18. USER CHARGES AND OTHER COLLECTIONS
In addition to collecting taxes and other receipts by
the exercise of its sovereign powers, which is discussed
in the previous chapter, the Federal Government collects
income from the public from market-oriented activities
and the financing of regulatory expenses. These
collections are classified as user charges, and they include
the sale of postage stamps and electricity, charges
for admittance to national parks, premiums for deposit
insurance, and proceeds from the sale of assets, such
as rents and royalties for the right to extract oil from
the Outer Continental Shelf.
Depending on the laws that authorize the collections,
they 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
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 2006, total offsetting collections
and receipts from the public are estimated to
be $275.8 billion, and total user charges are estimated
to be $207.3 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, ‘‘Outlays
to the Public, Net and Gross,’’ which appears in Chapter
21 of this volume.
Table 18–1. GROSS OUTLAYS, USER CHARGES, OTHER OFFSETTING
COLLECTIONS AND RECEIPTS FROM THE PUBLIC, AND NET OUTLAYS
(in billions)
Actual
2004
Estimate
2005 2006
Gross outlays ...................................................................................... 2,541.8 2,732.5 2,843.4
Offsetting collections and receipts from the public:
User charges 1 ........................................................................... 169.2 183.4 203.9
Other .......................................................................................... 80.4 69.7 71.8
Subtotal, offsetting collections and receipts from the public 249.6 253.1 275.8
Net outlays .......................................................................................... 2,292.2 2,479.4 2,567.6
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 ...................................... 169.2 183.4 203.9
Receipts ......................................................................................................... 2.7 3.2 3.4
Total, User charges ........................................................................................... 171.9 186.6 207.3
302 ANALYTICAL PERSPECTIVES
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 liabilitybased
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.
USER CHARGES
I. Introduction and Background
The Federal Government may charge 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 $171.9
billion in 2004, and are estimated to increase to $186.6
billion in 2005 and to $207.3 billion in 2006, growing
to an estimated $243.1 billion in 2010, 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 $5.3 billion
in 2006, growing to an estimated $11.2 billion in
2010.
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 or 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
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
303 18. USER CHARGES AND OTHER COLLECTIONS
3 Policies for setting user charges are promulgated in OMB Circular No. A-25: ‘‘User
Charges’’ (July 8, 1993).
taxes paid by the public; in contrast, if the benefits
accrue to a limited number of private individuals or
organizations, then the program should be financed by
charges paid by the private beneficiaries. For Federal
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. 3
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
Concepts and Standards for the Federal Government’’
(July 31, 1995), should underlie cost accounting
in the Federal Government.
Classification of user charges in the budget. As
shown in Table 18–1, most user charges are classified
as offsets to outlays on the spending side of the budget,
but a few are classified on the receipts side of the
budget. An estimated $3.4 billion in 2006 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.
The remaining user charges, an estimated $203.9 billion
in 2006, 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.
An estimated $131.7 billion of user charges for 2006
are credited directly to expenditure accounts, and are
generally available for expenditure when they are collected,
without further action by the Congress. An estimated
$72.2 billion of user charges for 2006 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 $207.3 billion in 2006, increasing to $243.1 billion
in 2010. User charge collections by the Postal Service
and for Medicare premiums are the largest and are
estimated to be more than half of total user charge
collections in 2006.
304 ANALYTICAL PERSPECTIVES
Table 18–2. TOTAL USER CHARGE COLLECTIONS
(in millions of dollars)
Actual
2004
Estimates
2005 2006 2007 2008 2009 2010
Receipts
Agricultural quarantine inspection fees ................................................................................................... 258 328 363 368 372 377 381
Abandoned mine reclamation fund ......................................................................................................... 287 303 304 312 318 322 323
Department of State immigration, passport, and consular fees ............................................................ 556 846 886 889 892 895 898
Corps of Engineers harbor maintenance fees ....................................................................................... 870 896 1,002 1,098 1,173 1,221 1,269
Other ....................................................................................................................................................... 748 811 816 845 645 650 656
Subtotal, receipts ................................................................................................................................ 2,719 3,184 3,371 3,512 3,400 3,465 3,527
Offsetting Collections and Receipts from the Public
Discretionary
Department of Agriculture: Food safety inspection and other fees .................................................. 289 227 231 226 226 225 222
Department of Commerce: Patent and trademark, fees for weather services, and other fees ...... 1,628 1,757 1,898 1,996 2,105 2,241 2,393
Department of Defense: Commissary and other fees ....................................................................... 9,316 9,287 9,783 9,828 9,853 9,853 9,853
Department of Energy: Federal Energy Regulation Commission, power marketing, and other
fees ................................................................................................................................................. 887 1,155 1,314 1,287 1,287 1,283 1,265
Department of Health and Human Services: Food and Drug Administration, Centers for Medicare
and Medicaid Services, and other fees ................................................................................. 1,324 899 981 958 960 955 940
