GAO-12-924R Defense Logistics

United States Government Accountability Office

Washington, DC 20548

September 10, 2012

The Honorable Carl Levin

Chairman

The Honorable John McCain

Ranking Member

Committee on Armed Services

United States Senate

The Honorable Howard P. McKeon

Chairman

The Honorable Adam Smith

Ranking Member

Committee on Armed Services

House of Representatives

Subject: Defense Logistics: Space-Available Travel Challenges May Be Exacerbated If 

Eligibility Expands

The space-available travel program is a privilege given to members of the armed forces to 

provide some relief from the rigors of duty when members are on leave. Retired members of 

the armed forces were also given the privilege in recognition of a career of such rigorous 

duty.1 This privilege may, in certain circumstances, be extended to other categories of 

passengers, such as dependents of active and retired members of the armed forces. 

Through the space-available travel program, eligible travelers are permitted to use open 

seats on certain military-owned or contracted aircraft after all required passengers have 

been accommodated. Space-available flights fly within the United States, between the 

United States and overseas, and between overseas locations. The Department of Defense 

(DOD) designed the space-available program to be a privilege and only extends this 

privilege to space-available travelers when it does not interfere with the aircraft’s mission. 

These aircraft are not permitted to be rerouted or rescheduled to accommodate spaceavailable passengers, and travel must be without additional expense to the United States. 

Recently, bills have been introduced in Congress to reauthorize or expand the spaceavailable travel program to potentially include international travel for gray-area retirees 

(reservists who are entitled to retirement pay at age 60) and their dependents, international 

travel for reservists and their dependents, and widows and widowers of active duty 

personnel and reservists and their dependents.2

 

1

Department of Defense Regulation 4515.13-R, Air Transportation Eligibility (November 1994) (incorporating change 3, Apr. 9, 

1998). 

Section 362 of the National Defense 

Authorization Act for Fiscal Year 2012 directed GAO to review DOD’s space-available travel 

2

See, for example, S. 3254, 112th Cong. § 632 (2012), which would codify authority for the space available program, and S. 

2112, 112th Cong. (2012), which would potentially require the Secretary of Defense to expand eligibility. 
Page 2 GAO-12-924R Defense Logistics

program.3 This report provides information on (1) the number of passengers that used the 

space-available travel program from 2009 through 2011, and (2) the effect that an increase 

in eligible travelers may have on the usage of the space-available program, adherence to 

DOD’s original intent for the program, and air terminal logistics and maintenance. 

To conduct this work, we interviewed officials in the Office of the Deputy Assistant Secretary 

of Defense for Transportation Policy; the Departments of the Army, Air Force, and Navy; the 

Marine Corps; the Joint Staff; the United States Transportation Command and its Air Mobility 

Command; the Defense Manpower Data Center; and the Department of Veterans Affairs 

about the space-available travel program. To determine how many passengers used the 

space-available travel program, we requested relevant data from DOD; however, limited 

data are actually collected by DOD since it does not consider the space-available program a 

DOD mission and additional DOD funds cannot be spent to support space-available travel. 

DOD provided data for the number of space-available passengers who actually traveled and 

the number of unused seats for space-available travelers for the past 3 fiscal years. DOD 

does not collect data on the number of persons who wished to travel but did not get a seat 

on space-available flights. Although we find the data sufficiently reliable for showing the 

number of passengers who actually traveled and the number of unused seats, we cannot 

quantify nor estimate the number of travelers who were not able to obtain space-available 

seats during this period. 

To determine the effect an increase in eligible travelers may have on the usage of the 

space-available travel program, adherence to DOD’s original intent for the program, and air 

terminal logistics and maintenance, we collected and analyzed documents on the spaceavailable travel program, such as DOD travel regulations and instructions, prior reports 

about expanding the program, and Sections 2641, 2648, and 2649 of Title 10, United States 

Code, which authorize the space-available travel program. To determine the effect an 

increase in eligible travelers would have on future usage of the program, we analyzed 

passenger data from fiscal years 2009 through 2011 and estimates of the number of 

potentially eligible travelers under the current proposal, as well as projected usage. To 

determine the effect an increase in eligible travelers would have on DOD’s original intent for 

the program, we obtained and analyzed DOD documents and data and interviewed 

cognizant DOD officials. To identify logistics and maintenance problems associated with the 

program, if any, we obtained and analyzed testimonial evidence from DOD officials and 

space-available travelers. We also visited two air terminals to observe the space-available 

travel process and interview space-available travelers about their experiences with the 

space-available program; however, the data are not generalizable and provide only a small 

window of experiences of passengers of the space-available travel program.

