TITLE:  Whether the Airport and Airway Trust Fund was created solely to finance aviation infrastructure, File: B-281779, Date: February 12, 1999
BNUMBER: B-281779
DATE:  February 12, 1999
**********************************************************************
Whether the Airport and Airway Trust Fund was created solely to finance
aviation infrastructure, File: B-281779, Date: February 12, 1999

Subject: Whether the Airport and Airway Trust Fund was created solely to
finance aviation infrastructure

File: B-281779

Date: February 12, 1999

B-281779

February 12, 1999

The Honorable Frank R. Wolf
Chairman, Subcommittee
on Transportation and Related Agencies
Committee on Appropriations
House of Representatives

Dear Mr. Chairman:

This is in response to your December 10, 1998, letter concerning Congress'
intent in establishing the Airport and Airway Trust Fund (trust fund) in
1970. You specifically questioned whether or not the trust fund was created
solely to finance aviation "infrastructure," and if so, how "infrastructure"
was defined during the congressional deliberations. You also asked us to
review the amendments to the law creating the trust fund.

After examining the Airport and Airway Development and Revenue Acts of 1970
and the accompanying legislative history, we conclude that in 1970 the trust
fund was not created solely to finance aviation infrastructure. When the
trust fund was authorized in 1970, the balance of funds (after airport
development) was to be allocated for certain administrative expenses, for
research and development activities, and for the maintenance and operation
of air navigation facilities. The term "infrastructure" does not appear in
the statute or in the legislative history.

In our review of the amendments to the law creating the trust fund, we found
that Congress has continuously authorized the trust fund to finance
non-infrastructure expenses such as research and development costs. With the
exception of a four-year period during fiscal years 1973-1976, when the
funding of Federal Aviation Administration (FAA) operation and maintenance
costs from the trust fund was prohibited, and fiscal year 1984, when the
appropriation act specified use of general fund monies, [1] Congress has
also authorized the trust fund to finance FAA operation and maintenance
costs. In 1976, Congress capped the amount available for operation and
maintenance costs and added a penalty clause. The cap and penalty clause
were adjusted several times, and the penalty clause was eliminated in 1990.

 BACKGROUND

 In 1970 Congress enacted the Airport and Airway Development and Revenue
Acts to deal with the inadequacy of the nation's airport and airway system
to meet the current and projected growth in aviation at the time. [2] The
1970 act is comprised of two titles: title I is the Airport and Airway
Development Act of 1970 and title II is the Airport and Airway Revenue Act
of 1970. We will refer to these two laws simply as the 1970 act. Title I
authorized federal funds, at least $250 million a year for 5 years, for the
acquisition, establishment and improvement of air navigational facilities
and another $280 million a year for 5 years for airport development. Title
II established a trust fund comprised of aviation-related excise taxes to
finance these activities. The aviation excise taxes included an increase in
the gasoline tax on general aviation, an increase in the passenger ticket
tax for domestic flights, a new tax on international commercial passengers,
a new tax on air freight waybills, and a new annual aircraft registration
tax.

 DISCUSSION

 To answer your question regarding whether the trust fund was created solely
to finance aviation infrastructure, we looked first to the statute for some
guidance on the word "infrastructure." However, "infrastructure" is not
defined or used in the act and is not discussed in the accompanying
legislative history. [3]It is also not a term found in the federal
accounting standards glossary, or in budget definitions. Webster's defines
infrastructure as "the underlying foundation or basic framework (as of a
system or organization)." [4]

 When we use this definition and examine the 1970 act in terms of what would
be considered "basic framework" or "underlying foundation," we find that
sections 14a, 14b, and 14c authorized airport development, which was defined
as any work involved in constructing, improving, or repairing a public
airport. [5] It included the removal, marking and lighting of airport
hazards, installing navigational aids and safety equipment, and the
acquisition of land for future airport development and air navigational
facilities. The Senate report that accompanied the 1970 act referred to
airport development grants and air navigation and control facilities as
capital investments. [6] Thus the term that comes closest to describing
"basic framework" or "underlying foundation" in legislative history is
"capital investment." Certainly, runways, airports and air navigational
facilities would be considered both infrastructure and capital investment.
They are the "underlying foundation" of an airport system.

