Principles of September 200 Federal Appropriations Law

898 Pages·2010·4.3 MB·English

United States General Accounting Office
GAO Office of the General Counsel
Principles of
September 2008
Federal
Appropriations
Law
Third Edition
Volume III
As of March 10, 2016, GAO, Principles of Federal Appropriations Law, 4th ed., 2016 rev., ch. 1,
GAO-16-463SP (Washington, D.C.: Mar. 2016), and GAO, Principles of Federal Appropriations
Law, 4th ed., 2016 rev., ch. 2, GAO-16-464SP (Washington, D.C.: Mar. 2016), supersede chapters
1, 2, and 3 of GAO, Principles of Federal Appropriations Law, 3rd ed., GAO-04-261SP
(Washington, D.C.: Jan. 2004). Chapters 4 through 15 of the third edition of Principles of
Federal Appropriations Law, in conjunction with GAO, Principles of Federal Appropriations Law:
Annual Update to the Third Edition, GAO-15-303SP (Washington, D.C.: Mar. 2015), remain the
most currently available material on the topics discussed therein. Both Principles and the
Annual Update to the Third Edition are available at www.gao.gov/legal/red-book/overview.
This volume supersedes the Volume IV, Second Edition of the Principles of Federal
Appropriations Law, 2001.
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Foreword
This is Volume III of Principles of Federal Appropriations Law, third
edition. Publication of this volume completes our process of revising and
updating the second edition of the “Red Book” and reissuing it in a
3-volume looseleaf set with cumulative annual updates. This volume and
all other updated volumes of Principles, including the annual updates, are
available on GAO’s Web site (www.gao.gov) under “Key References.” The
annual updates are only available online. The online updated versions
contain hyperlinks to the GAO material cited. Check the GAO Web site for
other interesting information, for example, materials from our annual
Appropriations Law Forum.
This volume updates chapters found in Volume IV of the second edition.
We did not update Volume III of the second edition, which deals with
functions that were transferred to the executive branch, including claims
against the United States, debt collection, and payment of judgments
against the United States. However, since the exercise of these
responsibilities has appropriations law consequences, we include in this
volume a new Chapter 14 that discusses these responsibilities in that
context. Because Volume III of the second edition provides a useful history
of case law in these areas, it will remain available on GAO’s Web site.
However, inasmuch as it has not been updated and was last revised in 1994,
it should not be viewed as a statement of current law. Also, it should not be
confused with this Volume III of the third edition, which updates Volume IV
of the second edition.
Our objective in Principles is to present a basic reference work covering
those areas of law in which the Comptroller General issues decisions, using
text discussion with specific legal authorities to illustrate the principles
discussed, their application, and exceptions. As we noted in our first
volume, Principles should be used as a general guide and starting point,
not as a substitute for original legal research. We measure our success in
Page i GAO-08-978SP Appropriations Law—Vol. III
this endeavor by Principles’ day-to-day utility to its federal and nonfederal
audience. In this regard, we appreciate the many comments and
suggestions we have received to date, and hope that our publication will
continue to serve as a useful reference.
Gary L. Kepplinger
General Counsel
September 2008
Page ii GAO-08-978SP Appropriations Law—Vol. III
Detailed Table of Contents
Volume III
Chapters 12–15