We conducted this performance audit from March 2012 through September 2012 in 

accordance with generally accepted government auditing standards. Those standards 

require that we plan and perform the audit to obtain sufficient, appropriate evidence to 

provide a reasonable basis for our findings and conclusions based on our audit objectives. 

We believe that the evidence obtained provides a reasonable basis for our findings and 

conclusions based on our audit objectives. 

In summary, we found the following:

According to DOD data, over 500,000 passengers used the space-available travel program 

from fiscal years 2009 through 2011. DOD data show that the five most-used air terminals 

have limited seats available. Specifically, seats for the three most-traveled destinations from 

each terminal were near capacity in Fiscal Year 2011. While there were some unused seats 

 

3

Pub. L. No. 112-81, § 362 (2011). 
Page 3 GAO-12-924R Defense Logistics

for space-available travel, these may be seats on routes with less-desirable destinations or 

during less-popular travel months. 

Additionally, DOD officials indicated that existing challenges with usage of the spaceavailable travel program, adherence to DOD’s original intent for the program, and air 

terminal logistics and maintenance would be exacerbated if the number of eligible 

passengers were to increase. 

• On the basis of Defense Manpower Data Center data, we estimated that the 

expansion of the space-available travel program could lead to additional spaceavailable travelers not obtaining seats. Expanding eligibility to include international 

travel for gray-area retirees (retired reservists under the age of 60 who are currently 

eligible to travel space available within the United States) and their dependents; 

international travel for reservists and their dependents; and domestic and 

international travel for widows and their dependents could lead to around 20,000 

travelers not being able to obtain space-available seats. However, this estimate may 

be low since it is based on the percentage of eligible travelers who used spaceavailable travel in 2011 but does not include those who were unable to obtain spaceavailable seats in 2011.

• According to DOD officials, expanding the space-available travel program could also 

adversely affect uniformed service members, for whom DOD created the program. 

For example, according to Air Mobility Command officials, a lower-priority passenger 

who already has a seat cannot be rotated off of an en-route flight at a subsequent 

stop by a space-available traveler in a higher-priority category. Therefore, the higherpriority uniformed service member may have to take leave while waiting to obtain a 

space-available seat on another flight or purchase a ticket with a commercial airline.

• According to DOD officials, expanding the pool of eligible passengers would also 

increase the burden on terminal personnel and require additional maintenance. Each 

space-available traveler requires terminal personnel assistance for documentation 

review, check-in processes, baggage handling, security screening, responding to 

travel questions, and transportation to and from the aircraft. DOD officials also stated 

that space-available travelers’ use of terminal facilities results in additional 

maintenance costs for waiting areas, restrooms, and vending machines.

• DOD believes budgetary constraints and planned reductions could affect future 

availability of seats. For example, the number of seats for space-available travel 

could be reduced if the number of DOD missions decreases because of DOD 

efficiency efforts or flight routes change based on force structure changes and 

mission requirements. DOD officials also stated that 90-95 percent of spaceavailable travel is on commercially contracted aircraft, and DOD is planning to 

reduce its use of contracted aircraft as a result of mission reductions and budgetary 

constraints.

• We found that the majority of the 24 space-available travelers interviewed at Dover 

Air Force Base and Baltimore Washington International Airport were generally 

satisfied with traveling space-available. The results of these interviews are not 

generalizable to a larger group and only represent observations made by these 

specific travelers on that particular date at those particular locations. 

Additional information on the results of our work is contained in enclosure I. We are not 

making any recommendations for agency action or raising any matters for congressional 

consideration. DOD and the Department of Veterans Affairs responded to a draft of this 

report with no comments.
Page 4 GAO-12-924R Defense Logistics

---- 

We are sending copies of this report to appropriate congressional committees and to the 

Secretary of Defense and the Secretary of Veterans Affairs. In addition, this letter will be 

made available at no charge on the GAO website at http://www.gao.gov. 