 Section 14(d), on the other hand, required that the balance of the monies
available in the trust fund be allocated for administrative expenses
incident to the airport development grants, for the maintenance and
operation of air navigation facilities, and for research and development
activities. None of these are generally deemed capital investments or
infrastructure. Thus the language of the 1970 act clearly authorized trust
fund monies to be spent for activities that are not deemed infrastructure as
defined above.

 In addition to section 14, section 208(f) of title II of the 1970 act set
forth the categories of expenditures that could be paid from the trust fund.
Section 208(f)(1)(B) stated that the trust fund was available for
obligations that were attributable to "planning, research and development,
construction or operation and maintenance of -- (i) air traffic control,
(ii) air navigation, (iii) communications, or (iv) supporting services for
the airway system." Section 208(f)(1)(C) also allowed FAA administrative
expenses incident to airport development to be paid from the trust fund.
Thus trust funds are available for non-infrastructure expenses since section
208 includes operation and maintenance and administrative expenses.

 There is some indication that the Senate Commerce Committee believed that
at the outset, most of the trust fund revenues would be earmarked for
capital improvement while general tax revenues would be appropriated to
continue to finance the operation and maintenance of the air traffic control
system. [7] The Senate report accompanying the bill explained,

The reported bill allocates, for specific capital investment purposes,
portions of the total user charge-derived revenues and provides that no
other user charge-derived trust fund revenues should be obligated for other
purposes until the minimum amounts have been allocated to the capital
investment portions of the program. . . . After these allocations have been
made, remaining trust fund revenues accruing from user charges and from
general appropriations may be expended for the other purposes . . . [8]

However, the Senate Finance Committee, with jurisdiction over the trust
fund, did not set priorities between capital improvements spending and
operation and maintenance spending. Its report said simply, "The Trust Fund
is created in order to insure that the aviation user taxes are expended only
for the expansion, improvement and maintenance of the air transportation
system." [9] The language of section 208 reflects this lack of
prioritization.

Taken together, sections 14 and 208 in the 1970 act explicitly authorize the
use of trust funds for certain administrative expenses, for the operation
and maintenance of the air traffic control system and for research and
development. This explicit authorization makes clear that the trust fund as
created in the 1970 act was not solely to finance aviation infrastructure.

Subsequent Amendments TO 1970 ACT

Debate over the proper use of the trust fund and what proportion could be
spent on the operation and maintenance of the air traffic control system
began almost immediately. Six months after passage of the 1970 act, the
Department of Transportation (DOT), in a supplemental budget request for
fiscal year 1971, proposed using only $100 million of the $280 million
authorized in section 14 for airport development and $226 million rather
than the $250 million authorized for air navigation facilities and
equipment. The DOT proposed using the rest of the trust fund money to fund
FAA operation and maintenance programs. [10]

Disagreement with the DOT over priorities led to the Airport and Airway
Development Act Amendments of 1971, [11] which amended the 1970 act in two
fundamental ways. It deleted language in section 14(d) that permitted the
use of the trust funds to be spent on "the maintenance and operation of air
navigation facilities." It also created a new subsection (e) for section 14
entitled, "Preservation of Funds and Priority for Airport and Airway
Programs." Section 14(e)(1) provided that ". . . no amounts may be
appropriated from the trust fund to carry out any program or activity . . .
except programs or activities referred to in subsection (c) (airway
facilities) and subsection (d)(other expenses). . . ." But subsection (d) on
"other expenses" no longer included maintenance and operation expenses. The
House report stated that this new subsection was designed to "prevent
allocations from the fund to carry out any program or activity under the
1958 Act except certain administrative and research and development expenses
or expenses related to the acquisition, establishment, and improvement of
air navigation facilities." [12]

The Senate Report said this law was necessary because the DOT had
interpreted the 1970 act to permit it to request appropriations less than
the minimum levels for airport development and airway facilities. The report
states,

Further, although Congress intended that the capital investment programs for
aviation system modernization be fully funded from user tax revenues in the
Trust Fund prior to the use of such funds for maintenance, operations and
administrative expenses, the Administration has disregarded these statutory
priorities and has given routine FAA expenses the same status as capital
improvements. [13]

So while funding for some administrative expenses was still authorized, as
were research and development activities related to air navigation safety,
use of the trust funds for maintenance and operation of air navigation
facilities was no longer permitted.

