The provisional authority did not return repeated requests seeking comment for this article.

But last week, Virgin said that it had not applied for flights with the provisional authority.

"It's creating a huge problem," said an official with the provisional authority.

But the Bolsheviks asserted that the provisional authorities were dragging their feet about the Assembly.

And, according to the division leadership, not a nickel of the $20 billion controlled by the provisional authority has reached them.

Iliescu was quickly acknowledged as the leader of the organization and therefore of the provisional authority.

Andre Laborde, a spokesman for the provisional authority, said yesterday that he was not immediately aware of permission being given to the airlines.

The Nov. 15 agreement states that such a constitution needs the approval only of the council and the provisional authority.

"For now, I am giving provisional authority," the president said, tightly.

Local officials for the provisional authority signed paperwork stating that all the work had been completed properly and paid the contractor in full, the report says.