September 11 Victim Compensation Fund (VCF) was created by an Act of Congress, the Air Transportation Safety and System Stabilization Act (49 USC 40101), to compensate victims of the attack (or their families) in exchange for their consent not to charge the airlines involved. Kenneth Feinberg was appointed Special Master of the Fund by Attorney General John Ashcroft. He developed the Fund`s management rules and managed all aspects of the program.  Legislation authorizes the Fund to pay a maximum of $7.375 billion, including operational and administrative costs, to U.S. government funds.  Feinberg was responsible for making decisions about how much each victim`s family would receive. Feinberg had to estimate how much each victim would have earned in a lifetime. If a family accepted the offer, it was not possible to appeal. Families dissatisfied with the offer were able to appeal at a non-contradictory informal hearing to present their case to Bewiller.
Feinberg has personally conducted more than 900 of the 1,600 auditions. At the end of the process, $7 billion was allocated to 97% of families. A non-negotiable clause in the acceptance documents for transactions was that families should never sue airlines for lack of safety or other uncertain procedures.  People with the most serious medical conditions, such as severe respiratory diseases, solid body cancer, blood cancer or lung function below 80% of normal life, are included in Level 4. Their compensation is determined by a more complex process requiring additional documentation. Their final compensation will be at least $1,000 more than the Tier 3 plaintiffs and, according to one estimate, could reach $1.8 million. Most of the equalization funds will go to Level 4 applicants. All establishments in Section 908 (i) must be authorized to enter into force.
During the informal hearing, pre-hearing, period, jurisdiction for approval of a transaction is with the district director. Once the matter has been referred to the Office of Administrative Judges, exclusive jurisdiction rests with the OALJ. If a district manager refuses the transaction, each party may request to be heard by a judge.