Department of Homeland Security: Border and Transportation Security and other fees ................ 1,997 2,449 4,325 4,528 4,751 4,984 5,230
Department of the Interior: Minerals Management Service and other fees ..................................... 505 507 549 527 544 540 522
Department of Justice: Fees for bankruptcy oversight and other fees ............................................ 284 302 313 306 306 305 300
Department of State: Passport and other fees .................................................................................. 755 935 1,051 1,090 1,136 1,183 1,230
Department of the Treasury: Sale of commemorative coins and other fees ................................... 1,509 1,789 1,819 1,777 1,778 1,772 1,743
Department of Veterans Affairs: Medical care and other fees ......................................................... 1,815 2,033 2,248 2,344 2,446 2,553 2,663
Social Security Administration, State supplemental fees, supplemental security income ................ 118 128 135 132 132 132 130
Federal Communications Commission: Regulatory fees ................................................................... 370 365 386 376 376 375 368
Federal Trade Commission: Regulatory fees ..................................................................................... 98 123 139 156 156 156 153
Nuclear Regulatory Commission: Regulatory fees ............................................................................ 545 541 567 558 562 563 559
Securities and Exchange Commission: Regulatory fees ................................................................... 1,393 1,806 2,141 1,115 1,147 1,332 1,520
All other agencies, discretionary user charges .................................................................................. 389 565 677 664 670 668 657
Subtotal, discretionary user charges .............................................................................................. 23,222 24,868 28,557 27,868 28,435 29,120 29,748
Mandatory
Department of Agriculture: Crop insurance and other fees .............................................................. 1,539 1,959 1,971 2,008 2,066 2,131 2,181
Department of Defense: Commissary surcharge and other fees ...................................................... 877 908 589 518 404 354 338
Department of Energy: Proceeds from the sale of energy, nuclear waste disposal fees, and
other fees ....................................................................................................................................... 4,556 4,985 4,719 4,669 5,025 5,784 6,141
Department of Health and Human Services: Medicare
Part B insurance premiums, and other fees ................................................................................. 32,201 38,049 48,808 54,156 56,992 60,681 64,981
Department of Homeland Security: Customs, immigration, and other fees ..................................... 5,176 6,052 6,496 6,677 6,864 7,048 7,234
Department of the Interior: Recreation and other fees ..................................................................... 3,612 5,668 5,289 5,234 5,381 5,474 5,411
Department of Justice: Federal Prison Commissary fees and other fees ........................................ 362 413 586 568 579 590 602
Department of Labor: Insurance premiums to guaranty private pensions and other fees .............. 2,202 4,005 7,251 9,025 9,335 9,461 9,418
Department of the Treasury: Bank regulation, and other fees ......................................................... 752 812 988 1,003 1,024 1,047 1,068
Department of Veterans Affairs: Veterans life insurance and other fees ......................................... 1,724 1,717 2,004 1,964 1,932 1,908 1,878
Office of Personnel Management: Federal employee health and life insurance fees ..................... 9,738 10,661 11,439 12,258 13,162 14,060 15,122
Federal Deposit Insurance Corporation: Deposit insurance premiums ............................................. 763 666 908 1,071 1,470 2,059 3,059
National Credit Union Administration: Credit union share insurance and other fees ...................... 379 448 474 590 673 761 859
Postal Service: Fees for postal services ............................................................................................ 68,001 67,538 67,628 67,753 68,747 68,941 69,435
Tennessee Valley Authority: Proceeds from the sale of energy ....................................................... 7,576 7,797 8,075 8,108 8,091 8,149 8,338
Undistributed Offsetting Receipts: Sale of spectrum licenses, OCS receipts, and other charges .. 5,106 5,986 7,231 10,806 14,589 18,386 12,806
All other agencies, mandatory user charges ..................................................................................... 1,422 879 911 949 955 955 968
Subtotal, mandatory user charges ...................................................................................................... 145,986 158,543 175,367 187,357 197,289 207,789 209,839
Subtotal, user charges that are offsetting collections and receipts from the public ........................ 169,208 183,411 203,924 215,225 225,724 236,909 239,587
TOTAL, User charges ............................................................................................................................ 171,927 186,595 207,295 218,737 229,124 240,374 243,114
305 18. USER CHARGES AND OTHER COLLECTIONS
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 $5.3 billion in 2006,
increasing to $11.2 billion in 2010.
A. Discretionary User Charge Proposals
1. Offsetting collections
Department of Commerce
Patent and Trademark Office (PTO). The Administration
will propose legislation to permanently extend
changes to PTO’s patent and trademark fees that were
enacted in the 2005 Consolidated Appropriations Act.
These changes restructured patent fees and adjusted
trademark fees for 2005 and 2006 in support of the
objectives of PTO’s strategic plan to enhance examination
quality, improve the efficiency of the patent and
trademark examination systems, and better reflect the
agency’s costs.
Department of Homeland Security
Transportation Security Administration: Aviation security
fees. Aviation security fees are levied on both
passengers and air carriers. The Budget proposes to
increase aviation security passenger fees. In general,
passenger security fees will rise by $3.00. On a typical
one-way ticket, the passenger security fee will rise from
$2.50 to $5.50. For passengers flying multiple legs on
a one-way ticket, the fee will rise from $5.00 under
current law to $8.00. This proposal, along with air carrier
security fees, will result in fee levels that recover
nearly all of the $4.5 billion cost of airport screening
operations.
