This is the accessible text file for GAO report number GAO-03-497T 
entitled 'Airport Finance: Past Funding Levels May Not Be Sufficient to 
Cover Airports' Planned Capital Development' which was released on 
February 25, 2003.



This text file was formatted by the U.S. General Accounting Office 

(GAO) to be accessible to users with visual impairments, as part of a 

longer term project to improve GAO products’ accessibility. Every 

attempt has been made to maintain the structural and data integrity of 

the original printed product. Accessibility features, such as text 

descriptions of tables, consecutively numbered footnotes placed at the 

end of the file, and the text of agency comment letters, are provided 

but may not exactly duplicate the presentation or format of the printed 

version. The portable document format (PDF) file is an exact electronic 

replica of the printed version. We welcome your feedback. Please E-mail 

your comments regarding the contents or accessibility features of this 

document to Webmaster@gao.gov.



Testimony 

Before the Subcommittee on Aviation, Senate Committee on Commerce, 

Science, and Transportation:



For Release on Delivery

Expected at 9:30 a.m. EST 

Tuesday, February 25, 2003:



Airport Finance:



Past Funding Levels May Not Be Sufficient to Cover Airports’ Planned 

Capital Development:



Statement of Gerald L. Dillingham

Director, Civil Aviation Issues:



GAO-03-497T:



GAO Highlights:



Highlights of GAO-03-475T, a testimony before the Subcommittee on 

Aviation, Senate Committee on Commerce, Science, and Transportation  



Why GAO Did This Study:



Much has changed since the Congress enacted the Wendell H. Ford 

Aviation Investment and Reform Act for the 21st Century (AIR-21) 3 

years ago. The downturn in the nation’s economy and the terrorist 

attacks of September 11, 2001, have taken a heavy toll on aviation, 

and competition for federal funding has grown. Yet the decline in 

air traffic has also created a window of opportunity to ensure the 

safety and efficiency of the national airport system until the 

demand for air traffic services rebounds. 



The reauthorization of AIR-21 gives the Congress and the Federal 

Aviation Administration (FAA) a chance to analyze the estimated 

costs of airports’ planned capital development and the availability 

of funding to meet these costs.  



This testimony is based on ongoing and published GAO work. The 

information on funding and development, obtained from FAA and the 

Airport Council International (ACI), a key organization 

representing the airport industry, is preliminary and therefore 

subject to change.



What GAO Found:



The estimated costs of airports’ planned capital development 

vary, from FAA’s estimate of about $9 billion a year to ACI’s 

estimate of about $15 billion a year. FAA’s estimate, for 2001 

through 2005, includes only projects that are eligible for federal 

funding, whereas ACI’s estimate, for 2002 through 2006, includes 

projects that may or may not be eligible. Neither estimate covers 

the costs of modifying airport terminals to accommodate the 

explosives detection systems required to screen checked baggage. 

According to ACI, these costs could be $3 billion to $5 billion 

over the next 5 years.   



From 1999 through 2001, airports received an average of about $12 

billion a year for planned capital development, mostly from bonds 

(almost $7 billion) and federal sources, including grants 

($2.4 billion) and passenger facility charges ($1.6 billion). Of 

the $12 billion, larger airports received over 

$9 billion and smaller airports received over $2 billion annually, 

on average.



If airports continue to receive about $12 billion a year for 

planned capital development, they would be able to fund all of 

the projects included in FAA’s estimate, but they would not be 

able to fund about $3 billion in planned development estimated 

by ACI. While this projected shortfall could change with revisions 

in future funding, planned development, or both, it nevertheless 

indicates where funding differences may be the greatest.



Options are available to increase or make better use of funding for 

airport development, and these options would benefit different 

types of airports to varying degrees. For example, raising the 

current cap on passenger facility charges would primarily benefit 

larger airports, while increasing or redistributing grant funds 

would be more likely to help smaller airports.



www.gao.gov/cgi-bin/getrpt?GAO-03-475T. To view the full testimony, 

including the scope

and methodology, click on the link above. For more information, 

contact Gerald L. Dillingham at (202) 512-3650 or 

dillinghamg@gao.gov.



