DOT’s Data Provide Mixed Information on Improvement in the Quality of Airline Service; Selected Airlines Indicate They Are Taking Steps Intended to Enhance Service DOT’s Data Provide Mixed Information on the Quality of Airline Services

DOT’s data, which include both operational measures of airline service,  as well as passenger complaints received by DOT, provide mixed  information on whether service improved from 2008 through 2017. On-time performance. Involuntary denied boardings. DOT Conducts Five Key Compliance Activities

DOT conducts five key activities to help airlines understand and comply  with consumer protection requirements: (1) providing compliance  assistance to airlines, (2) processing complaints from passengers, (3)  conducting compliance inspections of airlines at headquarters and  airports, (4) conducting airline investigations, and (5) enforcing airlines’  compliance with consumer protection requirements. Improvements to DOT’s Procedures Could Provide Greater Assurance That Passengers’ Complaints Are Consistently Coded and that Consumer Protection Violations are Properly Identified

We found that while DOT has some procedures (i.e., guidance  documents and on-the-job training) in place for coding passenger  complaints, it lacks others that could help ensure that analysts  consistently code complaints and that potential consumer protection  violations are properly identified. DOT has taken some steps to help analysts code passenger complaints  and properly identify potential violations of consumer protection  requirements:
Guidance documents. For  example, while the coding sheet includes explanatory notes in 9 of the  15 complaint categories, it does not include definitions and examples  for each of DOT’s 15 complaint categories that would illustrate  appropriate use of a complaint code, a gap that could result in  inconsistent coding. DOT Lacks Performance Measures for Three of Five of Its Compliance Program Objectives

While DOT has five objectives for its key compliance program activities, it  has not established performance measures for three of these objectives. DOT lacks quantifiable performance measures related  to conducting inspections of airlines at airlines’ headquarters and at  airports. Without a performance  measure for enforcement activities, DOT is missing opportunities to  assess the effectiveness of these activities and make any needed  changes. DOT also has numerous other efforts to educate passengers on their  rights. DOT’s Educational Efforts Fully Align with Five of Nine Key Practices

We compared DOT’s efforts to educate airline passengers about their  rights against key practices for consumer outreach GAO identified in prior  work and found that DOT’s efforts fully align with five of the nine key  practices (see fig. For example, we found that DOT has successfully  identified the goals and objectives of its passenger education program  and identified the appropriate media mix for disseminating its materials. Obtaining input from passengers directly on what information they want or  what they know about their rights would provide DOT with greater  assurance that educational materials are appropriately tailored to meet a  wide range of passengers’ needs. For example, DOT has not  assessed whether its procedures and training materials help analysts  consistently code passengers’ complaints and identify potential consumer  protection violations. Nevertheless, DOT could improve its efforts by more fully following key  practices GAO previously identified for conducting consumer education,  such as by:  seeking feedback directly from consumers;  identifying short- and long-term budget resources; and establishing performance measures. Taking such actions would provide DOT with greater assurance that its  efforts are meeting passengers’ needs. Appendix II: Objectives, Scope, and Methodology

Our objectives for this report were to: (1) describe trends in DOT data on  airline service from 2008 through 2017 and airlines’ actions to improve  service; (2) assess how effectively DOT ensures airlines’ compliance with  consumer protection requirements; and (3) assess the extent to which  DOT’s airline passenger education efforts align with key practices for  consumer outreach. Representatives from each group provided technical  comments, which we incorporated, as appropriate. In addition to reviewing relevant  materials, we also conducted interviews with DOT officials to understand  their outreach efforts.
Why GAO Did This Study

Airlines recently came under scrutiny for their treatment of passengers—including a high-profile incident in which a passenger was forcibly removed from an overbooked flight. However, airlines maintain that service has improved, citing better on-time performance and lower airfares. DOT has the authority to issue and enforce certain consumer protection requirements. DOT also educates passengers about their rights.
GAO was asked to examine airline consumer protection issues. This report examines, among other issues, (1) trends in DOT's data on airline service; (2) the effectiveness of DOT's compliance efforts; and (3) the extent to which DOT's passenger education efforts align with key practices for consumer outreach. GAO reviewed DOT data on airline service and analyzed passenger complaint data for the 12 largest domestic airlines from 2008 through 2017; reviewed relevant documents and data on DOT's compliance program; assessed DOT's educational efforts against key practices for successful consumer outreach; and interviewed DOT officials. GAO interviewed or obtained written information from 11 of the 12 airlines.

What GAO Found

The Department of Transportation's (DOT) data offered mixed information on whether airlines' service improved from 2008 through 2017. While DOT's operational data on rates of late flights, denied boardings, and mishandled baggage generally suggested improvement, the rate of passenger complaints received by DOT increased about 10 percent—from about 1.1 complaints per 100,000 passengers to 1.2 complaints per 100,000 passengers.
DOT conducts five key activities to ensure airlines' compliance with consumer protection requirements (see table). However, GAO found that DOT lacked performance measures to help it evaluate some of these activities and that it could improve its procedures (i.e., guidance documents and training materials), that analysts use to code passenger complaints.
Performance measures : DOT has established objectives for each of its five key compliance activities that state what it seeks to achieve; however, DOT lacks performance measures for three objectives. For example, DOT lacks a performance measure for conducting inspections of airlines' compliance with consumer protection requirements at airlines' headquarters and at airports. As a result, DOT is missing opportunities to capture critical information about airlines' compliance with consumer protection requirements.
Procedures : DOT has procedures to help analysts code passenger complaints and identify potential consumer protection violations. GAO found that DOT's guidance for coding passenger complaints did not consistently include definitions or examples that illustrate appropriate use or help analysts select among the various complaint categories. Additional procedures would help DOT ensure that complaints are consistently coded and that potential violations are properly identified.
GAO found that while DOT has taken steps to educate passengers on their rights, its efforts did not fully align with four of nine key practices GAO previously identified for conducting consumer education. For example, while DOT has defined the goals and objectives of its outreach efforts, it has not used budget information to prioritize efforts or established performance measures to assess the results. DOT has also not solicited input directly from passengers to understand what they know about their rights. Taking such actions would provide DOT with greater assurance that its efforts are meeting passengers' needs.

What GAO Recommends

GAO is making six recommendations, including that DOT: develop performance measures for compliance activities, improve its procedures for coding airline passengers' complaints, and improve how passenger education aligns with GAO's key practices. DOT concurred with our recommendations and provided technical comments, which we incorporated as appropriate.