The prohibition of using trust funds for maintenance and operation of air
navigation facility expenses continued until 1976, when Congress passed the
Airport and Airway Development Act Amendments of 1976. The 1976 act added a
new subsection entitled "Other Expenses," which stated that the balance of
monies available could be appropriated for (1) costs of services provided
under international agreements relating to joint financing of air navigation
services and (2) direct costs incurred to flight check and maintain air
navigation facilities. [14] The 1976 act, however, placed caps on how much
could be spent on these items for fiscal years 1977-1980. The 1976 act also
added a penalty clause that reduced the maximum levels that could be used in
maintenance and operations in proportion to any shortfall of airport grants
below the authorized minimum amounts. These provisions limited trust fund
spending to about 15 percent of FAA's operation costs through 1980. [15]

The new or increased excise taxes imposed by the 1970 act expired in 1980
although spending continued against the accumulated surplus. In 1982, the
Airport and Airway Improvement Act of 1982 repealed section 14 and replaced
it with section 506, which authorized the same types of expenses as its
predecessor. [16] See enclosed Table 1 for a select history of section 14.
Section 208, which established the trust fund, was also repealed by the 1982
act and replaced with section 9052 of the Internal Revenue Code, but with no
change to the authorized expenditure provision. See Table 2 for a select
history of section 208.

The 1982 act and subsequent legislation adjusted the caps and changed
penalties, but all amendments continued to permit payments from the trust
fund for some operation and maintenance of air navigation facilities. For
fiscal year 1984, although section 506 still authorized operation and
maintenance expenses from the trust fund, the appropriations act specified
that operation and maintenance expenses were to be funded from the general
fund, not the trust fund. [17] In 1990, the penalty clause was deleted but a
cap remains in place. Table 3 presents the shares of trust fund and general
fund monies used to finance FAA from 1970 to 1998.

CONCLUSION

The trust fund as it was enacted in 1970 was not created solely to finance
aviation infrastructure. Throughout its history, it has financed some
non-infrastructure expenses, such as administrative expenses incident to the
administration of the airport development program and research and
development. With the exception of the time period during fiscal years
1973-1976, and 1984, it has also funded some costs of maintenance and
operation of air navigation facilities.

I hope this information proves useful to you in your deliberations.

Sincerely yours,

Robert P. Murphy
General Counsel

Enclosure -

TABLE 1. A Select History of Section 14 of the Airport and Airway

Development Act of 1970 and Its Successor Provisions [18]

 YEAR      STATUTE             PROVISIONS

 1970      Airport and Airway  Section 14, Airport and Airway
           Development Act of  Development Program, authorized grants
           1970, Public Law    for airports and funded airway
           No. 91-258, 84      facilities, and "Other Expenses" (Section
           Stat. 219.          14(d)). "Other expenses" include those

                                  * For necessary administrative
                                    expenses incident to administration
                                    of programs for airport development,
                                  * For the "maintenance and operation
                                    of air navigation facilities," and

                               For research and development activities
                               as related to air navigation safety.

 1971      Airport and Airway     * Deleted phrase "for the maintenance
           Development              and operation of air navigation
           Act-Amendment,           facilities" in section 14(d) which
           Public Law No.           had permitted the use of the trust
           92-174, 85 Stat.         funds to finance FAA operations.
           491.                   * Administrative expenses for airway
                                    facilities program added.
                                  * Added new section 14(e),
                                    Preservation of Funds and Priority
                                    for Airport and Airway Programs.

                               Section 14(e) included subparagraph (3)
                               that no amounts may be used to "carry out
                               administrative expenses" except those
                               authorized.

 1976      Airport and Airway     * Reauthorized trust fund spending for
           Development Act          aviation programs for 1976-80.
           Amendments of          * Added new section 14(e), "Other
           1976, Public Law         Expenses" and redesignated
           No. 94-353, 90           Preservation of Funds and Priority
           Stat. 871.               for Airport and Airway Programs as
                                    section 14(f). "Other expenses"
                                    included services under
                                    international agreements and direct
                                    costs to check and maintain air
                                    navigation facilities.
                                  * Placed a cap on maintenance and
                                    operation amount.
                                  * Added a penalty clause that reduced
                                    these maximum levels that could be
                                    used in maintenance and operations
                                    in proportion to any shortfall of
                                    airport grants below the authorized
                                    minimum amounts.

                               Substituted a new section 14(d), entitled
                               "Research, Development and
                               Demonstrations" under section 312(c) of
                               FAA of 1958. Section 14(d) no longer
                               included "administrative expenses"
                               incident to airport grants or airway
                               facilities.