Table 18–3. USER FEE AND OTHER USER CHARGE PROPOSALS 1
(estimated collections in millions of dollars)
2006 2007 2008 2009 2010 2006–2010
DISCRETIONARY
1. Offsetting collections
Department of Commerce
Patent and Trademark Office ........................................................................................................................................ ............ 168 145 115 81 509
Department of Homeland Security
Transportation Security Administration:
Aviation security fees ................................................................................................................................................ 1,479 1,622 1,776 1,937 2,108 8,922
Department of Housing and Urban Development
Office of Federal Housing Enterprise Oversight: Government-sponsored enterprise (GSE) regulation ..................... –60 –59 –59 –58 –57 –293
2. Offsetting receipts
Nuclear Regulatory Commission
Extend Nuclear Regulatory Commission fees ............................................................................................................... 365 351 350 346 337 1,749
Subtotal, discretionary user charge proposals .......................................................................................................... 1,784 2,082 2,212 2,340 2,469 10,887
MANDATORY
1. Offsetting collections
Department of Housing and Urban Development
Government-sponsored enterprise (GSE) regulation .................................................................................................... 6 6 6 6 6 30
Department of Labor
Pension Benefit Guaranty Corporation .......................................................................................................................... 2,195 3,702 3,490 3,199 2,836 15,422
Department of the Treasury
Office of Housing Finance Supervision: Government-sponsored enterprise (GSE) regulation ................................... 96 94 94 95 95 474
Federal Deposit Insurance Corporation
Merge the bank insurance fund and the savings association insurance fund ............................................................ ............ ............ ............ –380 –856 –1,236
Federal Housing Finance Board
Government-sponsored enterprise (GSE) regulation .................................................................................................... –36 –37 –38 –39 –40 –190
2. Offsetting receipts
User Fee Proposals
Department of Agriculture
Animal and Plant Health Inspection Service user fees* .......................................................................................... 11 11 11 12 12 57
Food Safety and Inspection Service user fees* ....................................................................................................... 139 142 145 148 151 725
Grain Inspection, Packers and Stockyards Administration user fees* ..................................................................... 25 26 26 27 27 131
Agricultural Marketing Service standardization user fees* ....................................................................................... 3 3 3 3 3 15
Department of Justice
Bureau of Alcohol, Tobacco, Firearms and Explosives:
Explosives regulation user fees* ........................................................................................................................... 120 120 120 120 120 600
Department of Transportation
St. Lawrence Seaway Development Corporation user fees* ................................................................................... 8 17 17 17 17 76
306 ANALYTICAL PERSPECTIVES
Table 18–3. USER FEE AND OTHER USER CHARGE PROPOSALS 1—Continued
(estimated collections in millions of dollars)
2006 2007 2008 2009 2010 2006–2010
Department of the Treasury
Alcohol and Tobacco Tax and Trade Bureau regulatory activity user fees* .......................................................... 29 29 29 29 29 145
Department of Veterans Affairs
Establish an annual enrollment fee for non-disabled, higher income veterans* ..................................................... 248 248 248 248 1,240
Increased pharmaceutical copayments* .................................................................................................................... 176 178 180 181 183 898
Medical services (illustrative discretionary spending authority—non-add) .......................................................... (424) (426) (428) (429) (431) (2,138)
Environment Protection Agency
Pre-manufacture notice user fees* ............................................................................................................................ 4 8 8 8 8 36
Pesticide tolerance user fees* 2 ............................................................................................................................... 20 20 21 21 22 104
Pesticide registration user fees* ............................................................................................................................... 26 27 27 28 28 136
Federal Communications Commission
Authorize spectrum license user fees ....................................................................................................................... ............ 50 150 300 300 800
Analog spectrum lease fees ..................................................................................................................................... ............ 500 500 480 450 1,930
Subtotal, User fee proposals ............................................................................................................................. 809 1,379 1,485 1,622 1,598 6,893
Other Proposals
Department of Agriculture
Forest Service: Administration of rights-of-way ........................................................................................................ 5 5 5 5 5 25
Forest Service: Facilities enhancement .................................................................................................................... 42 42 42 65 65 256
Department of Energy
Power Marketing Administrations: Charge market rates .......................................................................................... 40 157 446 1,145 1,406 3,194
Department of Homeland Security
Immigration examination fees ................................................................................................................................... 31 31 31 31 31 155
Department of the Interior
Arctic National Wildlife Refuge, sale of leases:
Collections for payments to Alaska ...................................................................................................................... ............ 1,200 1 101 1 1,303
Federal receipts .................................................................................................................................................... ............ 1,200 1 101 1 1,303
Department of Labor
Foreign labor certification fees ................................................................................................................................. 40 40 40 40 40 200
Corps of Engineers—Civil Works
Additional recreation fees ......................................................................................................................................... 9 17 17 17 17 77
Federal Communications Commission
Extending spectrum auction authority ....................................................................................................................... ............ ............ –1,083 2,156 3,239 4,312
Subtotal, other proposals ..................................................................................................................................... 167 2,692 –500 3,661 4,805 10,825
Subtotal, mandatory user charge proposals ............................................................................................................. 3,237 7,836 4,537 8,164 8,444 32,218
GOVERNMENTAL RECEIPTS
Department of the Interior
Abandoned mine reclamation fees ............................................................................................................................... 304 312 318 322 323 1,579
Increase Indian Gaming Commission, activity fees ...................................................................................................... ............ 4 4 5 5 18
Subtotal, governmental receipts user charge proposals .......................................................................................... 304 316 322 327 328 1,597
Total, user charge proposals ..................................................................................................................................... 5,325 10,234 7,071 10,831 11,241 44,702
1 A negative sign indicates a decrease in collections.
2 Includes outlay reductions in 2009 and 2010.
* The Administration will work with Congress to reclassify the enacted fees as discretionary beginning in 2007. Once reclassified, the Administration proposes to offset these fees against discretionary
spending. Discretionary totals in those years will be reduced by these fees.
Department of Housing and Urban Development
Office of Federal Housing Enterprise Oversight: Government-
sponsored enterprise (GSE) regulation. This
proposal is discussed below in the Department of the
Treasury entry for the Office of Housing Finance Supervision.
2. Offsetting receipts
Nuclear Regulatory Commission
Extend Nuclear Regulatory Commission (NRC) fees
at their 2005 level for 2006 and later. The Budget is
proposing to extend NRC fees. The Omnibus Budget
Reconciliation Act (OBRA) of 1990, as amended, required
that the NRC assess license and annual fees
that recover approximately 90 percent of its budget authority
in 2005, less the appropriation from the Nuclear
Waste Fund. Licensees are required to reimburse NRC
for its services, because licensees benefit from such
services. After 2005, the recovery requirement reverts
to 33 percent per year. If the 90 percent requirement
is not extended beyond 2005, fees would drop from a
proposed $567 million in 2006 to $202 million, a loss
of $365 million.
307 18. USER CHARGES AND OTHER COLLECTIONS
B. Mandatory User Charge Proposals
1. Offsetting collections
Department of Housing and Urban Development
Government-sponsored enterprise (GSE) regulation.