Should you or your staff have any questions concerning this report, please contact me at 

(202) 512-7968 or mctiguej@gao.gov. Contact points for our Offices of Congressional 

Relations and Public Affairs may be found on the last page of this letter. Key contributors to 

this report were Marie Mak, Assistant Director; David Keefer; Caitlin Kilpatrick; Joanne 

Landesman; Jennifer Madison; Gregory Marchand; Erika Prochaska; and Terry Richardson.

James R. McTigue, Jr., Acting Director

Defense Capabilities and Management

Enclosure
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Enclosure 1

Defense Logistics

Defense Logistics: Space-Available Travel 

Challenges May Be Exacerbated If 

Eligibility Expands

September 10, 2012

Page 1
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Objectives

The National Defense Authorization Act for Fiscal Year 2012 

directed GAO to review the Department of Defense (DOD) 

program for space-available travel to determine the current and 

projected future capacity of DOD’s airlift system, as well as the 

system’s efficiency, among other things.1 To address the required 

elements, we reviewed the following:

1. The number of passengers that used the space-available travel 

program from 2009 through 2011.

2. The effect that an increase in eligible travelers may have on the 

usage of the space-available program, adherence to DOD’s 

original intent for the program, and air terminal logistics and 

maintenance.

1Pub. L. No. 112-81, § 362 (2011). 

Page 2
Page 7 GAO-12-924R Defense Logistics

Scope and Methodology

To determine how many passengers used the space-available travel program from 

2009 through 2011, we conducted the following work:

• We interviewed officials in the Office of the Deputy Assistant Secretary of 

Defense for Transportation Policy and U.S. Transportation Command and its 

Air Mobility Command about the usage of the space-available travel program.

• We requested program data from DOD. However, limited data are collected by 

DOD since it does not consider the space-available program a DOD mission 

and additional DOD funds cannot be spent to support space-available travel. 

We analyzed traveler data from 2009 through 2011, because DOD retains 

space-available data only from the last 3 fiscal years. 

• For this review, we define efficiency as maximizing the amount of space- available seats used; however, to determine seat maximization, we would 

need to analyze data on how many seats were available, used, and 

unused, and the number of travelers who did not obtain seats on desired 

flights. DOD does not collect data on how many travelers do not obtain 

seats on specific flights, therefore DOD does not collect all the data 

necessary to make this determination. 

Page 3
Page 8 GAO-12-924R Defense Logistics

Scope and Methodology (cont’d)

To determine the effect an increase in eligible travelers would have on the usage 

of the space-available program, adherence to DOD’s original intent for the 

program, and air terminal logistics and maintenance, we conducted the 

following work: 

• We interviewed officials in the Office of the Deputy Assistant Secretary of 

Defense for Transportation Policy; the Departments of the Army, Air Force, and 

Navy; the Marine Corps; the Joint Staff; the U.S. Transportation Command and 

its Air Mobility Command; the Defense Manpower Data Center; and the 

Department of Veterans Affairs about the space-available travel program.

• To determine the effect an increase in eligible travelers would have on future 

usage of the space-available program, we analyzed DOD passenger data from 

fiscal years 2009 through 2011 and estimates of proposed newly eligible 

groups, including calculating projected usage. We limited our analysis to the 

last 3 fiscal years (2009 through 2011) because the DOD data system retains 

space-available data only from the last 3 fiscal years.

Page 4
Page 9 GAO-12-924R Defense Logistics

Scope and Methodology (cont’d)

To determine the effect an increase in eligible travelers would have on DOD’s original 

intent for the program, including the program’s cost, if any, we obtained and 

analyzed DOD documents and data and interviewed cognizant DOD officials to 

corroborate our analysis. 

• We analyzed Sections 2641, 2648, and 2649 of Title 10, U.S. Code, which 

authorize the space-available travel program. We also obtained DOD 

regulations and reports on the space-available program and analyzed these 

documents to determine DOD’s original intent for the program. 

• According to DOD officials, DOD does not collect data on the cost of the 

program because additional DOD funds cannot be spent to support spaceavailable travel. 

To identify logistics and maintenance problems, if any, associated with the spaceavailable program, we obtained and analyzed testimonial evidence from DOD 

officials and space-available travelers. We visited two air terminals to observe the 

space-available travel process and interview space-available travelers about their 

experiences with the space-available program.