 1980      Aviation Safety        * Added another penalty provision to
           and Noise                section 14(e), which reduced amount
           Abatement Act of         available for "other expenses" if
           1979, Public Law         minimum amount for airway facilities
           No. 96-193, 94           was not spent.
           Stat. 50.

 YEAR      STATUTE             PROVISIONS

 1980      The new and increased taxes imposed by the Airport and Airway
           Development Act of 1970

           expired, as did the authorization to transfer the revenue

           from these taxes to the trust fund. Spending from the trust
           fund continued

           against the accumulated surplus.

 1982      Airport and Airway     * Repealed section 14 of 1970 Act and
           Improvement Act of       replaced it with section 506.
           1982, Title V of       * Section 506(b), like the former
           Public Law No.           section 14(d), authorized research
           97-248, 96 Stat.         and development and demonstration
           671.                     projects.
                                  * Section 506(c), like the former
                                    section 14(e), authorized "Other
                                    Expenses"-costs of services under
                                    international agreements and direct
                                    costs to "check, operate, and
                                    maintain" air navigation facilities.
                                  * Capped the amount of "other
                                    expenses" at a multiple of amount
                                    obligated for airport improvement
                                    program from 2.44 in 1983 reduced to
                                    1.28 in 1986.
                                  * The penalty clause reduced the cap
                                    by twice the difference between
                                    authorization for facilities and
                                    equipment spending and the actual
                                    appropriation for the program.

                               Added reimbursement of National Oceanic
                               and Atmospheric Administration for
                               weather expenses under "other expenses."

 1983      Surface                * Reduced the ratio in section 506(c)
           Transportation           used to calculate the cap on the
           Assistance Act of        amount available each year for
           1983, Public Law         "other expenses."
           No. 97-424, 96
           Stat. 2097.

 1987      Airport and Airway     * Reauthorized spending for aviation
           Safety and               programs and extended for 3 years
           Capacity Expansion       the excise taxes to fund them.
           Act of 1987,           * Substantially increased
           Public Law No.           authorization levels for airport and
           100-223, 101 Stat.       airway program.
           1486.                  * Expanded demonstration projects for
                                    air traffic control, navigation,
                                    weather safety, medicine, and
                                    environment.
                                  * Amended cap in section 506(c) to 50%
                                    of the total amounts made available
                                    for airport facilities and
                                    equipment, and research,
                                    engineering, and development.

                               Changed penalty clause to reduce the
                               maximum amount by twice the amount by
                               which the actual amounts made available
                               for the program fall short of the levels
                               specified in the law for each fiscal
                               year.

 1990      Aviation Safety        * Reauthorized funding for aviation
           and Capacity             programs through fiscal year 1992.
           Expansion Act of       * Eliminated the penalty clause.
           1990, title IX,        * Changed cap in section 506(c) to 75%
           Subtitle B, Public       of total amounts made available to
           Law No. 101-508,         FAA for the airport improvement
           104 Stat.                program, facilities and equipment,
           1388-353.                research and development, and FAA
                                    operations less the amounts made
                                    available from the trust fund for
                                    airport improvement, facilities and
                                    equipment, and research and
                                    development programs. The remainder
                                    is the authorization from the trust
                                    fund for operations.

 YEAR    STATUTE             PROVISIONS

 1992    Airport and         Reauthorized funding for aviation programs
         Airway Safety,      through fiscal year 1995.
         Capacity, Noise
         Improvement, and
         Intermodal
         Transportation
         Act of 1992,
         Public Law No.
         102-581, 106
         Stat. 4872.

 1994    Federal Aviation       * Reauthorized funding for aviation
         Reauthorization          programs through fiscal year 1996.
         Act of 1994,           * Changed cap in section 506(c) to the
         Public Law No.           lesser of 50% of facilities and
         103-305, 108             equipment (F&E), research and
         Stat. 1569.              development (R&D) and airport
                                  improvement program (AIP) or 70% of
                                  total amounts made available to FAA
                                  less the amounts made available from
                                  the trust fund from AIP, F&E and R&D.

 1996    Federal Aviation       * Reauthorized FAA operations, airport
         Reauthorization          improvement program, and facilities
         Act of 1996,             and equipment programs through fiscal
         Public Law No.           year 1998.
         104-264, 110           * Reauthorized research, engineering and
         Stat. 3213.              development program through fiscal
                                  year 1997.
                                * Moved cap to 72.5% of total amounts
                                  made available to FAA, less the
                                  amounts made available from the trust
                                  fund from AIP, F&E, and R&D.

