Sentence:  The funds recouped by reductions in item 12 above are used : first , to increase the unadjusted allotments to the specified minimum in those States where the unadjusted allotment is less than the minimum allotment ( item 13 above ) ; and second , to increase uniformly the allotments to those States whose allotments <WSD>are</WSD> below their maximums , with adjustments to prevent the allotment of any State from thereby exceeding its maximum . 
Meaning of the word marked with <WSD> tags:  have the quality of being; (copula, used with an adjective or a predicate noun)