Page 5
Page 10 GAO-12-924R Defense Logistics

Summary 

• According to DOD data, over 500,000 passengers used the 

space-available travel program from fiscal years 2009 through 

2011. 

• According to DOD officials, existing challenges with spaceavailable usage, adherence to DOD’s original intent for the 

program, and air terminal logistics and maintenance would be 

exacerbated if the number of eligible travelers were to increase. 

Also, we estimated that the expansion of the space-available 

travel program could lead to additional space-available travelers 

not obtaining seats. 

Page 6
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Space-Available Program Designed as a 

Privilege for Members of the Armed Forces

• The space-available travel program can be traced back to a 1907 statute.1

• DOD’s implementing regulation designed the program as a privilege for 

members of the armed forces, to provide relief from the rigors of duty. Retired 

members of the armed forces were also given the privilege in recognition of a 

career of such rigorous duty.2

• Space-available travelers are permitted to travel on military-owned or 

contracted aircraft with surplus seats only when it does not interfere with the 

DOD missions that the aircraft are fulfilling.

• These aircraft are not permitted to be rerouted or rescheduled to accommodate 

space-available passengers.

• Under 10 U.S.C. § 2648, space-available transportation must be without 

expense to the United States. DOD’s implementing regulation states that “no 

(or negligible) additional funds shall be expended and no additional flying hours 

shall be scheduled to support this program.” 

1Act of March 2, 1907, ch. 2511, 34 Stat. 1158-59. 

2Department of Defense Regulation 4515.13-R, Air Transportation Eligibility (November 1994) (incorporating change 3, Apr. 9, 1998). 

Page 7

Background
Page 12 GAO-12-924R Defense Logistics

Space-Available Travelers Are Placed in One of 

Six Priority Categories 

Space-available travelers are currently placed in one of six categories, on the basis of their 

status and situation. The category determines a traveler’s priority for travel; category I 

travelers are given the highest priority. 

Table 1: Space-Available Travel Priority Categories

Page 8

Background

Category Examples of eligible travela

I Emergency leave for verified family emergencies by uniformed service members, DOD civilians, and accompanied 

dependents

II Environmental and morale leave for sponsors (including uniformed service members, certain DOD civilians, and DOD 

teachers during the school year for training) and their dependents who are stationed overseas at installations that 

include difficult or adverse environmental conditions

III Ordinary leave for travel by uniformed service members and accompanied dependents 

IV Environmental and morale leave for DOD teachers during the summer and unaccompanied dependents who are 

stationed overseas at installations that include difficult or adverse environmental conditions

V Permissive temporary duty travel for military personnel, and overseas travel by dependents who are college students 

attending an overseas branch of a U.S. university

VI Travel by retired uniformed service members and their accompanied dependents, certain reservists (including “gray area 

retirees” who are entitled to retirement pay at age 60) traveling within the United States, and Reserve Officers’ Training 

Corps students traveling within the United States

Source: DOD.

a

Examples are drawn from the DOD chart of eligible space-available travelers, priorities, and approved geographical travel segments, table C6.T1 in DOD 

4515.13-R.
Page 13 GAO-12-924R Defense Logistics

Majority of Space-Available Passengers Are in 

Categories III and VI

Figure 1: Space-Available Usage by Travel Category from Fiscal Year 2009 through Fiscal Year 2011

Page 9

Objective 1
Page 14 GAO-12-924R Defense Logistics

 

DOD Had Some Unused Seats for SpaceAvailable Travelers

Table 2: Space-Available Usage from Calendar Year 2009 through 2011

Page 10

Calendar year Space-available passengersa Unused seats for space-available 

travelers 

2009 172,715 60,103 

2010 186,550 67,916 

2011 194,408 56,725 

Total 553,673 184,744

Objective 1

Source: DOD.

a

Space-available passengers are the number of travelers who obtained a space-available seat on a flight. This number does not reflect the number of space-available travelers 

that did not obtain seats on their intended flights.

Unused seats may be on routes with less-desirable destinations or during lesspopular travel months. For example, DOD officials stated that demand for 

space-available seats during the summer months is generally higher than seats 

available.
Page 15 GAO-12-924R Defense Logistics

Over Half of Space-Available Travel Occurs between 

the United States and Overseas Locations

During fiscal years 2009 through 2011, overseas-to-U.S. and U.S.-to-overseas 

travel routes had more space-available passengers than routes within the United 

States or between overseas locations.

