.....       4,129       4,665       4,836       5,333       5,614       5,904       6,011
      Proposed Legislation    ..........  ..........         719       1,304        -146      -1,061        -501
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
  Subtotal, Royalties and          4,129       4,665       5,555       6,637       5,468       4,843       5,510
   rents....................
  Sale of products:
    Sale of timber and other         162         250         230         237         247         272         298
     natural land products..
    Sale of minerals and              56         159          86          89          94          96         100
     mineral products.......
    Sale of power and other          648         697         627         675         630         622         648
     utilities..............
      Proposed Legislation    ..........  ..........          17         207          17          17          17
       (PAYGO)..............
    Other...................          98         121         115         102         122         119         105
      Proposed Legislation    ..........  ..........          -8          -8          -8          -8          -8
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
  Subtotal, Sale of products         964       1,227       1,067       1,302       1,102       1,118       1,160
  Fees and other charges for
   services and special
   benefits:
    Medicare premiums and         50,273      54,401      57,098      59,054      62,167      66,199      72,035
     other charges..........
      Proposed Legislation    ..........  ..........         -13        -115        -272        -339        -286
       (PAYGO)..............
    Nuclear waste displosal          754         766         764         764         767         769         771
     revenues...............
    Veterans life insurance          139         127         118         108          99          89          77
     (trust funds)..........
    Other services and            11,465      11,196      11,634      12,164      12,807      13,476      14,349
     special benefits.......
      Proposed Legislation    ..........  ..........          34          34          34          34          34
       (Non-PAYGO)..........
      Proposed Legislation    ..........  ..........         692         824         826         883         904
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
  Subtotal, Fees and other        62,631      66,490      70,327      72,833      76,428      81,111      87,884
   charges for services and
   special benefits.........
  Sale of Government
   property:
    Military assistance           15,833      15,508      15,011      12,462      12,687      12,915      13,147
     program sales (trust
     funds).................
    Sale of land and other           146         298         242         387         193         200         207
     real property..........
      Proposed Legislation    ..........  ..........         -15         -13          20          20          21
       (PAYGO)..............
    Other sales of                   204         220         232         130         131         115         115
     government property....
                             -----------------------------------------------------------------------------------
  Subtotal, Sale of               16,183      16,026      15,470      12,966      13,031      13,250      13,490
   Government property......
  Realization upon loans and
   investments:
    Negative and downward         12,827      12,882       1,195         891         870         833         903
     reestimates............
      Proposed Legislation    ..........  ..........        -462        -444        -447        -445        -443
       (Non-PAYGO)..........
      Proposed Legislation    ..........  ..........       1,591           6           1           1           1
       (PAYGO)..............
    Other realization upon            72          63          76          76          76          76          76
     loans and investments..
                             -----------------------------------------------------------------------------------
  Subtotal, Realization upon      12,899      12,945       2,400         529         500         465         537
   loans and investments....


[[Page 285]]


  Recoveries and refunds:
    Recoveries and refunds..      13,104      13,698      13,854      14,396      14,424      14,920      15,369
      Proposed Legislation    ..........  ..........  ..........          67         140         146         151
       (Non-PAYGO)..........
      Proposed Legislation    ..........  ..........           1         477         517         378         386
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
  Subtotal, Recoveries and        13,104      13,698      13,855      14,940      15,081      15,444      15,906
   refunds..................
  Miscellaneous receipt
   accounts:
    Miscellaneous receipt          1,500       1,822       1,864       1,876       1,889       1,901       1,913
     accounts...............
      Proposed Legislation    ..........  ..........          14          14          14          14          14
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
  Subtotal, Miscellaneous          1,500       1,822       1,878       1,890       1,903       1,915       1,927
   receipt accounts.........
                             -----------------------------------------------------------------------------------
Subtotal, Distributed by         127,416     133,758     126,391     127,828     131,277     136,915     146,199
 agency.....................
Undistributed by agency:
    Outer Continental Shelf            1  ..........  ..........  ..........  ..........  ..........  ..........
     escrow account.........
    Outer Continental Shelf          694       4,762       1,437         955         662         616         532
     rents and bonuses......
    Outer Continental Shelf        6,069       6,358       8,672       9,270       9,994       9,652      10,857
     royalties..............
      Proposed Legislation    ..........  ..........          50          50          50          50          50
       (PAYGO)..............
    Artic National Wildlife   ..........  ..........  ..........       7,004           4       1,006           6
     Refuge--Proposed
     Legislation (PAYGO)....
    Sale of major assets....  ..........  ..........  ..........  ..........  ..........         323  ..........
    Other undistributed            6,850  ..........  ..........  ..........  ..........  ..........  ..........
     offsetting receipts....
                             -----------------------------------------------------------------------------------
Subtotal, Undistributed by        13,614      11,120      10,159      17,279      10,710      11,647      11,445
 agency.....................
                             -----------------------------------------------------------------------------------
Subtotal, Proprietary            141,030     144,878     136,550     145,107     143,987     148,562     157,644
 Receipts...................
                             ===================================================================================
   OFFSETTING GOVERNMENTAL
          RECEIPTS:
Distributed by agency:
    Regulatory Fees.........       6,365       7,301       7,281       7,423       7,630       7,768       7,918
      Proposed Legislation    ..........  ..........         -67         -64         -65         -65         -70
       (Non-PAYGO)..........
      Proposed Legislation    ..........  ..........         521         521         521         521          95
       (PAYGO)..............
    Other...................         164         124         134         144         131         132         134
      Proposed Legislation    ..........  ..........          27          28          28          29          30
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
Subtotal, Distributed by           6,529       7,425       7,896       8,052       8,245       8,385       8,107
 agency.....................
Undistributed by agency:
    Spectrum auction               6,850      11,850       2,158         100         100  ..........  ..........
     proceeds...............
      Proposed Legislation    ..........         330         310         500         500         745         790
       (PAYGO)..............
                             -----------------------------------------------------------------------------------
Subtotal, Undistributed by         6,850      12,180       2,468         600         600         745         790
 agency.....................
                             -----------------------------------------------------------------------------------
Subtotal, Offsetting              13,379      19,605      10,364       8,652       8,845       9,130       8,897
 Governmental Receipts......
                             -----------------------------------------------------------------------------------
Total offsetting receipts...     724,388     757,712     782,090     815,553     857,102     901,873     971,949
----------------------------------------------------------------------------------------------------------------