This proposal is discussed below in the Department
of the Treasury entry for the Office of Housing Finance
Supervision.
Department of Labor
Pension Benefit Guaranty Corporation (PBGC). The
PBGC receives much of its income for its single-employer
plan through flat-rate and variable-rate premiums.
The current flat-rate premiums are $19 per
participant and have not been changed since 1991. The
Administration’s 2006 proposal would increase this
amount to $30 per participant and future increases
would be indexed to wage growth. Variable-rate premiums
would also be reformed to reflect new funding
targets. The PBGC’s Board of Directors would periodically
review the variable-rate premiums to cover the
cost of expected claims and to improve the PBGC’s financial
position. In 2006 these changes would result
in an additional $2,195 million in premium income for
the PBGC.
Department of the Treasury
Office of Housing Finance Supervision: Governmentsponsored
enterprise (GSE) regulation. The Administration
will again propose broad reform of the supervisory
system for Government-sponsored enterprises (GSEs) in
the housing market. Fees currently collected by the
Office of Federal Housing Enterprise Oversight and the
Federal Housing Finance Board would instead be collected
by a new housing GSE safety and soundness
regulator. The Budget places this new regulator in the
Department of the Treasury. For additional information,
see Chapter 7, ‘‘Credit and Insurance’’, in this
volume, and the Department of the Treasury chapter
in the Appendix volume.
Federal Deposit Insurance Corporation
Merge the bank insurance fund and the saving association
insurance fund. The Federal Deposit Insurance
Corporation (FDIC) insures deposits in banks and savings
associations (thrifts) through the Bank Insurance
Fund (BIF) and the Savings Association Insurance
Fund (SAIF). This Budget proposes to merge the BIF
and the SAIF, which offer an identical product. The
FDIC maintains a reserve ratio of insurance fund reserves
to total insured deposits of 1.25 percent. If insurance
fund reserves fall below 1.25 percent, the FDIC
will charge sufficient premiums to restore the reserve
ratio to 1.25 percent. Under baseline assumptions, BIF
is expected to need to dramatically increase the insurance
premiums it charges banks in 2009. Because the
merged fund would be financially stronger, the combined
fund is not expected to need to increase premiums
until 2012.
Federal Housing Finance Board
Government-sponsored enterprise (GSE) regulation.
This proposal is discussed above in the Department
of the Treasury entry for the Office of Housing Finance
Supervision.
2. Offsetting receipts
User Fee Proposals
For the proposals noted with an asterisk (*) in the
text below and in Table 18–3, the Administration will
work with Congress to reclassify the enacted fees as
discretionary beginning in 2007. Once reclassified, the
Administration proposes to offset these fees against discretionary
spending. Discretionary totals in those years
will be reduced by these fees.
Department of Agriculture
Animal and Plant Health Inspection Service user
fees.* The Administration proposes to establish user
fees for animal welfare inspections, such as for animal
research centers, humane societies, and kennels.
Food Safety and Inspection Service user fees.* The
Administration proposes a new user fee for the Food
Safety and Inspection Service (FSIS). Under the proposed
fee, the meat, poultry and egg industries would
be required to reimburse the Federal Government for
the full cost of extra shifts for inspection services. FSIS
would cover the cost of a primary eight hour shift and
the establishments would pay for additional complete
work shifts. Currently, establishments pay for overtime
when it is less than one complete shift.
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.
Agriculture Marketing Service (AMS) standardization
user fees.* The Administration proposes to recover the
cost of developing, reviewing and modifying quality
grade standards through user fees. This proposal would
enable the AMS to charge fees to customers of the
agency’s inspection and grading programs for the cost
associated with the development, review, and maintenance
of official grade standards for which the agency
has these established services.
Department of Justice
Bureau of Alcohol, Tobacco, Firearms and Explosives:
Explosives regulation user fees.* The Budget includes
a proposal to authorize the Department of Justice to
assess an explosives user fee on all explosives manufactured
in or imported into the United States. For 2006,
a user fee of $0.02/ pound would generate $120 million
in additional collections. This new user fee, when combined
with the Department’s current explosives licensing
fees, would provide full offset for the Bureau’s regulation
of the explosives industry. The fee would be set
308 ANALYTICAL PERSPECTIVES
in regulation, and could be increased as deemed necessary
by the Attorney General.
Department of Transportation
St. Lawrence Seaway Development Corporation
(SLSDC) user fees.* This SLSDC is a wholly owned
government corporation and an operating administration
of the Department of Transportation responsible
for the operations and maintenance of the U.S. portion
of the St. Lawrence Seaway between Montreal and
Lake Erie. The President’s Budget proposes permanent
authority for the U.S. SLSDC to collect mandatory receipts
from users of the seaway. The proposal also provides
some funding in 2006 for SLSDC if revenues are
not sufficient to cover operational costs in the first year
of implementation. The President’s proposal would
make SLSDC consistent with the St. Lawrence Seaway
Management Corporation, its Canadian counterpart,
which currently supports its operations through fees.
Department of the Treasury
Alcohol and Tobacco Tax and Trade Bureau regulatory
activity user fees.* The Budget proposes to establish
user fees to cover the costs of the Tax and Trade
Bureau’s regulatory functions under its ‘‘Protect the
Public’’ line-of-business. The new user fees include filing
fees for Certificate of Label Approvals, proposed
formulas, and permit applications, among others.
Department of Veterans Affairs
Establish an annual enrollment fee for PL 7 and PL
8 veterans (non-disabled, higher income).* The Administration
proposes to establish an annual enrollment fee
of $250 for Priority Level 7 and 8 veterans. The increased
receipts will allow the Department of Veterans
Affairs to refocus the medical care system on caring
for its core population—veterans with special needs,
service-connected disabilities, and lower incomes.