Figure 2: Number of Space-Available Passengers on U.S. and Overseas Routes

Page 11

Objective 1
Page 16 GAO-12-924R Defense Logistics

Most-Used Air Terminals Have Limited 

Seats Available

According to DOD officials, the five air terminals most used are

• Baltimore Washington International Airport in Maryland, 

• Dover Air Force Base in Delaware, 

• Joint Base Pearl Harbor Hickam in Hawaii, 

• Ramstein Air Base in Germany, and 

• Travis Air Force Base in California. 

DOD officials provided the number of seats used, available, and 

open for the three most-popular destinations from each of the 

five air terminals, but data for the number of travelers who did 

not obtain seats on desired flights are not collected. The data 

are from fiscal year 2011 and are displayed on the next five 

pages.

Page 12

Objective 1
Page 17 GAO-12-924R Defense Logistics

 

Baltimore Washington International 

Airport Has Limited Seats Available

Figure 3: Seat Usage to the Three Most-Traveled Destinations from Baltimore (Fiscal Year 2011)

Page 13 *Overseas destination.

Objective 1
Page 18 GAO-12-924R Defense Logistics

 

Dover Air Force Base Has Limited Seats 

Available

Figure 4: Seat Usage to the Three Most-Traveled Destinations from Dover (Fiscal Year 2011)

Page 14

Objective 1

*Overseas destination.
Page 19 GAO-12-924R Defense Logistics

 

Joint Base Pearl Harbor Hickam Has 

Limited Seats Available

Figure 5: Seat Usage to the Three Most-Traveled Destinations from Hickam (Fiscal Year 2011)

Page 15

Objective 1

*Overseas destination.
Page 20 GAO-12-924R Defense Logistics

 

Ramstein Air Base Has Limited Seats 

Available

Figure 6: Seat Usage to the Three Most-Traveled Destinations from Ramstein (Fiscal Year 2011)

Page 16

Objective 1

*Overseas destination.
Page 21 GAO-12-924R Defense Logistics

 

Travis Air Force Base Has Limited Seats 

Available

Figure 7: Seat Usage to the Three Most-Traveled Destinations from Travis (Fiscal Year 2011)

Page 17

Objective 1

*Overseas destination.
Page 22 GAO-12-924R Defense Logistics

 

Seats to the Three Most-Traveled Destinations Are 

Near Capacity at Each of the Most-Used Terminals

Seats for the three most-traveled destinations from each of the 

most-used terminals were near capacity in Fiscal Year 2011. 

• Eleven of the 15 most-traveled routes from the most-used 

terminals were U.S.-to-overseas and overseas-to-U.S. 

(international) flights and these routes were at 97.6 percent 

capacity. 

• Seats used on these routes account for around 34 percent of all of 

the international (U.S.-to-overseas, overseas-to-overseas, and 

overseas-to-U.S.) space-available seats used in Fiscal Year 2011.

• There were 1,085 open seats in Fiscal Year 2011 for the 15 mosttraveled routes. This is about 2 percent of the 56,725 open 

(unused) seat totals for space-available travel.

Page 18

Objective 1
Page 23 GAO-12-924R Defense Logistics

 

Congress Is Considering Options to Reauthorize or 

Potentially Expand the Space-Available Program

Congress is considering reauthorizing the space-available 

travel program1 or potentially expanding the eligibility of 

travelers to include2

• international travel for gray-area retirees and their 

dependents;

• international travel for reservists and their dependents; 

and

• domestic and international travel for widows and 

widowers of active duty and reservists, and their 

dependents. 

1

S. 3254, 112th Cong. 632 (2012). 2

S. 2112, 112th Cong. (2012).

Page 19

Objective 2
Page 24 GAO-12-924R Defense Logistics

 

Potential Expansion Would Extend 

Eligibility to Additional Travelers

Page 20

Objective 2

Gray area 

retireesa

Reservesb

Widow(er)s of 

active duty 

personnel and 

reservesc

Total 

Sponsors 37,535 1,313,423 16,909 1,367,867

Dependentsd 408,450 1,523,517 45,755 1,977,722

Total 445,985 2,836,940 62,664 3,345,589

Source: GAO analysis of Defense Manpower Data Center data.