 1998    FAA Research,          * Reauthorized research, engineering and
         Engineering and          development program through fiscal
         Development              year 1999.
         Authorization Act
         of 1998, Public
         Law No. 105-155,
         112 Stat. 5.

 1998    Omnibus                * Reauthorized airport improvement
         Consolidated and         program through March 31, 1999.
         Emergency
         Supplemental
         Appropriations
         Act, for 1999,
         Public Law
         No.105-277, 112
         Stat. 2681.

TABLE 2. Selected History of Section 208 of the Airport and Airway

Revenue Act of 1970 and Its Successor Provision Section

9502 of the Internal Revenue Code

 YEAR    STATUTE               PROVISIONS

 1970    Airport and Airway       * Section 208 created the trust fund
         Revenue Act of             and appropriated aviation
         1970, Public Law           related-related taxes to it.
         No. 91-258, 84           * Section 208(f), entitled
         Stat. 236.                 Expenditures from Trust Fund,
                                    authorized expenditures under:

                                 A. Airport and Airway Development Act,
                                    which includes section 14, on
                                    Airport and Airway Development
                                    Programs;

                               (B) Federal Aviation Act of 1958, which
                               are attributable to planning, research
                               and development, construction, or
                               operation and maintenance of -

                               (i) air traffic control

                               (ii) air navigation

                               (iii) communication

                               (iv) supporting services for the airway
                               system or:

                               (C) for Department of Transportation
                               administrative expenses attributed to the
                               activities.

 1980    Airport and Airway       * Extended transfer of
         Trust                      aviation-related revenues to trust
         Fund-Extension of          fund from July to October 1980.
         Taxes, Public Law
         No. 96-298, 94
         Stat. 829.

 1980    Transfer of aviation-related taxes to trust fund terminated
         October 9, 1980.

 1982    Tax Equity and          * Repealed section 208 and enacted
         Fiscal                    section 9502 of the Internal Revenue
         Responsibility Act        Code (IRC).
         of 1982, Public
         Law No. 97-248, 96   Section 9502 created (again) the Airport
         Stat. 324.           and Airway Trust Fund and appropriated
                              aviation-related taxes to it.

 1987    Airport and Airway      * Amended section 9502(d) to extend
         Safety and                authorization for expenditures from
         Capacity Expansion        fund until October 1, 1992.
         Act of 1987,
         Public Law No.
         100-223, 101 Stat.
         1486.

 1990    Revenue                 * Increase in aviation tax revenues to
         Reconciliation Act        go to general fund through 1992 and
         of 1990, Public           trust fund from 1993 to 1995.
         Law No. 101-508,
         104 Stat.
         1388-400, at
         1388-435.

 1994    Federal Aviation        * Amended section 9502(d) to extend
         Administration            expenditure authority from October 1,
         Authorization Act         1995 to October 1, 1996.
         of 1994, Public
         Law No. 103-305,
         108 Stat. 1569.

 YEAR    STATUTE             PROVISIONS

 1996    Federal Aviation       * Amended section 9502(d) to extend
         Reauthorization          expenditure authority from October 1,
         Act of 1996,             1996 to October 1, 1998. [19]
         Public Law No.
         104-264, 110
         Stat. 3278.

  1. Table 3: FAA Budget Information: Airport and Airway Trust Fund and
     General Fund Shares

Dollars in Millions
 Programs                                  FY70    FY71    FY72    FY73    FY74    FY75    FY76
 Airport Improvement Program               $840.0  $193.0  $15.0   $635.0  $.0     $.0     $515.0
 Facilities and equipment appropriation    224.0   238.0   302.0   213.0   250.0   227.0   246.0
 Research, engineering, and development    41.0    49.0    78.0    70.0    62.0    58.0    67.0
 appropriation
 Total operations and maintenance          845.0   1,026.0 989.0   1,170.0 1,292.0 1,419.0 1,567.0
 appropriation
 Trust fund share                          .0      34.0    989.0   .0      .0      .0      .0
 General fund share                        845.0   992.0   .0      1,170.0 1,292.0 1,419.0 1,567.0
 Total FAA Appropriations                  1,950.0 1,506.0 1,384.0 2,088.0 1,604.0 1,704.0 2,395.0
 Share of FAA's budget from the trust fund 840.0   299.0   1,369.0 918.0   312.0   285.0   828.0
 Share of FAA total budget from the        1,110.0 1,207.0 15.0    1,170.0 1,292.0 1,419.0 1,567.0
 general fund
 Percent of FAA Appropriations from the    43%     20%     99%     44%     19%     17%     35%
 trust fund
 Percent of FAA Appropriations from the    57%     80%     1%      56%     81%     83%     65%
 general fund
 Percent of FAA's operations and           0%      3%      100%    0%      0%      0%      0%
 maintenance appropriation from the trust
 fund

