Luckily, the permit is issued by WAMATA, the airports authority. They can figure out which cab company and therefore which jurisdiction (likely DC, Arlington, Alexandria). You can complain to WAMATA.

However, I don't understand you say that the driver drove without a meter, but you know that the fare was only $16.50. How would you know that if the meter wasn't running? In addition, are you certain that there weren't airport, passenger and luggage fees totalling $6.50. Depending on what you had for luggage and what you asked the driver to do, the extra $6.50 may have been appropriate.

Certainly not appropriate to run a fare without the meter and to drop you other than at your destination. It just seems that there are facts missing from OP's post.