aGray area retirees are reservists who have completed 20 years of service but have not reached the age of 60. These retirees are currently eligible to travel 

space-available within the United States and certain territories. The proposed expansion would make these people eligible for international travel. bReserves includes the National Guard. These members are currently eligible to travel space-available only within the United States and certain territories. The 

proposed expansion would make these people eligible for international travel. 

cWidow(er)s are unremarried spouses of deceased active duty and reserve members of the armed forces. The actual number of widow(er)s eligible for spaceavailable travel may be higher than shown in the table because it only includes individuals who receive federal benefits.

d

There may be some minor over- or under-counting of dependents because these numbers were generated using established criteria for dependents, which 

are currently under review. 

Table 3: Number of Potentially Eligible Space-Available Travelers 
Page 25 GAO-12-924R Defense Logistics

Potential Expansion Would Result in 

Additional Travelers Not Obtaining Seats

On the basis of Defense Manpower Data Center data, we estimated that the expansion of the space-available program would lead to additional space-available 

travelers not obtaining seats.

• Expanding eligibility to include international travel for gray-area retirees, reservists, and their dependents, and domestic and international travel for 

widows and their dependents, could result in an estimated 77,000 additional 

travelers per year. 

• This estimate is based on an eligibility expansion of about 3.3 million travelers. 

• We assumed that approximately 2.3 percent of the expansion population 

would travel space available. We based this assumption on 2011 usage data, 

which indicated an approximate 2.3 percent usage by the currently eligible 

population. However, this estimate may be low since it is based on the 

percentage of eligible travelers who used space-available travel in 2011 but 

does not include those who were unable to obtain space-available seats in 

2011.

• In calendar year 2011, approximately 194,000 of the 251,000 seats open for 

space-available travel were used, leaving about 57,000 seats unused.

• Assuming the same number of open seats as in calendar year 2011, and that 

the 57,000 seats were filled regardless of flight destination, the expansion 

could result in about 20,000 travelers not being able to obtain space-available 

seats. However, this number is likely to be higher if additional travelers choose 

the most-used routes.

Page 21

Objective 2
Page 26 GAO-12-924R Defense Logistics

Expansion Calculations Have Limitations

• Expansion data do not account for whether the DOD flight destinations 

are compatible with locations where space-available travelers want to 

go and do not account for seasonal differences in usage. For example, 

11 of the 15 most-traveled destinations at the five most-used terminals 

were international destinations and near capacity, with 97.6 percent of 

the space-available seats filled. DOD officials also indicated demand for 

space-available seats during the summer months is generally higher 

than seats available.

• Gray-area retirees and reservists are currently eligible to travel within 

the United States and certain territories, therefore their travel is also 

included in the space-available seats used on flights within the United 

States.

• The number of available seats could be affected if the number of DOD 

missions decreases or the routes change based on force structure 

changes and mission requirements.

Page 22

Objective 2
Page 27 GAO-12-924R Defense Logistics

DOD Believes Expansion Could Adversely 

Affect Uniformed Service Members

According to DOD officials, expanding the space-available program could adversely affect uniformed service members, for whom DOD created the 

program.

For example (see fig. 8 on next page):

• A flight with space-available seats is flying from Location A to Location B to Location C.

• A retiree who is flying space available (Category VI) is able to board the 

flight at Location A, with a final destination of Location C.

• At Location B, a uniformed service member on ordinary leave 

(Category III) is waiting to travel space available to Location C.

• If there are no available seats remaining after departure from Location 

A, the uniformed service member cannot board this flight, because 

according to Air Mobility Command officials, the Category VI space- available passenger cannot be rotated off the flight at the subsequent 

stop (Location B) by a space-available traveler in a higher priority category. 

• This uniformed service member is required to take leave while waiting 

to obtain a space-available seat on another flight or purchase a ticket on a commercial flight. 

Page 23

Objective 2
Page 28 GAO-12-924R Defense Logistics

 

DOD Believes Expansion Could Adversely 

Impact Uniformed Service Members (cont’d)

Figure 8: Example of an Adverse Effect on a Uniformed Service Member

Page 24

Objective 2
Page 29 GAO-12-924R Defense Logistics

 

DOD Believes Expansion Would Increase 

Burden on Terminal Personnel

According to DOD officials, expanding the pool of people eligible for 

space-available travel would increase the burden on terminal 

personnel. 