The trust fund generally financed 100% of the airway improvement program;
facilities and equipment; and research, engineering, and development
appropriations. To cover shortfalls during the transition years FY 70, FY 71
and FY 72, general fund revenues totaling $495 million ($265 million in FY
70, $215 million in FY 71 and $15 million in FY 72) were also used to
finance these appropriations. For these years, FAA data did not fully break
out the amount of general fund revenues financing each of these
appropriations.

Source: FAA

Table 3: FAA Budget Information: Airport and Airway Trust Fund and General
Fund Shares

Dollars in Millions
 Programs                               FY 77   FY78     FY79     FY80    FY81     FY82     FY83    FY84
 Airport Improvement Program            $510.0  $555.0   $644.0   $677.0  $570.0   $450.0   $750.0  $800.0
 Facilities and equipment appropriation 200.0   209.0    345.0    293.0   350.0    261.0    625.0   750.0
 Research, engineering, and development 74.0    81.0     75.0     75.0    85.0     72.0     103.0   264.0
 appropriation
 Total operations and maintenance       1,738.0 1,898.0  2,033.0  2,170.0 2,340.0  2,292.0  2,579.0 2,587.0
 appropriation
 Trust fund share                       250.0   275.0    300.0    325.0   525.0    810.0    1,277.0 .0
 General fund share                     1,488.0 1,623.0  1,733.0  1,845.0 1,815.0  1,482.0  1,302.0 2,587.0
 Total FAA Appropriations               2,522.0 2,743.0  3,097.0  3,215.0 3,345.0  3,075.0  4,057.0 4,400.0
 Share of FAA's budget from the trust   1,034.0 1,120.0  1,364.0  1,370.0 1,530.0  1,593.0  2,755.0 1,814.0
 fund
 Share of FAA total budget from the     1,488.0 1,623.0  1,733.0  1,845.0 1,815.0  1,482.0  1,302.0 2,586.0
 general fund
 Percent of FAA Appropriations from the 41%     41%      44%      43%     46%      52%      68%     41%
 trust fund
 Percent of FAA Appropriations from the 59%     59%      56%      57%     54%      48%      32%     59%
 general fund
 Percent of FAA's operations and        14%     14%      15%      15%     22%      35%      50%     0%
 maintenance appropriation from the
 trust fund

The trust fund generally financed 100% of the airway improvement program;
facilities and equipment; and research, engineering, and development
appropriations. To cover shortfalls during the transition years FY 70, FY 71
and FY 72, general fund revenues totaling $495 million ($265 million in FY
70, $215 million in FY 71 and $15 million in FY 72) were also used to
finance these appropriations. For these years, FAA data did not fully break
out the amount of general fund revenues financing each of these
appropriations.

Table 3: FAA Budget Information: Airport and Airway Trust Fund and General
Fund Shares

Dollars in Millions
 Programs                             FY85    FY 86    FY87     FY88     FY89    FY90     FY91     FY92
 Airport Improvement Program          $925.0  $885.0   $1,025.0 $1,268.7 $1,400.0$1,425.0 $1,800.0 $1,900.0
 Facilities and equipment             1,358.0 895.0    805.0    1,108.1  1,384.2 1,721.2  2,095.4  2,409.0
 appropriation
 Research, engineering, and           265.0   237.0    142.0    153.4    159.9   170.2    205.0    218.1
 development appropriation
 Total operations and maintenance     2,699.0 2,725.0  2,959.0  3,184.0  3,445.0 3,824.6  4,036.9  4,360.0
 appropriation
 Trust fund share                     1,110.0 427.0    621.0    826.0    471.3   807.2    2,002.7  2,109.6
 General fund share                   1,589.0 2,298.0  2,338.0  2,358.0  2,973.7 3,017.4  2,034.2  2,250.4
 Total FAA Appropriations             5,247.0 4,742.0  4,930.0  5,714.2  6,389.1 7,140.9  8,137.3  8,887.1
 Share of FAA's budget from the trust 3,658.0 2,444.0  2,593.0  3,356.2  3,415.4 4,123.5  6,103.1  6,636.8
 fund
 Share of FAA total budget from the   1,589.0 2,298.0  2,337.0  2,358.0  2,973.7 3,017.4  2,034.2  2,250.3
 general fund
 Percent of FAA Appropriations from   70%     52%      53%      59%      53%     58%      75%      75%
 the trust fund
 Percent of FAA Appropriations from   30%     48%      47%      41%      47%     42%      25%      25%
 the general fund

