[Congressional Record Volume 144, Number 129 (Thursday, September 24, 1998)]
[Senate]
[Pages S10886-S10889]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]




 WENDELL H. FORD NATIONAL AIR TRANSPORTATION SYSTEM IMPROVEMENT ACT OF 
                                  1998

  The Senate continued with the consideration of the bill.


                           Amendment No. 3631

  (Purpose: To express the sense of the Senate that the Secretary of 
   Transportation should ensure the enforcement of the rights of the 
United States under the air service agreement between the United States 
     and the United Kingdom known as the ``Bermuda II Agreement'')

  Mr. McCAIN. Mr. President, I have an amendment at the desk for Mr. 
Faircloth, Mr. Hollings and Mr. Helms.
  The PRESIDING OFFICER. The clerk will report.
  The legislative clerk read as follows:

       The Senator from Arizona (Mr. McCain), for Mr. Faircloth, 
     for himself, Mr. Hollings, and Mr. Helms, proposes an 
     amendment numbered 3631.

  Mr. McCAIN. Mr. President, I ask unanimous consent that reading of 
the amendment be dispensed with.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  (The text of the amendment is printed in today's Record under 
``Amendments Submitted.'')
  Mr. FAIRCLOTH. Mr. President, this Sense of the Senate resolution 
puts the Senate on record about a transportation issue in the largest 
city in my State.
  The failure of this Administration to stand up for American carriers 
under our air services agreements with foreign governments is a serious 
issue. The unwillingness of this Administration to stand up for 
American interests undercuts our international position in critical 
negotiations and promotes intransigence amongst other parties to these 
negotiations.
  Specifically, Mr. President, this Administration has not fought to 
enforce the rights of American citizens, American communities, and 
American air carriers.
  Under the existing air services agreement between the United States 
and the United Kingdom, the so-called Bermuda II agreement, the United 
States has the right to designate a U.S. flag carrier to serve the 
Charlotte-London route.
  On February 20, 1998, the U.S. Department of Transportation awarded 
this route to US Airways. US Airways announced its plans to launch 
nonstop service on May 7, 1998 and to compete with British Airways' 
monopoly on this route.
  With its network at Charlotte, US Airways was prepared to offer 
convenient one-stop service to the United Kingdom from dozens of cities 
in North Carolina, South Carolina, and the surrounding area.
  However, the government of the United Kingdom failed to provide US 
Airways with commercially viable landing and take-off rights at Gatwick 
Airport, London's secondary airport.
  The Bermuda II agreement prohibits US Airways from serving Heathrow 
Airport at all. Only two U.S. carriers are allowed to serve Heathrow. I 
want to remind my colleagues that the British are blocking access not 
to the primary airport, Heathrow, but even to the secondary airport, 
Gatwick.
  Yes, Mr. President, the British Government refused to facilitate 
access to its secondary airport for a competitor to the British Airways 
monopoly on the Charlotte-London route.
  US Airways tried to obtain landing and take-off rights at Gatwick 
airport. The British refuse to budge. As a result, US Airways was 
forced to cancel its Charlotte-London service for the

[[Page S10887]]