Increased pharmaceutical copayments for PL 7 and
PL 8 veterans (non-disabled, higher income).* The Administration
proposes to increase pharmaceutical copayments
from $7 to $15 for Priority Level 7 and 8 veterans.
The increased receipts will more closely align
the Department of Veterans Affairs with the private
sector and the Department of Defense while allowing
the Department of Veterans Affairs to refocus the medical
care system on caring for its core population—veterans
with special needs, service-connected disabilities,
and lower incomes.
Environmental Protection Agency
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.
Pesticide tolerance user fees.* The Federal Food,
Drug, and Cosmetic Act (FFDCA) requires the Environmental
Protection Agency (EPA) to collect fees for establishment
and reassessment of pesticide tolerances.
Tolerances are maximum limits set by EPA on the
amount of pesticides that may remain in or on foods
after they have been treated. Collection of these tolerance
fees has been blocked in appropriations acts since
2001. Most recently, provisions in the 2004 Consolidated
Appropriations Act suspended this authority
through 2008. The Administration proposes to eliminate
the prohibition on the collection of the tolerance fee
beginning in 2006.
Pesticide registration user fees.* EPA has the authority
and an existing rule to collect fees from entities
seeking to register their pesticides for use in the United
States. However, these fees have been blocked through
appropriations acts since 1989. Most recently, provisions
in the 2004 Consolidated Appropriations Act suspended
this authority through 2010. The Administration
proposes to eliminate the prohibition on collecting
this pesticide registration fee beginning in 2006.
Federal Communications Commission
Authorize spectrum license user fees. To continue to
promote efficient spectrum use, the Administration proposes
new authority for the FCC to set user fees on
unauctioned spectrum licenses, based on public-interest
and spectrum-management principles. Fee collections
are proposed to begin in 2007 and total $3.1 billion
through 2015.
Analog spectrum lease fee. To encourage television
broadcasters to vacate the analog spectrum in a timely
fashion as required by law, the Administration proposes
authorizing the FCC to establish an annual lease fee
totaling $500 million for the use of analog spectrum
by commercial broadcasters beginning in 2007. Upon
return of their analog spectrum license to the FCC,
individual broadcasters would be exempt from the fee,
and fee collections would decline.
Other Proposals
Department of Agriculture
Forest Service: Administration of rights-of-way. This
increase in receipts reflects a Budget proposal that
would permit the Forest Service to collect fees based
upon a more accurate reflection of costs incurred in
the administration and monitoring of special use permits
on National Forest Systems lands.
Forest Service: Facilities enhancement. The Administration
proposes reforms to enhance Forest Service efforts
to improve its accountability and focus on measurable
results in the management of national forests.
These reforms will allow for the sale of unneeded facilities,
with receipts being devoted to maintenance or replacement
of needed existing facilities.
Department of Energy
Power Marketing Administrations: Charge market
rates. The Budget proposes to very gradually bring
PMA electricity rates closer to average market rates
throughout the country. According to the Government
309 18. USER CHARGES AND OTHER COLLECTIONS
Accountability Office, taxpayers across the Nation have
borne some of the PMAs’ costs and, therefore, helped
subsidize the cost of PMA power purchased by electricity
wholesalers. Reducing subsidies to electricity
wholesalers is consistent with the Administration’s policies,
and this proposal will create a more level playing
field for the Nation’s electricity suppliers and encourage
appropriate energy conservation.
Department of Homeland Security
Immigration examination fees. The Administration
proposes to adjust fees for Temporary Protected Status
applications to fully capture processing costs and allow
the Department to charge premium service fees for certain
adjudications.
Department of the Interior
Arctic National Wildlife Refuge: Collections for payments
to Alaska and Federal receipts. The Budget includes
a proposal to authorize the Department of the
Interior to conduct environmentally responsible oil and
gas exploration and development within a small area
of the Arctic National Wildlife Refuge, sometimes referred
to as the ‘‘1002 Area,’’ located in northern Alaska.
The Department of the Interior estimates that recoverable
oil from this area is between 5.7 and 16 billion
barrels. The Budget assumes that the first oil and
gas lease sale would be held in 2007 and would result
in $2.4 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 $2 million
in annual rental payments. (The Federal share of revenues
would be deposited in the Treasury.)
Department of Labor
Foreign labor certification fees. The Administration
will propose legislation to establish a new fee for applications
under the permanent labor certification program.
Fee proceeds would offset the costs of administering
the program and partially support backlog reduction
in regional offices. Upon enactment of the fee,
funding for these activities now included in the Program
Administration account will be reviewed and adjusted.
Corps of Engineers—Civil Works
Additional recreation fees. The Corps of Engineers
manages 4,300 recreation areas at 465 Corps projects
(mostly lakes) in 43 states, used annually by millions
of visitors. The Administration proposes a Corps recreation
modernization initiative, based on a promising
model now used by the National Park Service, the Forest
Service, and other major Federal recreation providers.
The agency would use a portion of the fees it
collects (such as entrance fees) to upgrade the site
where the fees are collected. The Corps would also seek
legislative authority to operate a limited number of
public/private partnerships, such as lake improvement
districts, which would draw on local property owners
and community leaders to help manage and finance
the Corps recreation program. The Administration will
use user fees as a percent of total program spending
as a performance measure for this program since that
is an indicator of community support for the program.
Federal Communications Commission (FCC)
Extending spectrum auction authority. The Administration
proposes to extend indefinitely the FCC’s authority
to auction spectrum licenses, which expires in
2007. Reductions in estimated receipts in 2008 resulting
from possible shifting of spectrum auctions into
later years are more than offset by higher estimated
receipts for those auctions in 2009 and 2010 as well
as new future auctions. Estimated additional receipts
from this proposal are $5.1 billion over the next ten
years.