Chapter 12 A. Acquisition and Disposal of Property for
Acquisition of Goods Government Use. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-4
1. General Services Administration Schedule Programs . . . . . . . . .12-4
and Services
2. Governmentwide Acquisition Contracts . . . . . . . . . . . . . . . . . . . .12-8
3. Stationery and Supplies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-9
4. Exchange/Sale Authority in Acquiring Personal Property . . . .12-11
5. Disposal of Personal Property . . . . . . . . . . . . . . . . . . . . . . . . . . .12-15
B. Interagency Transactions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-22
1. The Economy Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-22
a. Origin, Legislative History, General Requirements . . . . . . . .12-22
(1) Funds available . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-26
(2) Interest of the government . . . . . . . . . . . . . . . . . . . . . . . . 12-27
(3) Performing agency’s “position” . . . . . . . . . . . . . . . . . . . . 12-27
(4) Lower cost . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-29
(5) Written agreement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-30
b. Who Is Covered . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-31
c. Fiscal Matters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-33
(1) Payment: types and accounting . . . . . . . . . . . . . . . . . . . . 12-33
(2) “Actual cost”: meaning and application . . . . . . . . . . . . . 12-37
(3) Obligation and deobligation . . . . . . . . . . . . . . . . . . . . . . . 12-43
(4) Applicability of limitations and restrictions . . . . . . . . . . 12-46
(5) Accountability issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-50
d. What Work or Services May Be Performed . . . . . . . . . . . . . . .12-54
(1) Details of personnel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-54
(2) Loans of personal property . . . . . . . . . . . . . . . . . . . . . . . 12-59
(3) Common services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-62
(4) Other examples . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-64
e. What Work or Services May Not Be Performed . . . . . . . . . . .12-68
f. Contracting Out and “Off-Loading” . . . . . . . . . . . . . . . . . . . . .12-72
2. Account Adjustment Statute . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-76
3. Other Authorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-79
C. Revolving Funds. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-85
1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-85
a. Concept and Definition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-85
b. Creation/Establishment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-89
2. Receipts and Reimbursements . . . . . . . . . . . . . . . . . . . . . . . . . . .12-92
3. Types . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-97
a. Public Enterprise Revolving Fund . . . . . . . . . . . . . . . . . . . . . .12-97
b. Trust Revolving Fund . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-98
c. Intragovernmental Revolving Fund . . . . . . . . . . . . . . . . . . . . .12-98
(1) Working capital funds . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-100

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(2) Franchise and other revolving funds . . . . . . . . . . . . . . . 12-101
(3) Contracting services and revolving funds . . . . . . . . . . 12-104
4. Expenditures/Availability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-106
a. Status as Appropriation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-106
b. Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-109
c. Time . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-114
(1) Earned receipts and collection . . . . . . . . . . . . . . . . . . . 12-114
(2) Appropriations of revolving funds’ customer agencies 12-115
d. Amount . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-118
e. Obligation Requirement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-122
5. Augmentation and Impairment . . . . . . . . . . . . . . . . . . . . . . . . . .12-125
6. Property Management and Utilization . . . . . . . . . . . . . . . . . . . .12-130
7. Revolving Funds in the Department of Defense . . . . . . . . . . . .12-136
D. User Charges . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-140
1. Providing Goods or Services to Private Parties . . . . . . . . . . . .12-141
2. The Concept of User Charges . . . . . . . . . . . . . . . . . . . . . . . . . . .12-143
3. The Independent Offices Appropriation Act . . . . . . . . . . . . . . .12-146
a. Origin and Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-146
b. Fees versus Taxes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-149
c. Establishing the Fee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-152
(1) Need for regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-152
(2) Benefit under the Independent Offices Appropriation
Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-152
(3) Public versus private benefit . . . . . . . . . . . . . . . . . . . . . 12-158
(4) Calculation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-161
d. Refunds . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-166
4. Other Authorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-169
a. Subsection (c) of the Independent Offices Appropriation
Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-169
b. Independent Offices Appropriation Act Incorporated
by Reference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-171
c. Statutes In Pari Materia . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-172
d. Statutes Entirely Independent of the Independent
Offices Appropriation Act . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-174
5. Disposition of Fees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-182
a. Fees under the Independent Offices Appropriation Act . . .12-183
b. Fees under Other Authorities . . . . . . . . . . . . . . . . . . . . . . . . .12-183
(1) Miscellaneous receipts . . . . . . . . . . . . . . . . . . . . . . . . . . 12-183
(2) Credit to agency’s appropriation . . . . . . . . . . . . . . . . . . 12-184
(3) Special account or fund . . . . . . . . . . . . . . . . . . . . . . . . . 12-186
6. U.S. Customs and Border Protection: A Case Study . . . . . . . .12-188
7. User Fee as Grant Condition . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-193