high-peak summer of 1998 and for the winter of 1998-1999 as well.
  The outrage is that not only was British Airways' monopoly at 
Charlotte preserved, but the Department of Transportation granted 
British Airways yet another monopoly route--between London and Denver.
  That's right, while the British refused to comply with their Bermuda 
II obligations, our Department of Transportation gave them another 
monopoly route.
  While the US Airways Charlotte flight remains grounded, and while the 
British thumb their noses at us, British Airways now has a monopoly on 
ten routes between the U.S. and the U.K.
  This Sense of the Senate urges the U.S. Government, especially the 
U.S. Secretary of Transportation, to act to enforce U.S. rights under 
the Bermuda II agreement.
  Our government seems willing to grant foreign carriers the right to 
serve our airports on a monopoly basis but unwilling to take a firm 
stand with foreign governments.
  We need the Administration to ensure that our carriers have the right 
to serve our citizens and enforce their rights under international law.
  We hear a lot of talk from the Administration these days about ``Open 
Skies'' with the U.K. We understand that negotiations are about to 
begin to achieve a more competitive marketplace.
  It is critical, however, that the Secretary of Transportation first 
ensure that existing rights are enforced for the benefit of U.S. 
citizens.
  The people of the Southeast have been denied the benefits of 
competitive service by a U.S. flag carrier to the U.K.
  Surely, an Administration that refuses to enforce existing rights 
cannot possibly negotiate an agreement that is less than a full 
surrender to the British. We didn't surrender in 1776 and we will not 
surrender now.
  Mr. HOLLINGS. Mr. President, I want to thank the Chairman and Senator 
Ford for their support on this issue. This is a simple matter of 
fairness and equity. The unreasonable and anticompetitive conduct of 
the United Kingdom has gone on far too long and exacted an unacceptable 
toll on the Carolinas.
  Mr. President, the Secretary awarded the Charlotte-London (Gatwick) 
route to US Airways on September 12, 1997. On May 7, 1998, US Airways 
announced plans to launch nonstop service in competition with British 
Airways, providing a convenient one-stop service from dozens of cities 
in North and South Carolina. Unfortunately, US Airways was forced to 
cancel this service because of the UK refusal to provide commercially 
viable access to Gatwick.
  It is now time for the Secretary to assert our rights and enforce the 
Bermuda II Agreement.
  Mr. President, before the Secretary enters into negotiations on a new 
broad bilateral agreement, equity dictates that the Secretary must 
resolve this issue.
  Mr. McCAIN. Mr. President, this sense-of-the-Senate amendment is 
agreeable on both sides. I urge its adoption.
  The PRESIDING OFFICER. Without objection, the amendment is agreed to.
  The amendment (No. 3631) was agreed to.
  Mr. McCAIN. Mr. President, I move to reconsider the vote.
  Mr. FORD. I move to lay that motion on the table.
  The motion to lay on the table was agreed to.


                           Amendment No. 3632

  (Purpose: To express the sense of the Senate that the Secretary of 
   Transportation should ensure the enforcement of the rights of the 
United States under the air service agreement between the United States 
     and the United Kingdom known as the ``Bermuda II Agreement'')

  Mr. McCAIN. Mr. President, I send an amendment on behalf of Mr. 
DeWine to the desk.
  The PRESIDING OFFICER. The clerk will report.
  The legislative clerk read as follows:

       The Senator from Arizona (Mr. McCain), for Mr. DeWine 
     proposes an amendment numbered 3632.

  Mr. McCAIN. Mr. President, I ask unanimous consent that reading of 
the amendment be dispensed with.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  (The text of the amendment is printed in today's Record under 
``Amendments Submitted.'')
  Mr. McCAIN. Mr. President, this amendment has been examined on both 
sides. I don't believe there is further debate.
  I yield the floor.
  Mr. FORD. Mr. President, I have no objection on this side. This side 
has no objection. We are perfectly willing to let the amendment go 
forward.
  The PRESIDING OFFICER. Without objection, the amendment is agreed to.
  The amendment (No. 3632) was agreed to.
  Mr. McCAIN. Mr. President, I move to reconsider the vote.
  Mr. FORD. I move to lay that motion on the table.
  The motion to lay on the table was agreed to.


                           Amendment No. 3633

(Purpose: To provide for criminal penalties for pilots operating in air 
            transportation without an airman's certificate)

  Mr. McCAIN. Mr. President, I send an amendment to the desk on behalf 
of Mr. Thompson and myself.
  The PRESIDING OFFICER. The clerk will report.
  The legislative clerk read as follows:

       The Senator from Arizona (Mr. McCain), for Mr. Thompson, 
     proposes an amendment numbered 3633.

  Mr. McCAIN. Mr. President, I ask unanimous consent that reading of 
the amendment be dispensed with.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The amendment is as follows:

       At the appropriate place in title III, insert the 
     following:

     SEC. 3  . CRIMINAL PENALTY FOR PILOTS OPERATING IN AIR 
                   TRANSPORTATION WITHOUT AN AIRMAN'S CERTIFICATE.