C. User Charge Proposals that are Governmental
Receipts
Department of the Interior
Abandoned mine reclamation fees. Collections from
abandoned mine reclamation fees are allocated to
States for reclamation grants. Current fees of 35 cents
per ton for surface mined coal, 15 cents per ton for
underground mined coal, and 10 cents per ton for lignite
coal are scheduled to expire on June 30, 2005.
Abandoned land problems are expected to exist in certain
States after all the money from the collection of
fees under current law is expended. The Administration
proposes to extend these fees to clean up and reclaim
in 25 years the most significant abandoned mine land
problems. The Administration also proposes to modify
the authorization language to allocate more of the receipts
collected toward restoration of abandoned coal
mine land.
National Indian Gaming Commission, activity fees.
The National Indian Gaming Commission regulates and
monitors gaming operations conducted on Indian lands.
Since 1998, there has been a fixed cap on the annual
fees the Commission may assess gaming operations to
cover the costs of its oversight responsibilities. The Administration
proposes to amend the current fee structure
so that the Commission can adjust its activities
to the growth in the Indian gaming industry.
OTHER OFFSETTING COLLECTIONS AND RECEIPTS
Table 18–4 shows the distribution of user charges
and other offsetting collections and receipts 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 $275.8 billion in 2006.
Of these, an estimated $162.0 billion are offsetting collections
credited to expenditure accounts and an esti310
ANALYTICAL PERSPECTIVES
mated $113.8 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 payments from one
part of the Government to another, called
intragovernmental transactions, and collections from
the public. These receipts are offset (deducted) from
outlays in the Federal budget. In total, offsetting receipts
are estimated to be $651.4 billion in 2006: $537.6
billion are intragovernmental transactions; and $113.8
billion are from the public, shown in the table as proprietary
receipts from the public ($108.0 billion) and offsetting
governmental receipts ($5.8 billion).
As noted above, offsetting collections and receipts by
agency are also displayed in Table 21–1, ‘‘Outlays to
the Public, Net and Gross,’’ which appears in Chapter
21 of this volume.
Table 18–4. OFFSETTING COLLECTIONS AND RECEIPTS FROM THE PUBLIC
(in millions of dollars)
Actual
2004
Estimate
2005 2006
Offsetting collections credited to expenditure accounts:
User charges:
Postal service stamps and other postal fees ............................................................................................................................................ 68,001 67,538 67,628
Defense Commissary Agency .................................................................................................................................................................... 5,281 5,262 5,256
Employee contributions for employees and retired employees health benefits funds .............................................................................. 7,932 8,776 9,442
Sale of energy:
Tennessee Valley Authority .................................................................................................................................................................... 7,576 7,797 8,075
Bonneville Power Administration ............................................................................................................................................................ 3,279 3,647 3,647
All other user charges ................................................................................................................................................................................ 27,539 30,828 37,665
Subtotal, user charges ........................................................................................................................................................................... 119,608 123,848 131,713
Other collections credited to expenditure accounts:
Commodity Credit Corporation fund ........................................................................................................................................................... 8,699 14,383 13,736
Supplemental security income (collections from the States) ..................................................................................................................... 4,168 4,318 4,520
Other collections ......................................................................................................................................................................................... 15,800 12,090 12,006
Subtotal, other collections ...................................................................................................................................................................... 28,667 30,791 30,262
Subtotal, collections credited to expenditure accounts .............................................................................................................................. 148,275 154,639 161,975
Offsetting receipts:
User charges:
Medicare premiums ..................................................................................................................................................................................... 32,140 38,010 48,765
Outer Continental Shelf rents, bonuses, and royalties ............................................................................................................................... 5,106 5,886 7,131
All other user charges ................................................................................................................................................................................ 12,354 15,667 16,315
Subtotal, user charges deposited in receipt accounts ........................................................................................................................... 49,600 59,563 72,211
Other collections deposited in receipt accounts:
Military assistance program sales .............................................................................................................................................................. 11,734 10,882 11,114
Interest income ............................................................................................................................................................................................ 14,160 14,529 14,248
All other collections deposited in receipt accounts ................................................................................................................................... 25,832 13,454 16,215
Subtotal, other collections deposited in receipt accounts ...................................................................................................................... 51,726 38,865 41,577
Subtotal, collections deposited in receipt accounts ................................................................................................................................... 101,326 98,428 113,788
Total, offsetting collections and receipts from the public ....................................................................................................................... 249,601 253,067 275,763
Total, offsetting collections and receipts excluding off-budget .............................................................................................................. 181,509 185,457 208,062
ADDENDUM:
User charges that are offsetting collections and receipts 1 ............................................................................................................................ 169,208 183,411 203,924
Other offsetting collections and receipts from the public ............................................................................................................................... 80,393 69,656 71,839
Total, offsetting collections and receipts from the public ................................................................................................................... 249,601 253,067 275,763
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.