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E. Motor Vehicles. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-196
1. Acquisition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-196
a. Need for Statutory Authority . . . . . . . . . . . . . . . . . . . . . . . . .12-196
b. Price Limitations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-202
2. Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-205
a. The “Official Purpose” Limitation . . . . . . . . . . . . . . . . . . . . .12-205
b. General Services Administration Motor Pools . . . . . . . . . . .12-219
c. Expenditure Control Requirements . . . . . . . . . . . . . . . . . . . .12-221
3. Chauffeurs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-222
Chapter 13 A. Introduction and Terminology . . . . . . . . . . . . . . . . . . . . . . . . . .13-5
Real Property B. Acquisition of Real Property for Government Use . . . . .13-13
1. The Fifth Amendment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-13
2. Federal Land Acquisition Policy . . . . . . . . . . . . . . . . . . . . . . . . . .13-18
3. Need for Statutory Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-24
a. Applicability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-24
(1) Debt security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-25
(2) Donated property/funds . . . . . . . . . . . . . . . . . . . . . . . . . . 13-26
(3) Options . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-26
(4) Indian tribal funds . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-28
b. Types of Statutory Authority . . . . . . . . . . . . . . . . . . . . . . . . . .13-28
(1) Express versus implied authority . . . . . . . . . . . . . . . . . . 13-28
(2) Forms of express authority . . . . . . . . . . . . . . . . . . . . . . . 13-29
c. Effect of Noncompliance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-35
4. Title Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-36
a. Title Approval . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-36
b. Title Evidence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-41
c. Title Evidence Expenses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-42
(1) Purchase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-42
(2) Donation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-44
(3) Condemnation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-44
5. Methods of Acquisition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-46
a. Purchase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-46
b. Involuntary Acquisition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-48
(1) Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-48
(2) Legislative taking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-49
(3) Sources of authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-50
(4) “Complaint only” condemnation . . . . . . . . . . . . . . . . . . . 13-52
(5) Declaration of Taking Act . . . . . . . . . . . . . . . . . . . . . . . . . 13-53
(6) Inverse condemnation . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-58
6. Obligation of Appropriations for Land Acquisition . . . . . . . . . .13-60

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a. Voluntary Purchase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-60
b. Condemnation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-61
7. Expenses Incident to Real Property Acquisition . . . . . . . . . . . .13-63
a. Expenses Incident to Title Transfer . . . . . . . . . . . . . . . . . . . . .13-63
b. Expenses Incident to Litigation . . . . . . . . . . . . . . . . . . . . . . . .13-65
(1) Attorney’s fees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-65
(2) Litigation expenses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-67
C. Relocation Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-68
1. Uniform Relocation Act: Introduction and Overview . . . . . . . .13-68
2. The Threshold Determination: Meaning of “Displaced
Person” . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-72
3. Types and Payment of Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . .13-78
a. Moving and Related Expenses . . . . . . . . . . . . . . . . . . . . . . . . .13-78
(1) Residential displacements . . . . . . . . . . . . . . . . . . . . . . . . 13-78
(2) Commercial displacements . . . . . . . . . . . . . . . . . . . . . . . 13-79
b. Replacement Housing Benefits . . . . . . . . . . . . . . . . . . . . . . . . .13-81
(1) Homeowners . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-81
(2) Tenants and “90-day homeowners” . . . . . . . . . . . . . . . . . 13-84
c. Advisory Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-85
d. “Last Resort” Replacement Housing . . . . . . . . . . . . . . . . . . . .13-86
e. Federally Assisted Programs and Projects . . . . . . . . . . . . . . .13-88
f. Procedures and Payment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-91
4. Public Utilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-92
a. The Common Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-92
b. Statutory Exceptions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-97
(1) Uniform Relocation Act . . . . . . . . . . . . . . . . . . . . . . . . . . 13-97
(2) 23 U.S.C. § 123 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-98
(3) Other statutory provisions . . . . . . . . . . . . . . . . . . . . . . . . 13-99
D. Jurisdiction over Federal Land: The Federal
Enclave . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-101
1. Acquisition of Federal Jurisdiction . . . . . . . . . . . . . . . . . . . . . .13-101
2. Specific Areas of Concern . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-109
a. Taxation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-109
b. Criminal Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-110
c. State Regulation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-111
3. Proprietorial Jurisdiction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-116
E. Leasing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-120
1. Some General Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-120
a. Acquisition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-120
b. Application of Fiscal Law Principles . . . . . . . . . . . . . . . . . . .13-125
c. Rights and Obligations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-127
d. Payment of Rent . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-131