       (a) In General.--Chapter 463 of title 49, United States 
     Code, is amended by adding at the end the following:

     ``Sec. 46317. Criminal penalty for pilots operating in air 
       transportation without an airman's certificate

       ``(a) Application.--This section applies only to aircraft 
     used to provide air transportation.
       ``(b) General Criminal Penalty.--An individual shall be 
     fined under title 18, imprisoned for not more than 3 years, 
     or both, if that individual--
       ``(1) knowingly and willfully serves or attempts to serve 
     in any capacity as an airman without an airman's certificate 
     authorizing the individual to serve in that capacity; or
       ``(2) knowingly and willfully employs for service or uses 
     in any capacity as an airman an individual who does not have 
     an airman's certificate authorizing the individual to serve 
     in that capacity.
       ``(c) Controlled Substance Criminal Penalty.--(1) In this 
     subsection, the term `controlled substance' has the same 
     meaning given that term in section 102 of the Comprehensive 
     Drug Abuse Prevention and Control Act of 1970 (21 U.S.C. 
     802).
       ``(2) An individual violating subsection (b) shall be fined 
     under title 18, imprisoned for not more than 5 years, or 
     both, if the violation is related to transporting a 
     controlled substance by aircraft or aiding or facilitating a 
     controlled substance violation and that transporting, aiding, 
     or facilitating--
       ``(A) is punishable by death or imprisonment of more than 1 
     year under a Federal or State law; or
       ``(B) is related to an act punishable by death or 
     imprisonment for more than 1 year under a Federal or State 
     law related to a controlled substance (except a law related 
     to simple possession (as that term is used in section 
     46306(c)) of a controlled substance).
       ``(3) A term of imprisonment imposed under paragraph (2) 
     shall be served in addition to, and not concurrently with, 
     any other term of imprisonment imposed on the individual 
     subject to the imprisonment.''.
       (b) Clerical Amendment.--The table of sections at the 
     beginning of chapter 463 of title 49, United States Code, is 
     amended by adding at the end the following:

``46317. Criminal penalty for pilots operating in air transportation 
              without an airman's certificate.''.

  Mr. McCAIN. Mr. President, this amendment has been cleared on both 
sides of the aisle. I don't believe there is any further debate. I 
yield the floor.
  Mr. FORD. Mr. President, this side has no objection to this 
amendment. It is long overdue. It is directed at enforcement of 
certificates for pilots. We think it is needed; therefore, this side 
approves it.
  The PRESIDING OFFICER. If there is no objection, the amendment is 
agreed to.
  The amendment (No. 3633) was agreed to.
  Mr. McCAIN. Mr. President, I move to reconsider the vote.
  Mr. FORD. I move to lay that motion on the table.
  The motion to lay on the table was agreed to.

[[Page S10888]]

  Mr. McCAIN. Mr. President, I suggest the absence of a quorum.
  The PRESIDING OFFICER. The clerk will call the roll.
  The bill clerk proceeded to call the roll.
  Mr. ROBB. Mr. President, I ask unanimous consent that the order for 
the quorum call be rescinded.
  The PRESIDING OFFICER. Without objection, it is so ordered.


                           Amendment No. 3634

(Purpose: To ensure consumers benefit from any changes to the slot rule 
    and perimeter rule at Ronald Reagan Washington National Airport)

  Mr. ROBB. Mr. President, I have an amendment, and I send it to the 
desk and ask for its immediate consideration.
  The PRESIDING OFFICER. The clerk will report.
  The bill clerk read as follows:

       The Senator from Virginia (Mr. Robb), for himself, Ms. 
     Snowe, Ms. Collins and Mr. Gregg, proposes an amendment 
     numbered 3634.

  Mr. ROBB. Mr. President, I ask unanimous consent that reading of the 
amendment be dispensed with.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The amendment is as follows:

       On page 41, line 22, strike the ``and''.
       On page 41, line 23, strike the period and insert ``;''.
       On page 41, line 24 insert the following:
       ``(3) not reduce travel options for communities served by 
     small hub airports and medium hub airports within the 
     perimeter described in section 49109 of title 49, United 
     States Code; and
       ``(4) not result in meaningfully increased travel delays.''

