City Building=No Carry.
BC
First, I appreciate you taking the time to get it straight from the horses mouth and I have no doubt that this is the way it would work in practice.
However, the law states where the city does business with the public. The airlines, food vendors, etc certainly conduct business at the terminal and "they" pay the Airport Trust (ie, the city) to lease the space. But I am not aware of any business transaction with the city that "I" can complete at the terminal.
Just another viewpoint.