Source: FAA

Table 3: FAA Budget Information: Airport and Airway Trust Fund and General
Fund Shares

Dollars in Millions
 Programs                             FY93     FY94     FY95     FY96     FY 97    FY98
 Airport Improvement Program          $1,800.0 $1,690.0 $1,450.0 $1,450.0 $1,460.0 $1,700.0
 Facilities and equipment             2,301.7  2,054.7  1,960.4  1,855.1  1,937.7  1,900.5
 appropriation
 Research, engineering, and           230.0    254.0    251.6    185.7    208.4    199.2
 development appropriation
 Total operations and maintenance     4,530.0  4,579.0  4,572.1  4,642.7  4,954.9  5,336.5
 appropriation
 Trust fund share                     2,279.3  2,294.5  2,450.3  2,222.9  1,700.4  1,901.6
 General fund share                   2,250.7  2,284.5  2,121.8  2,419.8  3,254.5  3,434.9
 Total FAA Appropriations             8,861.7  8,577.7  8,234.1  8,133.5  8,561.0  9,136.2
 Share of FAA's budget from the trust 6,611.0  6,293.2  6,112.2  5,713.6  5,306.5  5,701.3
 fund
 Share of FAA total budget from the   2,250.7  2,284.5  2,121.9  2,419.9  3,254.5  3,434.9
 general fund
 Percent of FAA Appropriations from   75%      73%      74%      70%      62%      62%
 the trust fund
 Percent of FAA Appropriations from   25%      27%      26%      30%      38%      38%
 the general fund
 Percent of FAA's operations and      50%      50%      54%      48%      34%      36%
 maintenance appropriation from the
 trust fund

The trust fund generally financed 100% of the airway improvement program;
facilities and equipment; and research, engineering, and development
appropriations. To cover shortfalls during the transition years FY 70, FY 71
and FY 72, general fund revenues totaling $495 million ($265 million in FY
70, $215 million in FY 71 and $15 million in FY 72) were also used to
finance these appropriations. For these years, FAA data did not fully break
out the amount of general fund revenues financing each of these
appropriations.

 Source: FAA

B-281779

DIGEST: The Airport and Airway Trust Fund was not created solely to finance
aviation infrastructure. When the trust fund was authorized in 1970, the
balance of funds (after airport development) was to be allocated for certain
administrative expenses, for research and development activities, and for
the maintenance and operation of air navigation facilities. Since 1970, we
found that Congress has continuously authorized the trust fund to finance
non-infrastructure expenses such as research and development costs. With the
exception of a four-year period during fiscal years 1973-1976, when the
funding of Federal Aviation Administration (FAA) operation and maintenance
costs from the trust fund was prohibited, and fiscal year 1984, when the
appropriation act specified use of general fund monies, Congress has also
authorized the trust fund to finance FAA operation and maintenance costs.
Tables were included tracing amendments to two important sections from the
1970 Act on the uses of the Trust Fund from 1970- 1998. Also, a chart
tracing spending in the various FAA categories, along with a comparison of
general fund v. trust fund spending for FAA operations and maintenance for
FY '70 - FY '98.

Notes

1. Department of Transportation and Related Agencies Appropriations Act of
1984, Pub. L. No. 98-78, 97 Stat. 453, 456 (1983).

