WASHINGTON — On the surface, the partial shutdown of the Federal Aviation Administration is about whether to cut $16 million in air service subsidies, a pretty small amount in this town. Underneath are layers upon layers of political gamesmanship that, at its heart, is about whether Democrats or Republicans get to call the shots in Congress.

The immediate price is high. Already, 4,000 FAA employees have been furloughed, more than 200 construction projects have been halted and an estimated 70,000 other private-sector workers affected. Air traffic controllers and safety inspectors have remained on the job because the agency still has money from another pool of funds to pay them.

The government has been losing about $30 million a day in uncollected airline ticket taxes since the shutdown began on July 23. If it’s not resolved until after Congress returns in early September, lost revenue will tally about $1.2 billion.

Democrats complain that Republicans, by manufacturing crisis after crisis, are trying to force them to accept painful policies that haven’t been negotiated through normal legislative processes.

Earlier this year, it was the prospect of a government shutdown over tax breaks for higher-income Americans. More recently it was a potential default on the government’s financial obligations. Now it’s a shutdown of the FAA unless Democrats accept the air service subsidy cuts.

“This is becoming a very disturbing pattern: A small, uncompromising group, feeling the righteousness of their cause, hurt tens of thousands of innocent people and takes them hostage until they get their complete way,” Sen. Chuck Schumer, D-N.Y., said.