[End of section]



Mr. Chairman and Members of the Subcommittee:



We are pleased to be here today to discuss airport financing issues, 

which are particularly important as you prepare to reauthorize the 

Wendell H. Ford Aviation Investment and Reform Act for the 21 Century 

(AIR-21). Much has changed since the Congress enacted AIR-21 3 years 

ago. At that time, the focus was on reducing congestion and flight 

delays. Today, flights are being canceled for lack of business, two 

major air carriers are in bankruptcy, and attention has shifted from 

increasing the capacity of the national airspace system to enhancing 

aviation security. Furthermore, as the federal budget deficit has 

increased, competition for federal resources has intensified, and the 

costs of airport capital development are growing, especially with the 

new requirements for security. Nonetheless, analysts expect the demand 

for air traffic services to rebound. Until that time, the unexpected 

slump in air traffic creates a window of opportunity to improve the 

safety and efficiency of the national airport system.



My statement today is based on our ongoing and completed work on 

airport funding and addresses the following questions:



1. What are the estimated costs of airports’ planned capital 

development?



2. How much funding did airports receive for planned capital 

development in recent years, and what were their principal sources of 

funding?



3. If past funding levels continue, will they be sufficient to meet 

estimates of planned capital development?



4. What options are available to address any potential difference 

between planned development and available funding?



Because our information on planned airport capital development, 

including the information we obtained from surveying 400 smaller 

airports, is preliminary, it is subject to change as we finalize our 

ongoing work.



In summary:



* Although there is general consensus among stakeholders that 

maintaining the integrity of the national airport system requires 

continual capital investment, estimates vary as to the type and cost of 

planned airport capital development required to ensure a safe and 

efficient system. For 2001 through 2005, FAA has estimated annual 

planned capital development costs of about $9 billion, while the 

Airport Council International (ACI), a key organization representing 

the airport industry, has estimated annual costs of about $15 billion 

for 2002 through 2006. The estimates differ primarily because FAA’s 

includes only projects that are eligible for federal funding, whereas 

ACI’s includes projects that may or may not be eligible for federal 

funding. Neither FAA’s nor ACI’s estimate covers the airport terminal 

modifications needed to accommodate the new explosives detection 

systems required to screen checked baggage. According to ACI, the total 

cost of these modifications could be $3 billion to $5 billion over the 

next 5 years.



* From 1999 through 2001, airports received an average of about $12 

billion a year for planned capital development. The primary source of 

this funding was bonds, which accounted for almost $7 billion, followed 

by federal grants and passenger facility charges, which accounted for 

$2.4 billion and $1.6 billion, respectively. The amounts and types of 

funding also varied by airport type. Of the $12 billion, large-and 

medium-hub airports received over $9 billion, and smaller airports 

received over $2 billion.



* If airports continue to receive about $12 billion a year for planned 

capital development, they would be able to fund all of the projects 

included in FAA’s estimate, but they would not be able to fund about $3 

billion in planned development estimated by ACI. While this projected 

shortfall could change with revisions in future funding, planned 

development, or both, it nevertheless indicates where funding 

differences may be the greatest.



* Options are available to increase or make better use of the funding 

for airport development, and these options would benefit different 

types of airports to varying degrees. For example, raising the current 

cap on passenger facility charges would primarily benefit larger 

airports, while increasing or redistributing Airport Improvement 

Program grant funds would be more likely to help smaller airports.



FAA’s and the Airport Industry’s Estimates of Airports’ Planned Capital 

Development Vary Substantially:



The estimated costs of planned airport capital development vary 

depending on which projects are included in the estimates. According to 

FAA’s estimate, which includes only projects that are eligible for 

Airport Improvement Program (AIP) grants, the total cost of airport 

development will be about $46 billion, or about $9 billion per year, 

for 2001 through 2005. FAA’s estimate is based on the agency’s National 

Plan of Integrated Airport Systems, which FAA published in August 2002. 

ACI’s estimate includes all of the projects in FAA’s estimate, plus 

other planned airport capital projects that may or may not be eligible 

for AIP grants. ACI estimates a total cost of almost $75 billion, or 

nearly $15 billion per year for 2002 through 2006. Projects that are 

eligible for AIP grants include runways, taxiways, and noise mitigation 

and noise reduction efforts; projects that are not eligible for AIP 

funding include parking garages, hangars, and expansions of commercial 

space in terminals.