311 18. USER CHARGES AND OTHER COLLECTIONS
Table 18–5. OFFSETTING RECEIPTS BY TYPE
(In millions of dollars)
Source 2004
Actual
Estimate
2005 2006 2007 2008 2009 2010
INTRAGOVERNMENTAL TRANSACTIONS
On-budget receipts:
Federal intrafund transactions:
Distributed by agency:
Interest from the Federal Financing Bank ................................................................... 1,156 515 429 668 574 436 467
Proposed Legislation (non-PAYGO) ........................................................................ .................. .................. .................. 79 105 103 101
Interest on Government capital in enterprises ............................................................ 1,000 922 1,165 1,170 1,120 1,086 1,067
Interest received by retirement and health benefits funds ......................................... .................. 217 217 215 213 213 215
General fund payments to retirement and
health benefits funds:
DoD retiree health care fund ................................................................................... 16,961 17,273 18,971 20,871 22,954 25,223 27,690
Miscellaneous Federal retirement funds .................................................................. .................. 277 277 277 309 369 466
Proposed Legislation (non-PAYGO) .................................................................... .................. .................. 1,951 2,227 2,565 2,796 3,148
Other ............................................................................................................................. 2,303 2,308 2,470 2,558 2,140 2,203 2,233
Proposed Legislation (non-PAYGO) .................................................................... .................. .................. 19 97 282 495 733
Undistributed by agency:
Employing agency contributions:
DoD retiree health care fund ................................................................................... 8,140 10,753 10,996 11,592 12,287 13,057 13,880
Proposed Legislation (non-PAYGO) .................................................................... .................. .................. 2,951 3,157 3,378 3,615 3,868
Total Federal intrafunds ................................................................................................ 29,560 32,265 39,446 42,911 45,927 49,596 53,868
Trust intrafund transactions:
Distributed by agency:
Payments to railroad retirement ................................................................................... 5,993 4,935 6,225 6,545 6,640 6,735 6,982
Total trust intrafunds ..................................................................................................... 5,993 4,935 6,225 6,545 6,640 6,735 6,982
Total intrafund transactions .............................................................................................. 35,553 37,200 45,671 49,456 52,567 56,331 60,850
Interfund transactions:
Distributed by agency:
Federal fund payments to trust funds:
Contributions to insurance programs:
Military retirement fund ........................................................................................ 18,189 21,358 23,241 24,112 25,015 25,955 26,927
Supplementary medical insurance ....................................................................... 94,736 115,230 182,748 194,542 204,071 216,112 229,885
Proposed Legislation (non-PAYGO) ............................................................... .................. .................. 108 36 .................. .................. ..................
Hospital insurance ................................................................................................ 9,259 9,332 10,492 11,574 13,453 14,800 15,543
Railroad social security equivalent fund ............................................................. 121 118 121 132 148 153 158
Rail industry pension fund ................................................................................... 314 323 318 330 343 357 371
Civilian supplementary retirement contributions .................................................. 26,177 26,431 26,835 27,426 27,922 28,520 29,019
Unemployment insurance .................................................................................... 1,543 802 738 715 715 714 718
Other contributions ............................................................................................... 402 550 572 573 583 585 579
Subtotal ................................................................................................................ 150,741 174,144 245,173 259,440 272,250 287,196 303,200
Miscellaneous payments .......................................................................................... 2,123 1,817 1,730 1,692 1,683 1,675 1,638
Proposed Legislation (non-PAYGO) .................................................................... .................. .................. 3,808 .................. .................. .................. ..................
Subtotal ..................................................................................................................... 152,864 175,961 250,711 261,132 273,933 288,871 304,838
Trust fund payments to Federal funds:
Existing law ............................................................................................................... 1,283 3,307 1,664 3,021 3,513 3,568 3,632
Proposed Legislation (non-PAYGO) .................................................................... .................. .................. 3,343 –459 –452 –448 –449
Subtotal ..................................................................................................................... 1,283 3,307 5,007 2,562 3,061 3,120 3,183
Total interfunds distributed by agency ......................................................................... 154,147 179,268 255,718 263,694 276,994 291,991 308,021
Undistributed by agency:
Employer share, employee retirement (on-budget):
Civil service retirement and disability insurance ..................................................... 12,083 12,765 13,690 14,706 15,860 16,918 18,060
CSRDI from Postal Service ..................................................................................... 4,199 4,414 4,507 4,555 4,605 4,659 4,712
Hospital insurance (contribution as employer) 1 ..................................................... 2,713 2,627 2,659 2,696 2,781 2,871 2,968
Postal employer contributions to FHI ...................................................................... 710 673 674 701 729 758 788
Military retirement fund ............................................................................................. 14,071 16,636 15,466 15,776 16,317 16,822 17,405
Other Federal employees retirement ....................................................................... 184 211 242 278 320 368 423
312 ANALYTICAL PERSPECTIVES
Table 18–5. OFFSETTING RECEIPTS BY TYPE—Continued
(In millions of dollars)
Source 2004
Actual
Estimate
2005 2006 2007 2008 2009 2010
Total employer share, employee retirement (on-budget) ........................................ 33,960 37,326 37,238 38,712 40,612 42,396 44,356
Interest received by on-budget trust funds ............................................................. 67,761 71,457 73,378 76,405 79,673 83,320 86,634
Proposed Legislation (non-PAYGO) .................................................................... .................. .................. –4 –1 –7 –9 –9
Total interfund transactions undistributed by agency .................................................. 101,721 108,783 110,612 115,116 120,278 125,707 130,981
Total interfund transactions .............................................................................................. 255,868 288,051 366,330 378,810 397,272 417,698 439,002
Total on-budget receipts ....................................................................................................... 291,421 325,251 412,001 428,266 449,839 474,029 499,852
Off-budget receipts:
Interfund transactions:
Distributed by agency:
Federal fund payments to trust funds:
Old-age, survivors, and disability insurance ............................................................ 14,342 16,388 16,066 17,716 20,512 21,422 23,156
Undistributed by agency:
Employer share, employee retirement (off-budget) ................................................. 11,331 10,911 11,357 11,802 12,475 13,190 13,907
Interest received by off-budget trust funds ............................................................. 86,228 91,995 98,144 106,672 117,008 128,724 141,373
Total off-budget receipts: ...................................................................................................... 111,901 119,294 125,567 136,190 149,995 163,336 178,436
Total intragovernmental transactions ................................................................................... 403,322 444,545 537,568 564,456 599,834 637,365 678,288
PROPRIETARY RECEIPTS FROM THE PUBLIC
Distributed by agency:
Interest:
Interest on foreign loans and deferred foreign collections .............................................. 411 432 415 439 354 352 350
Interest on deposits in tax and loan accounts ................................................................ 136 338 471 529 564 578 593
Other interest (domestic—civil) 2 ...................................................................................... 10,624 11,922 12,112 12,765 13,526 14,153 14,730
Total interest ...................................................................................................................... 11,171 12,692 12,998 13,733 14,444 15,083 15,673
Dividends and other earnings ........................................................................................... 2,989 1,837 1,250 1,296 1,313 1,319 1,308
Royalties and rents ............................................................................................................... 2,449 3,815 3,732 3,671 3,752 3,855 3,781
Sale of products:
Sale of timber and other natural land products ............................................................... 211 244 258 280 332 318 323
Sale of minerals and mineral products ............................................................................ 35 59 65 67 65 66 67
Sale of power and other utilities ...................................................................................... 617 721 409 411 413 409 394
Proposed Legislation (PAYGO) .................................................................................... .................. .................. 40 157 446 1,145 1,406
Other ................................................................................................................................. 79 99 97 86 103 100 89
Total sale of products ....................................................................................................... 942 1,123 869 1,001 1,359 2,038 2,279
Fees and other charges for services and special benefits:
Medicare premiums and other charges (trust funds) ...................................................... 32,140 38,010 48,730 54,101 56,949 60,637 64,937
Proposed Legislation related to Medicaid proposal (PAYGO) .................................... .................. .................. 35 12 .................. .................. ..................
