Previously Reported DOD Travel Issues

Over the past several years, we have reported pervasive weaknesses in  DOD’s travel program. Ongoing DTS Testing Remains a Concern

DTS development and implementation have been problematic, especially in  the area of requirements and testing key functionality to ensure that the  system would perform as intended. Given the lack of adherence to such  key practices, it is not surprising that critical flaws have been identified  after deployment, resulting in significant schedule slippages. Figure 2 shows the  schedule slippage between the planned and actual implementation of DTS. More specifically, for the reservation module our analysis found that the  flights actually displayed in DTS did not meet the stated DOD  requirements. The  following examples illustrate these problems. DTS Has Corrected Some Previously Reported Travel Problems

DTS has corrected one of the previously reported travel problems, but  others remain. We have previously reported that a breakdown in internal  controls and a weak control environment have led to potential fraud,  waste, and abuse of hundreds of millions of dollars being improperly spent  on DOD travel.Specifically, DTS has resolved the problem related to  duplicate payment for airline tickets purchased through CBAs. However,  problems remain related to improper premium-class travel, unused tickets  that are not refunded, and accuracy of travelers’ claims. The three  remaining problems cannot be resolved solely within DTS and will take  departmentwide action to address. While  DOD has developed 31 system interfaces, the PMO-DTS is aware of at least  18 additional DOD business systems for which interfaces must be  developed. Additionally, the underutilization of DTS at  the sites where it has been deployed is also hindering the department’s  efforts to have a standard travel system. Interfaces Are Critical to Implementing an End-to- End System

One of DOD’s long-standing problems has been the lack of integrated  systems. Underutilization of DTS Affects Estimated Savings

Another challenge in establishing DTS as a standard travel system within  DOD is the continued use of the existing legacy travel systems, which are  controlled and operated by the various DOD components. Recommendations for Executive Action

To improve the department’s management and oversight of DTS and  streamline its administrative process for travel, we recommend that the  Secretary of Defense take the following 10 actions:  direct the PMO-DTS to effectively implement the disciplined processes  necessary to provide reasonable assurance that (1) requirements are  properly documented and (2) requirements are adequately tested;     direct the PMO-DTS to properly test new or modified system interfaces  so that the intended functionality is properly operating prior to a  software update being provided to DTS users;  direct the PMO-DTS to require that all CTOs adhere to the department’s  policy on the use of premium-class travel, even in those instances where  it is listed as the only available airfare;   direct the Secretaries of the Army, Navy, and Air Force, as well as the  heads of all DOD agencies, to reemphasize that travelers are to justify  exceptions from department policy and the importance of the  authorizing officials not approving any travel authorization in which  exceptions are not properly justified;  direct the Secretaries of the Army, Navy, and Air Force, as well as the  heads of all DOD agencies, to routinely monitor, such as on a quarterly  basis, information on the number and cost of processing travel vouchers  outside of DTS and initiate action to eliminate funding for legacy  systems, where applicable;  direct the PMO-DTS to develop and implement the means to automate  the approval of changes to authorized travel expenses where possible;   direct the PMO-DTS to consider the viability of using commercial  databases to identify unused airline tickets, for which reimbursement  should be obtained and help improve the assurance that the actual  travel taken was consistent with the information shown on the travel  voucher;  direct the PMO-DTS to consider simplifying the display of airfares in   direct the PMO-DTS to determine the feasibility of utilizing restricted  airfares, where cost effective; and   direct the PMO-DTS to work with IRS to develop an approach that will  permit the use of automated methods to reduce the need for hard copy  receipts to satisfy requirements to substantiate travel expenses. To determine if DTS will correct the problems previously identified with  DOD travel, we analyzed past GAO reports and testimonies, selected  Defense Finance and Accounting Service (DFAS) reports, and DOD  congressional testimonies.
Why GAO Did This Study

The Department of Defense (DOD) has been working to develop and implement a standard end-to-end travel system for the last 10 years. Over the past several years numerous GAO reports and testimonies have highlighted problems with DOD's travel practices that resulted in wasteful spending of millions of dollars. In response, the department has noted that the Defense Travel System (DTS), in part, will help correct these problems. Because of the widespread congressional interest in DTS, GAO initiated the audit under the statutory authority of the Comptroller General of the United States. The objectives of the audit were to (1) determine if DOD effectively tested key DTS functionality, (2) ascertain if DTS will correct the weaknesses previously identified, (3) identify the challenges that remain, and (4) identify opportunities to streamline DOD's travel process.

What GAO Found

DTS development and implementation have been problematic, especially in the area of testing key functionality to ensure that the system will perform as intended. Consequently, critical flaws have been identified that resulted in significant schedule slippages between the planned and actual system deployment. GAO's recent analysis of selected requirements related to DTS's reservation module disclosed that system testing was ineffective in ensuring that the promised capability has been delivered as intended. For example, GAO found that DOD did not have reasonable assurance that DTS properly displayed flight and airfare information. This problem was not detected prior to deployment, since DOD failed to properly test system interfaces. While DTS has corrected some of the previously reported travel problems, others remain. Specifically, DTS has resolved the problem related to duplicate payment for airline tickets purchased with the centrally billed accounts. However, problems remain related to improper premium-class travel, unused tickets that are not refunded, and accuracy of travelers' claims. These remaining problems cannot be resolved solely within DTS and will take departmentwide action to address. GAO also identified two key challenges facing DTS in becoming DOD's standard travel system: (1) developing needed interfaces and (2) underutilization of DTS at sites where it has been deployed. While DTS has developed 36 interfaces with various DOD business systems, it will have to develop interfaces with at least 18 additional systems--not a trivial task. Additionally, the continued use of the existing legacy travel systems results in underutilization of DTS and affects the savings that DTS was planned to achieve. Furthermore, GAO has identified concepts that the department can adopt to streamline its travel management practices.