Both FAA’s and ACI’s estimates cover projects for every type of 

airport. As table 1 indicates, the estimates are identical for all but 

the large-and medium-hub airports, which are responsible for 

transporting about 90 percent of the traveling public. For these 

airports, ACI’s estimate of planned development costs is about twice as 

large as FAA’s.



Table 1: Average Annual Planned Development Costs Estimated by FAA and 

ACI, by Airport Type, 2001-2006:



[See PDF for image]



[End of table]



Source: FAA and ACI.



According to FAA’s analysis of the planned capital development for 2001 

through 2005, airports will use 61 percent of the $46 billion for 

capacity enhancement, reconstruction, and modifications to bring 

airports up to the agency’s design standards and 39 percent to fund 

safety, security, environmental, and other projects. See figure 1.



Figure 1: Distribution of FAA’s Estimated $46 Billion for Planned 

Capital Development at Airports by Project Type, 2001-2005:



[See PDF for image]



[End of figure]



Note: “Standards” includes projects to bring airports up to FAA’s 

design criteria. “Other” includes projects to, for example, develop 

terminals to accommodate more passengers or larger aircraft and to 

enhance airfield capacity.



Neither ACI’s nor FAA’s estimate includes funding for the terminal 

modification projects that are needed to accommodate the new explosives 

detection systems required to screen checked baggage. ACI estimates 

that these projects will cost a total of about $3 billion to $5 billion 

over the next 5 years. A key reauthorization issue facing the Congress 

is how these terminal modification projects will be funded. In 2001, 

the Congress allowed FAA to use AIP funds to help pay for some new 

security projects; however, this use of AIP funds affected the amount 

of funding that was available for some development projects. 

Specifically, in fiscal year 2002, FAA used $561 million in AIP grant 

funds for security projects, or about 17 percent of the $3.3 billion 

available. The use of AIP grant funds for new security projects in 

fiscal year 2002 reduced the funding available for other airport 

development projects, such as projects to bring airports up to FAA’s 

design standards and reconstruction projects. The use of AIP grant 

funds for security also caused FAA to defer three letter-of-intent 

payments totaling $28 million to three airports until fiscal year 2003 

or later.[Footnote 1]



Airports Recently Received About 

$12 Billion a Year, Mostly from Bonds and Federal Sources:



From 1999 through 2001, the 3,364 airports that make up the national 

airport system received an average of about $12 billion per year for 

planned capital development. The single largest source of these funds 

was bonds, followed by AIP grants and passenger facility charges. (See 

table 2.) It is important to note that the authorized AIP funding for 

fiscal years 2002 and 2003 totaled $3.3 billion and $3.4 billion, 

respectively. However, because data for funding from other sources were 

not available for these years, we used the figures from 1999 through 

2001, the most recent years for which consistent data were available.



Table 2: Sources of Airport Funding:



[See PDF for image]



[End of table]



Source: GAO, FAA, and Thomson Financial.



Note: Totals may not add because of rounding.



[A] Amounts expressed in inflation-adjusted 2001 dollars.



[B] Net of refinancing. Of this total, $1.43 billion per year 
represented 

the proceeds of special facility bonds, which are secured by revenue 

pledges from the indebted facility and issued on behalf of nonairport 

beneficiaries, such as airlines.



[C] Since the passage of AIR-21 in 2000, annual AIP funding has been at 

or above $3.2 billion. Before that, it was less than $2 billion.



[D] Airports have been eligible to charge $4.50 since fiscal year 2001. 

Before that, the ceiling was $3.00.



[E] Net operating revenue in excess of a minimum coverage ratio of 125 

percent of the debt service (principal and interest payments) for 

commercial-service airports. For general aviation and reliever 

airports, amounts are calculated as net operating revenue.



[F] Does not include local grants and loans for commercial-service 

airports because we found no data to document the amounts from these 

sources.



The amount and type of funding vary depending on the airport’s size. 

For example, as shown in figure 2, the large-and medium-hub airports 

depend primarily on bonds, while the smaller airports rely principally 

on AIP grants. Passenger facility charges are a more important source 

of revenue for the large-and medium-hub airports because they have the 

majority of commercial-service passengers.