  Mr. ROBB. Mr. President, I understand that a number of Senators could 
conceivably benefit from the additional flights at National. Current 
language in the bill directs the Secretary of Transportation to award 
new flights for service outside the perimeter if those flights will 
provide ``network benefits beyond the perimeter'' and ``increase 
competition in multiple markets.''
  I believe this proposed test tilts the Secretary's decision in favor 
of consumers flying beyond the perimeter and away from considering the 
benefits to all consumers using this region's airports. For that 
reason, I am proposing an amendment to provide a more balanced 
approach. Consumers using the airports are not just worried about the 
availability of long-haul service, they are also worried about timely 
service and the availability of service to smaller airports.
  The amendment I am offering would simply require the Secretary to 
consider those factors in awarding any new slots at National. Senators 
Gregg, Smith of New Hampshire, Graham of Florida, Snowe, and Collins 
have agreed to cosponsor this amendment.
  Mr. President, I ask unanimous consent that Senator Smith of New 
Hampshire and Senator Graham of Florida be added as cosponsors to the 
amendment.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  Mr. ROBB. Again, Mr. President, I believe very strongly--and will 
have more to say later this afternoon--that it is wrong for the 
Congress to retreat from its promise to the citizens of this region, 
and I believe the changes in this bill will be harmful to the capital 
area's economy as well as its quality of life. If we are going to 
meddle in the rules governing service at National, however, we should 
do so in a way that is fair to all consumers.
  I understand that this amendment has been accepted by the managers on 
both sides, and I thank the managers for their assistance. I am 
prepared to move it or set it aside, whichever would be the preference 
of either manager at this time.
  Mr. SESSIONS. I must say it is not cleared on this side at this time. 
We would be glad to continue to evaluate that, but I am not at liberty 
to accept it at this point.
  Mr. ROBB. I understand. With that, I ask unanimous consent that it be 
temporarily laid aside.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  Mr. ROBB. I suggest the absence of a quorum.
  The PRESIDING OFFICER. The clerk will call the roll.
  The assistant legislative clerk proceeded to call the roll.
  Mr. ROBB. Mr. President, I ask unanimous consent that the order for 
the quorum call be rescinded.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  Mr. GRAHAM. Mr. President, I rise in support of the amendment 
proposed by Mr. Robb of which I am proud to be a cosponsor.
  This amendment addresses an issue of great importance to the State of 
Florida. Specifically, concern has been expressed about the weakening 
of the ``Perimeter Rule,'' and the availability of nonstop flights 
between smaller airports and Reagan National Airport. I have been in 
touch with representatives from Jacksonville, Ft. Meyers, West Palm 
Beach, and Fort Lauderdale. They are convinced that a substantial 
portion of the direct flights to National that operate out of these 
airports would eventually be eliminated because the airlines would 
choose the higher revenue options. A study done by the Washington 
Airports Task Force supports this opinion.
  The study shows that if the perimeter rule was essentially eliminated 
or weakened by allowing exemptions, economics will drive the airlines 
to take that airport's capacity away from markets within the perimeter 
and re-apply it to the higher value markets outside of the perimeter. 
That means that as many as 25 cities within the perimeter would be 
vulnerable to loss of some or all of their nonstop service to National. 
The study also shows that as many as 1.6 million air travelers in 93 
congressional districts could be affected.
  This amendment assures that, for those communities that are served by 
small and medium hub airports that fall within the perimeter, travel 
options will not be reduced and consumers will not be subjected to 
increased travel delays. In addition, this legislation protects the 
level of service and choices for consumers in the State of Florida and 
throughout the country.
  I hope that you can support our efforts to ensure that the aviation 
service in our States are not threatened.
  Mr. ROBB. Mr. President, I understand that the managers are now 
prepared to weigh in on this particular amendment. I yield to the 
managers of the amendment for any comments they might like to make.
  Mr. SESSIONS. Mr. President, we are prepared to accept this 
amendment. I know of no objection.
  Mr. BRYAN. No objection on this side of the aisle.
  The PRESIDING OFFICER. Without objection, the amendment is agreed to.
  The amendment (No. 3634) was agreed to.
  Mr. ROBB. I move to reconsider the vote.
  Mr. BRYAN. I move to lay that motion on the table.
  The motion to lay on the table was agreed to.
  Mr. SESSIONS. I suggest the absence of a quorum.
  Mr. MOYNIHAN. Mr. President, I ask the distinguished manager to 
withhold the request.
  Mr. SESSIONS. I withdraw that request, Mr. President.
  Mr. MOYNIHAN addressed the Chair.
  The PRESIDING OFFICER. The Senator from New York.