Nuclear waste disposal revenues ..................................................................................... 776 749 754 757 767 767 769
Veterans life insurance (trust funds) ................................................................................ 204 176 163 146 132 120 106
Veterans pharmaceutical copayments: Proposed Legislation (PAYGO) ......................... .................. .................. 176 178 180 181 183
Other 2 ............................................................................................................................... 3,780 3,824 10,785 13,765 14,773 15,867 17,049
Proposed Legislation (PAYGO) .................................................................................... .................. .................. 1,265 1,291 1,295 1,301 1,305
Total fees and other charges ........................................................................................... 36,900 42,759 61,908 70,250 74,096 78,873 84,349
Sale of Government property:
Sale of land and other real property 2 ............................................................................. 621 1,321 982 985 987 967 970
Proposed Legislation (PAYGO) .................................................................................... .................. .................. –576 –576 –576 –553 –553
Military assistance program sales (trust funds) ............................................................... 11,734 10,882 11,114 11,044 11,243 11,446 11,651
Other ................................................................................................................................. 81 166 89 64 16 16 16
Total sale of Government property .................................................................................. 12,436 12,369 11,609 11,517 11,670 11,876 12,084
Realization upon loans and investments:
Negative subsidies and downward reestimates ............................................................... 8,159 5,434 1,071 1,001 990 970 845
Repayment of loans to foreign nations ............................................................................ 88 94 108 25 28 30 33
Other ................................................................................................................................. 9,547 281 80 78 75 88 88
313 18. USER CHARGES AND OTHER COLLECTIONS
Table 18–5. OFFSETTING RECEIPTS BY TYPE—Continued
(In millions of dollars)
Source 2004
Actual
Estimate
2005 2006 2007 2008 2009 2010
Total realization upon loans and investments ................................................................. 17,794 5,809 1,259 1,104 1,093 1,088 966
Recoveries and refunds 2 ..................................................................................................... 4,384 4,548 4,729 4,893 5,112 6,077 5,209
Proposed Legislation (PAYGO) ........................................................................................ .................. .................. 294 328 356 386 393
Miscellaneous receipt accounts 2 ......................................................................................... 2,650 2,168 2,209 2,226 2,245 2,263 2,290
Proposed Legislation (PAYGO) ........................................................................................ .................. .................. 33 33 31 31 29
Total proprietary receipts from the public distributed by agency ........................................ 91,715 87,120 100,890 110,052 115,471 122,889 128,361
Undistributed by agency:
Rents, bonuses, and royalties:
Outer Continental Shelf rents and bonuses ..................................................................... 644 646 677 669 683 662 594
Outer Continental Shelf royalties ...................................................................................... 4,462 5,240 6,454 6,074 6,085 6,438 6,727
Arctic National Wildlife Refuge:
Proposed Legislation (PAYGO) .................................................................................... .................. .................. .................. 2,402 2 202 2
Sale of major assets ............................................................................................................. .................. .................. .................. 323 .................. .................. ..................
Other undistributed offsetting receipts .................................................................................. .................. .................. .................. 1,500 5,000 4,300 ..................
Total proprietary receipts from the public undistributed by agency .................................... 5,106 5,886 7,131 10,968 11,770 11,602 7,323
Total proprietary receipts from the public ........................................................................... 96,821 93,006 108,021 121,020 127,241 134,491 135,684
OFFSETTING GOVERNMENTAL RECEIPTS
Distributed by agency:
Defense cooperation .............................................................................................................. .................. 17 12 13 14 15 16
Regulatory fees ...................................................................................................................... 4,481 5,183 5,521 5,515 5,558 5,596 5,630
Proposed Legislation (non-PAYGO) ................................................................................. .................. .................. –60 –59 –59 –58 –57
Proposed Legislation (PAYGO) ........................................................................................ .................. .................. 71 71 71 71 71
Other ..................................................................................................................................... 24 122 123 123 123 123 124
Undistributed by agency:
Spectrum auction proceeds .................................................................................................. .................. 100 100 788 8,252 8,148 1,494
Proposed Legislation (PAYGO) ........................................................................................ .................. .................. .................. 550 –433 2,936 3,989
Total offsetting governmental receipts .................................................................................. 4,505 5,422 5,767 7,001 13,526 16,831 11,267
Total offsetting receipts .......................................................................................................... 504,648 542,973 651,356 692,477 740,601 788,687 825,239
1 Includes provision for covered Federal civilian employees and military personnel.
2 Includes both Federal funds and trust funds.