Figure 2: Distribution of Sources of Funding, by Airport Type:



[See PDF for image]



[End of figure]



Notes: The 1999 and 2000 figures were converted to inflation-adjusted 

2001 dollars.



Special facility bonds are secured by the revenue from the indebted 

facility for projects such as terminals, hangars, and maintenance 

facilities, rather than by the airport’s general revenue.



Past Funding Levels Would Cover All of FAA’s Planned Development 

Estimate but Would Fall About $3 Billion Short of ACI’s Estimate:



If the funding for airport capital development remains at about $12 

billion a year over the next 5 years, it would cover all of the 

projects in FAA’s estimate. However, it would be about $3 billion less 

per year than ACI’s estimate. Figure 3 compares the average annual 

funding airports received from 1999 through 2001 with FAA’s and ACI’s 

estimated annual planned development costs for 2001 through 2006. This 

difference is not an absolute predictor of future funding shortfalls; 

both funding and planned development may change in the future. However, 

it does provide a useful indication of where funding differences may be 

the greatest.



Figure 3: Recent Average Annual Funding Compared with Estimates of 

Annual Planned Development Costs:



[See PDF for image]



[End of figure]



Funding Difference Would Affect Smaller Airports Proportionally More 

Than Larger Airports:



In percentage terms, the difference between recent funding levels and 

ACI’s estimate of planned capital development is somewhat greater for 

smaller airports than it is for large-and medium-hub airports. From 

1999 through 2001, smaller airports received an average of about $2.4 

billion a year for planned capital development while large-and medium-

hub airports received an average of about $9.4 billion. If these 

funding levels continued, smaller airports would not be able to fund 

about 27 percent of their planned development, while large-and medium-

hub airports would not be able to fund about 20 percent of their 

planned development. Figures 4 and 5 illustrate the differences between 

recent funding levels and the costs of planned capital development 

projected for smaller and for large-and medium-hub airports.



Figure 4: Average Annual Funding Compared with Estimated Annual Planned 

Capital Development for Smaller Airports:



[See PDF for image]



[End of figure]



Note: Totals may not add because of rounding.



Figure 5: Average Annual Funding Compared with Estimated Annual Planned 

Capital Development for Large-and Medium-Hub Airports:



[See PDF for image]



[End of figure]



Note: The total for average annual funding may not add because of 

rounding.



Ability to Fund Planned Capital Development Has Improved for Both 

Smaller and Larger Airports:



The difference between past funding and planned development has 

declined over the past 5 years, and, at recent funding levels, airports 

would be able to fund a higher percentage of their planned capital 

development than they could fund in 1998. At that time, we reported 

that smaller airports could fund about 52 percent of their planned 

capital development, compared with about 73 percent today, which 

represents an increase of 21 percent. We also reported that large-and 

medium-hub airports were able to fund about 80 percent of their 

development and are able to fund the same amount today.[Footnote 2] See 

figure 6.



Figure 6: Ability of Smaller and Larger Airports to Fund Estimated 

Planned Capital Development in 1998 and 2003:



[See PDF for image]



[End of figure]



The primary reason why smaller airports can fund more of their planned 

capital development today than they could in 1998 is that AIR-21 

increased both the total amount of funding for AIP grants and the 

proportion of AIP funding that went to smaller airports. Specifically, 

AIR-21 increased the funding for two AIP funds that primarily or 

exclusively benefit smaller airports--the state apportionment fund and 

the small airport fund--and it created general aviation entitlement 

grants, which also benefit smaller airports.[Footnote 3] As a result of 

these changes, smaller airports received almost 63 percent of the $2.4 

billion in AIP grant funds that airports received each year, on 

average, from 1999 through 2001. Large-and medium-hub airports can also 

fund more of their planned development today than they could in 1998 

primarily because they are able to issue more bonds and to charge a 

higher passenger facility fee.