                           Amendment No. 3635

 (Purpose: To provide for reporting of certain amounts contributed to 
  the Airport and Airway Trust Fund and funding of States for airport 
                              improvement)

  Mr. MOYNIHAN. Mr. President, I send to the desk an amendment and ask 
for its immediate consideration.
  The PRESIDING OFFICER. The clerk will report the amendment.
  The assistant legislative clerk read as follows:

       The Senator from New York (Mr. Moynihan) proposes an 
     amendment numbered 3635.

  Mr. MOYNIHAN. Mr. President, I ask unanimous consent that reading of 
the amendment be dispensed with.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The amendment is as follows:

       At the appropriate place in title V, insert the following:

     SEC. 5    . ALLOCATION OF TRUST FUND FUNDING.

       (a) Definitions.--In this section:
       (1) Airport and airway trust fund.--The term ``Airport and 
     Airway Trust Fund'' means the trust fund established under 
     section 9502 of the Internal Revenue Code of 1986.
       (2) Secretary.--The term ``Secretary'' means the Secretary 
     of Transportation.
       (3) State.--The term ``State'' means each of the States, 
     the District of Columbia, and the Commonwealth of Puerto 
     Rico.

[[Page S10889]]

       (4) State dollar contribution to the airport and airway 
     trust fund.--The term ``State dollar contribution to the 
     Airport and Airway Trust Fund'', with respect to a State and 
     fiscal year, means the amount of funds equal to the amounts 
     transferred to the Airport and Airway Trust Fund under 
     section 9502 of the Internal Revenue Code of 1986 that are 
     equivalent to the taxes described in section 9502(b) of the 
     Internal Revenue Code of 1986 that are collected in that 
     State.
       (b) Reporting.--
       (1) In general.--As soon as practicable after the date of 
     enactment of this Act, and annually thereafter, the Secretary 
     of the Treasury shall report to the Secretary the amount 
     equal to the amount of taxes collected in each State during 
     the preceding fiscal year that were transferred to the 
     Airport and Airway Trust Fund.
       (2) Report by secretary.--Not later than 90 days after the 
     date of enactment of this Act, and annually thereafter, the 
     Secretary shall prepare and submit to Congress a report that 
     provides, for each State, for the preceding fiscal year--
       (A) the State dollar contribution to the Airport and Airway 
     Trust Fund; and
       (B) the amount of funds (from funds made available under 
     section 48103 of title 49, United States Code) that were made 
     available to the State (including any political subdivision 
     thereof) under chapter 471 of title 49, United States Code.

  Mr. MOYNIHAN. Mr. President, this is a simple proposal to obtain 
numbers about a Federal program as regards the respective States. As a 
member of the Committee on Environment and Public Works for the last 22 
years, I served as chairman, at one point, and handled a number of 
highway bills, as we call them, transportation bills, and have been 
involved with negotiations with the House in these matters.
  One of the subjects that comes forward continuously is the payments 
by respective State residents, or persons passing through a State, into 
the highway trust fund. This was established in 1956 by President 
Eisenhower, under his administration, on the recommendation of a 
commission headed by General Clay, with the previous Speaker, Mr. 
Wright of Texas, as one of the persons animating the effort in the 
Congress. There was a source of funding for the Interstate and Defense 
Highway Program. Indeed, there was, and we have very successfully 
finished that program and we continue to fund transportation projects 
across the Nation with those revenues as they come in.

