Both of the industry's major bankrupt carriers are taking part as well.
The commission did recommend that bankrupt carriers be forced to reorganize or go out of business within one year.
But it rejected the idea that fire-sale pricing by bankrupt carriers was the primary cause of the industry's problems.
United is the first bankrupt carrier where a rival union has begun an organizing drive.
The exact amount could be less if the agency manages to recover large amounts from the liquidation of bankrupt carriers.
The offer may touch off another bidding war for the bankrupt carrier.
The other big bankrupt carrier that fought for relief, Northwest Airlines, has already done so.
To blame the bankrupt carriers for the problems of the industry just doesn't add up.
As a rule, many passengers and travel agents avoid bankrupt carriers, particularly for flights booked well in advance.
The agreement marks yet another purchase by a financially strong airline of assets belonging to a struggling or bankrupt carrier.