Options Are Available to Address Difference between Funding and Planned 

Development:



Options are available to increase airport funding or to make better use 

of the existing funding. These options, some of which were authorized 

or implemented as part of AIR-21, include increasing the AIP grant 

funding for smaller airports, increasing passenger facility charges, 

creating a separate fund for new security projects, and using 

innovative financing approaches. The various options would benefit 

different types of airports to varying degrees. It is also important to 

note that even though the airlines may be experiencing financial 

problems, most large airports have very solid credit ratings and could, 

if necessary, issue more debt without facing exorbitant interest rates.



To help address the difference between funding and planned development, 

AIR-21 provided that up to $150,000 a year in AIP grant funds be made 

available to all general aviation airports for up to 3 years for 

airfield capital projects, such as runways, taxiways, and airfield 

construction and maintenance projects. On February 11, 2003, we 

reported that since the program’s inception in fiscal year 2001, 

general aviation airports have received about $325 million, which they 

have used primarily to help build runways, purchase navigational aids, 

and maintain pavements and airfield lighting.[Footnote 4] Most of the 

state aviation officials and general aviation airport managers we 

surveyed said the grants were useful in meeting their needs, and some 

suggested that the $150,000 grant limit be increased so that general 

aviation airports could undertake larger projects. However, a number of 

state officials cautioned that an increase in the general aviation 

entitlement grant could cause a decrease in the state apportionment 

fund that states use to address their aviation priorities.



Another option would be to increase or eliminate the cap on passenger 

facility charges. This option would primarily benefit larger airports, 

because passenger facility charges are a function of the volume of 

passenger traffic. However, under AIP, large-and medium-hub airports 

that collect passenger facility charges must forfeit a certain 

percentage of their AIP formula funds. These forfeited funds are 

subsequently divided between the small airport fund, which is to 

receive 87.5 percent, and the discretionary fund, which is to receive 

12.5 percent. Thus, smaller airports would benefit indirectly from any 

increase in passenger facility charges. In our 1999 report on passenger 

facility charges,[Footnote 5] we estimated that a small increase in 

these charges would have a modest effect on passenger traffic. At that 

time, we estimated that each $1 increase would reduce passenger levels 

by about 0.5 to 1.8 percent, with a midrange estimate of 0.85 percent. 

Since AIR-21 raised the cap on passenger facility charges from $3.00 to 

$4.50, the full effect of the increase has not been realized because 

only 17 of the 31 large-hub airports (55 percent) and 11 of the 37 

medium-hub airports (30 percent) have increased their rates to $4.50. 

Additionally, 3 large-hub airports and 6 medium-hub airports do not 

charge a passenger facility fee. The reluctance to raise passenger 

facility charges is likely the result of several factors, including the 

views of airlines, which are opposed to any increase in passenger 

facility charges because such an increase would raise passenger costs 

and reduce passenger traffic. Nonetheless, if all airports were to 

increase passenger facility charges to the current ceiling, additional 

revenue could be generated.



Recently, the head of the Transportation Security Administration 

suggested setting up a separate fund for security projects. Such a fund 

might be comparable to AIP, which receives revenue from various 

aviation-related taxes through the Airport and Airway Trust Fund. 

Having a separate fund would be consistent with the recent separation 

of aviation safety and security responsibilities.



FAA has introduced other mechanisms to make better use of existing 

funding sources, the most successful of which has been letters of 

intent, a tool that has effectively leveraged private sources of 

funding. As noted, letters of intent represents a nonbinding commitment 

from FAA to provide multiyear funding to an airport beyond the current 

AIP authorization period. Thus, the letter allows the airport to 

proceed with a project without waiting for a future AIP grant because 

the airport and investors know that allowable costs are likely to be 

reimbursed. A letter of intent may also enable an airport to receive a 

more favorable interest rate on bonds that are sold to refinance a 

project because the federal government has indicated its support for 

the project. FAA has issued 64 letters of intent with a total 

commitment of about $3 billion; large-and medium-hub airports account 

for the majority of the total.



Other approaches to making better use of existing funding resources 

were authorized under AIR-21. Specifically, the act authorized FAA to 

continue its innovative finance demonstration program, which is 

designed to test the ability of innovative financing approaches to make 

more efficient use of AIP funding. Under this program, FAA enabled 

airports to leverage additional funds or lower development costs by (1) 

permitting flexible local matching on some projects, (2) purchasing 

commercial bond insurance, (3) paying interest costs on debt, and (4) 

paying principal and interest debt service on terminal development 

costs incurred before the enactment of AIR-21. FAA has provided about 

$31 million for smaller airports to test these innovative uses of AIP 

funding. According to FAA officials, the results of the program have 

been mixed. The most popular option for airports has been flexible 

matching, which has resulted in several creative loan arrangements.