2. Pub. L. No. 91-258, 84 Stat. 219 (1970).

3. We also did a search of the United Sates Code to see how "infrastructure"
is used and whether it is defined. It appears numerous times but is not
specifically defined except in a particular context. For example, "space
transportation infrastructure means facilities, associated equipment and
real property . . . required to perform launch or space recovery
activities." 15 U.S.C. sect. 5802 (1994). "Information infrastructure" in
education means a network of communication systems designed to exchange
information. 20 U.S.C. sect. 6813 (1994). "[R]ural infrastructure" means roads,
irrigation systems and electrification. 7 U.S.C.A. sect. 1727e (West Supp.
1998). Sometimes, infrastructure is used to mean all systems necessary to
make a program work. For example, title 42 calls for a report to identify
the "infrastructure needed to eliminate lead-based paint hazards in all
housing . . . including cost effective technology, standards and
regulations, trained and certified contractors, certified laboratories,
liability insurance, private financing techniques and appropriate government
subsidies." 42 U.S.C. sect. 4856 (1994). The following statutory provisions use
infrastructure as both a noun and an adjective, and they illustrate some of
the ways infrastructure is used in the code: production-related
infrastructure (22 U.S.C.A.sect. 2293 (West Supp. 1998)), modal infrastructure
(49 U.S.C. sect. 5105 (1994)), national waterside infrastructure needs (33
U.S.C. sect. 2268 (1994)), infrastructure-based intelligent transportation
systems capital improvements (23 U.S.C.A. sect. 133 (West Supp. 1998 & Westlaw
through Aug. 7, 1998)), and service infrastructure in institutions of higher
learning (42 U.S.C. sect. 12561 (1994)).

4. Webster's Ninth New Collegiate Dictionary 621 (1989). An economic
definition of infrastructure is "[t]hose structural elements of an economy
which facilitate the flow of goods and services between buyers and sellers.
Examples of these structural elements are communications and transport
(roads, railways, harbors, airports, telephones, etc.)." The MIT Dictionary
of Modern Economics 206 (4th ed. 1994).

5. Pub. L. No. 91-258, sec. 11, 84 Stat. 219, 220.

6. See S. Rep. No. 91-565, at 20 (1969).

7. Id., at 20, 21 (1969), and comments by Senator Magnuson, Chairman of the
Senate Commerce Committee and floor manager for the bill, 116 Cong. Rec.
S2266 (daily ed. Feb. 24, 1970) [statement of Sen. Magnuson].

8. S. Rep. No. 91-565, at 20, 21 (1969).

9. S. Rep. No. 91-706, at 10 (1970).

10. During the course of this dispute between the Nixon administration and
the House and Senate authorizing committees, the General Accounting Office
was asked whether the administration's actions constituted an illegal
diversion of funds. Since neither the regular nor supplemental appropriation
had yet been enacted, we found it premature to make findings. B-77406, Dec.
29, 1970. We did note that "it appears that the Administration's
supplemental funding request will result in less expenditure for airport
capital improvements and thus such improvements will not be accorded the
priority which the Senate Committee on Commerce apparently desired. . . Of
course, if the Congress now feels that amounts over and above those
requested by the Administration should be made available to carry out such
expressed intent, such additional amounts may be appropriated by the
Congress." In response to a request from Sen. Magnuson, Chairman of the
Senate Commerce Committee, for bill comments, the Comptroller General wrote
in a June 23, 1971 letter, "whether the Congress intended to require that
the minimum amounts specified in Section 14 of the 1970 Act to be expended
or reserved in the Trust Fund before monies in the fund could be expended
for other purposes has been the subject of considerable controversy between
the Administration and Congress. Accordingly, it would appear desirable that
the intent of the Congress in this matter be clarified." B-77406, June 23,
1971.

11. Pub. L. No. 92-174, 85 Stat. 491 (1971).

12. H.R. Rep. No. 92-459, at 5 (1971).

13. S. Rep. No. 92-378, at 3 (1971).

14. Pub. L. No. 94-353, 90 Stat. 871, 873 (1976).

15. "The Status of the Airport and Airway Trust Fund," Congressional Budget
Office, at x (1988).

16. Pub. L. No. 97-248, title V, 96 Stat. 671, 677 (1982).

17. Department of Transportation and Related Agencies Appropriations Act of
1984, Pub. L. No. 98-78, 97 Stat. 453.

18. Currently found at 49 U.S.C. sect.sect. 48101-48109 (1994 & Supp. II 1996).

19. Pub. L. No. 105-277, Omnibus Consolidated and Emergency Supplemental
Appropriations Act, 1999, 112 Stat. 2681, appropriated money from the trust
fund for FAA programs for Fiscal Year 1999.