  Now, in 1986 we established the airport and airway trust fund. It is 
a ticket tax and other taxes. It brings considerable revenue, as anyone 
who has recently ridden on the Washington-New York shuttle can attest. 
In fiscal year 1998, we estimate that $4.5 billion was collected in 
ticket taxes.
  However, we have no State-by-State analysis of the dollar 
contributions. Inevitably and properly, the moneys are used by the 
Federal Aviation Administration to provide airport projects around the 
Nation, but with no accounting for the relative contributions of the 
different States with the thought that there be some proportionality as 
to the return to the States. I say ``some''--nothing precise, nothing 
is proposed in this amendment to make such a proportionality 
requirement. Indeed, it is not desired.
  Public policy on transportation should follow the needs of 
transportation, and yet it is reasonable to assume that Senators and 
Representatives will expect some relationship between what their State 
provides and what it receives. That may now take place; it may not take 
place. The answer is we don't know.
  The most normal function of government when it collects a tax is to 
record the origins and the specifics of the revenue stream. There will 
be some difficulty doing this. It is tricky. A good number of airline 
tickets are now purchased on the Internet as opposed to travel agents 
or at the airport. These are methodological problems which the Treasury 
is entirely capable of dealing with through sampling and other devices. 
This amendment quite specifically says, ``as soon as practicable after 
the date of enactment of this act and annually thereafter,'' that the 
Secretary of the Treasury will report to the Secretary of 
Transportation.
  The term ``as soon as practicable'' gives the Treasury the leeway it 
requires to get these numbers and break them down. It is routine 
government. It is good government. It is an opportunity to avoid a 
great deal of misunderstanding and discord in the committees involved 
and on the floor as we ask how appropriate, and in a general sense, how 
fair the use of these funds is--the allocation of these funds once they 
have been obligated through taxation.
  Accordingly, I hope the Senate can approve this amendment.
  Mr. President, I respectfully inquire of the managers whether this 
straightforward measure could be accepted and spare the Senate the 
time.
  Mr. BRYAN. If I might respond to the inquiry from my friend, the 
distinguished Senator from New York, I am informed at this point we are 
not able to accept the amendment. The floor leader is absent from the 
floor temporarily and will return shortly. Perhaps the Senator may be 
able to engage in a conversation with him and the distinguished Senator 
on the other side of the aisle as to working out this point. I am not 
able to give the distinguished Senator the assurance that he needs that 
we can approve it.
  Mr. MOYNIHAN. My friend from Alabama?
  Mr. SESSIONS. I thank the distinguished Senator.
  This amendment has just been presented and is now being seen by the 
managers. I think both sides of the aisle have expressed some concerns, 
so we will have to study it some more.
  Mr. MOYNIHAN. In that regard, Mr. President, I wonder if I could, 
with the understanding of the managers, ask for the yeas and nays with 
the understanding that if the managers, after consideration of this 
very simple proposal, decide that it is acceptable, when that moment 
comes when this amendment comes up after 5 o'clock, that the yeas and 
nays be vitiated and the amendment be accepted; if not, we will have a 
vote.
  The PRESIDING OFFICER. Is there a sufficient second? There is a 
sufficient second.
  The yeas and nays were ordered.
  Mr. MOYNIHAN. Once again, if on further consideration the managers 
would like to accept the amendment, we will vitiate the vote when the 
time comes.
  I thank the Chair, and I suggest the absence of a quorum.
  The PRESIDING OFFICER. The clerk will call the roll.
  The assistant legislative clerk proceeded to call the roll.
  Mr. GRAMM. Mr. President, I ask unanimous consent that the order for 
the quorum call be rescinded.
  The PRESIDING OFFICER (Mr. Gorton). Without objection, it is so 
ordered.
  Mr. GRAMM. Mr. President, I ask unanimous consent to speak as in 
morning business for 25 minutes.
  The PRESIDING OFFICER. Without objection, it is so ordered.

                          ____________________