In conclusion, Mr. Chairman, the aviation industry and the national 

economy are still struggling to recover their health. Analysts 

nonetheless expect the demand for air travel to rebound, and the 

nation’s aviation system must be ready to accommodate the projected 

growth safely and securely. As the Congress moves forward with 

reauthorizing FAA, it will have to decide on several key issues, 

including how it wants to consider the airports’ estimate of $15 

billion a year for planned capital development over the next 5 years, 

how terminal modification projects will be funded, and what priorities 

it wants to set, both for development and security. Sustaining recent 

funding levels would allow the majority of planned airport capital 

development to move forward, but it would not cover all of the 

airports’ estimated costs, and it would not address the costly terminal 

modifications needed to accommodate explosives detection systems. 

Options such as additional AIP grant funds, increases in passenger 

facility charges, or the creation of a separate fund for new security 

projects could make more funding available for airport improvements. 

However, the growing competition for federal budget dollars and 

concerns about the impact of higher charges on airline ticket sales may 

limit the practicality of these options.



Scope and Methodology:



To determine how much planned development would cost over the next 5 

years, we obtained planned development data from FAA and ACI. ACI 

provided its estimate to us in January 2003, and we are still analyzing 

the data on which the estimate is based. To determine the sources of 

airport funding, we obtained capital funding data from FAA, the 

National Association of State Aviation Officials, Thomson Financial, 

and our survey of 400 general aviation and reliever airports. We 

obtained funding data from 1999 through 2001 because these were the 

most recent years for which consistent data were available. We screened 

the planned development and funding data for accuracy and compared 

funding streams across databases where possible. We also clarified 

ambiguous development or funding source information directly with 

airports. We did not, however, audit how the databases were compiled, 

except for our own survey. However, we have not finished analyzing the 

results of our survey, and the results presented in this testimony are 

still preliminary.



We have been performing our ongoing work from May 2002 through February 

2003 in accordance with generally accepted government auditing 

standards.



This concludes my statement. I would be pleased to answer any questions 

that you or other members of the Subcommittee might have.



Contact information:



For further information on this testimony, please contact Gerald 

Dillingham at (202) 512-2834. Individuals making key contributions to 

this testimony include Jon Altshul, Tammy Conquest, Elizabeth 

Eisenstadt, Gary Lawson, David Lehrer, Maren McAvoy, and Richard 

Swayze.



(540054):



FOOTNOTES



[1] Letters of intent represent a nonbinding commitment from FAA to 

provide multiyear funding to airports beyond the current authorization 

period. This commitment enables airports to proceed with projects 

without waiting for future AIP grant funds because it provides 

reasonable assurance of reimbursement for allowable costs.



[2] U.S. General Accounting Office, Airport Financing: Annual Funding 

As Much As $3 Billion Less Than Planned Development, GAO/T-RCED-99-84 

(Washington, D.C.: Feb. 10, 1999).



[3] Moreover, if we replaced the AIP figures for 1999 through 2001 with 

the AIP figures appropriated for fiscal year 2002 and authorized for 

fiscal year 2003 in our analysis, assuming no changes in the 

distribution of AIP funds, smaller airports would be able to cover even 

more of the estimated cost of their planned development because AIP 

grant funds for fiscal years 2002 and 2003 are about $1 billion more 

than the average annual AIP funding for 1999 through 2001. Because data 

for funding from other sources were not available for these years, we 

used the figures from 1999 through 2001, the most recent years for 

which consistent data were available.



[4] U.S. General Accounting Office, Aviation Finance: Implementation of 

General Aviation Entitlement Grants, GAO-03-347 (Washington, D.C.: Feb. 

11, 2003).



[5] U.S. General Accounting Office, Passenger Facility Charges: Program 

Implementation and the Potential Effects of Proposed Changes, GAO/RCED-

99-138 (Washington, D.C.: May 19, 1999).