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(1) Advance payment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-132
(2) Payment to legal representative . . . . . . . . . . . . . . . . . . . 13-132
(3) Assignment of Claims Act . . . . . . . . . . . . . . . . . . . . . . . . 13-133
2. Statutory Authorities and Limitations . . . . . . . . . . . . . . . . . . . .13-135
a. Federal Property and Administrative Services Act . . . . . . .13-135
b. Prospectus Requirement . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-141
c. Site Selection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-142
d. Parking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-145
e. Repairs and Alterations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-147
f. Rental in District of Columbia . . . . . . . . . . . . . . . . . . . . . . . .13-150
g. Economy Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-153
h. Some Agency-Specific Authorities . . . . . . . . . . . . . . . . . . . . .13-154
3. Foreign Leases . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-155
4. Lease-Purchase Transactions . . . . . . . . . . . . . . . . . . . . . . . . . . .13-158
F. Public Buildings and Improvements. . . . . . . . . . . . . . . . . . .13-167
1. Construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-167
a. General Funding Provisions . . . . . . . . . . . . . . . . . . . . . . . . . .13-167
(1) 41 U.S.C. § 12 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-167
(2) Contract authority under partial appropriations . . . . . 13-173
(3) Duration of construction appropriations . . . . . . . . . . . 13-174
(4) Design fees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-176
b. Some Agency-Specific Authorities . . . . . . . . . . . . . . . . . . . .13-182
(1) Military construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-183
(2) Continuing contracts: two variations . . . . . . . . . . . . . . 13-185
(3) 7 U.S.C. § 2250 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-188
(4) 15 U.S.C. § 278d . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-189
c. Public Buildings Act and the General Services
Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-190
d. Scope of Construction Appropriations . . . . . . . . . . . . . . . . .13-195
2. Operation and Control . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-200
a. Who’s in Charge? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-200
b. Allocation of Space . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-201
c. Alterations and Repairs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-203
d. Maintenance and Protective Services . . . . . . . . . . . . . . . . . .13-204
e. Utilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-205
f. Use Restrictions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-209
g. Payment of Rent by Federal Agencies . . . . . . . . . . . . . . . . . .13-210
G. Improvements to Property Not Owned by the
Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-214
1. The Rules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-214
2. Some Specific Applications . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-219
a. Leased Premises/Property . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-219

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b. Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-222
c. Public Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-224
d. Federal Aviation Administration . . . . . . . . . . . . . . . . . . . . . .13-225
e. Private Residences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-227
H. Disposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-228
1. The Property Clause . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-228
2. Disposal under Title 40 of the United States Code . . . . . . . . . .13-230
a. Excess Property . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-230
b. Surplus Property . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-232
c. Disposition of Proceeds . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-238
d. Deduction of Expenses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-240
e. Disposal under Other Authorities . . . . . . . . . . . . . . . . . . . . .13-241
3. Use by Nongovernment Parties . . . . . . . . . . . . . . . . . . . . . . . . .13-245
a. Leasing and Concessions . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-245
(1) Outleasing in general . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-245
(2) 40 U.S.C. § 1302 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-249
(3) Concessions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13-251
b. Granting of Revocable License . . . . . . . . . . . . . . . . . . . . . . . .13-254
4. Adverse Possession . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-256
Chapter 14 A. Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14-2
Claims against and by B. History of Claims Settlement. . . . . . . . . . . . . . . . . . . . . . . . . . . .14-2
C. Claims against the Government . . . . . . . . . . . . . . . . . . . . . . . .14-10
the Government
1. Overview and Sources of Claims Settlement Authority . . . . . .14-10
a. Legislative Claims Settlement . . . . . . . . . . . . . . . . . . . . . . . . . .14-12
(1) Congressionally sponsored bills . . . . . . . . . . . . . . . . . . . 14-12
(2) Congressional reference cases . . . . . . . . . . . . . . . . . . . . . 14-15
(3) Meritorious Claims Act . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-16
b. Judicial Claims Settlement . . . . . . . . . . . . . . . . . . . . . . . . . . . .14-18
c. Administrative Claims Settlement . . . . . . . . . . . . . . . . . . . . . .14-20
2. Source of Payment of Claims against the Government . . . . . . .14-29
a. Legislatively Settled Claims . . . . . . . . . . . . . . . . . . . . . . . . . . .14-29
b. Judicially Settled Claims: the Judgment Fund . . . . . . . . . . . .14-30
(1) Origins and overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-31
(2) Availability and limitations . . . . . . . . . . . . . . . . . . . . . . . . 14-34
c. Administratively Settled Claims . . . . . . . . . . . . . . . . . . . . . . . .14-44
3. Whom and What to Pay . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14-49
a. To Whom Agencies Should Make Payment . . . . . . . . . . . . . .14-49
b. Amounts Payable in Addition to the Principal Amount . . . .14-51
(1) Interest . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-51
(2) Costs and attorneys fees . . . . . . . . . . . . . . . . . . . . . . . . . . 14-63

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