• Each space-available traveler requires terminal personnel 

assistance for documentation review, check-in processes, 

baggage handling, security screening, responding to travel 

questions, and transportation to and from the aircraft.

• For example, overseas space-available travel requires 

verification of passports, visas, and other pertinent 

documentation and compliance with host-nation requirements. 

Verifying the documentation of additional travelers would 

increase the burden on personnel at the passenger services 

counter.

Page 25

Objective 2
Page 30 GAO-12-924R Defense Logistics

 

DOD Believes Expansion Would Lead to Additional 

Terminal Maintenance and Marginal Costs

• DOD officials stated that space-available travelers’ use of terminal 

facilities causes additional required maintenance. For example, 

additional travelers’ use of waiting areas, restrooms, and vending 

machines in the terminals could require additional cleaning and 

maintenance.

• While the space-available program is by law without expense to the United States, DOD officials estimated that expanding the program 

would result in additional marginal costs.

• For example, if the program were to be expanded to include 

overseas travel for gray-area retirees and their dependents, reservists and their dependents, and travel for widows or widowers 

and their dependents, officials anticipate that an additional $1.2 

million per year in fuel costs and an additional $646,000 per year in 

manpower costs for processing travelers in terminals would be 

incurred. These estimates assume only the number of unused seats 

in calendar year 2011 (about 57,000) would be filled. 

Page 26

Objective 2
Page 31 GAO-12-924R Defense Logistics

 

DOD Believes Budgetary Constraints and Planned 

Reductions Could Affect Future Availability of Seats

According to DOD officials, expansion of the space-available 

program is being considered while DOD is facing budgetary 

constraints. 

• The number of seats for space-available travel could be reduced if 

the number of DOD missions decrease because of DOD efficiency 

efforts or flight routes change based on force structure changes 

and mission requirements. 

• DOD officials stated that 90-95 percent of space-available travel is 

on commercially contracted aircraft, and DOD is planning to 

reduce its use of contracted aircraft as a result of mission 

reductions and budgetary constraints.

Page 27

Objective 2
Page 32 GAO-12-924R Defense Logistics

 

Space-Available Travelers Interviewed at Two 

Air Terminals Were Generally Satisfied

We interviewed 24 space-available travelers who were waiting for flights at Dover Air Force Base and 

Baltimore Washington International Airport. The results of these interviews are not generalizable to 

a larger group and only represent observations made by these specific travelers on that particular 

date at that particular location. The travelers made the following observations about their mostrecent space-available travel experiences:

• Nineteen of the 24 travelers had positive experiences with traveling space available.

• Eighteen of the 24 travelers stated that their expectations for traveling space available had been 

met.

• Twelve of the 24 travelers obtained seats on their intended flights during their most-recent spaceavailable travel experiences.

• Five travelers who did not obtain seats on their intended flights had to find lodging and wait an 

average of 5 days to get on a flight. 

• Nine of the 24 travelers were traveling alone, and the other 15 were traveling with dependents. 

• Seven of the 9 travelers traveling alone had positive experiences with traveling space 

available.

• Twelve of the 15 travelers traveling with dependents had positive experiences with traveling 

space available.

Page 28

Objective 2
Page 33 GAO-12-924R Defense Logistics

Space-Available Traveler Anecdotes Revealed 

Some Hardships 

In addition to the overall observations, the space-available travelers we 

interviewed at Dover Air Force Base and Baltimore Washington International 

Airport related the following stories about traveling space available:

• A category II traveler at Dover Air Force Base wanted to obtain a seat on a 

morning flight to Rota, Spain. This flight had originally departed Dover for Rota 

the day before, but had to return to Dover due to mechanical difficulties. The 

category II traveler was unable to obtain a seat because the original spaceavailable passengers–including passengers in lower priority categories–were 

already manifested on the flight. After not obtaining a seat on this flight, the 

traveler waited 4 more days, extended his leave, and anticipated that he would 

have to purchase a commercial ticket to Rota before his leave expired.

Page 29

Objective 2
Page 34 GAO-12-924R Defense Logistics

 

Space-Available Traveler Anecdotes Revealed 

Some Hardships (cont’d)

• A category III active duty service member, traveling with four dependents, 

incurred more than $3,000 in lodging, car rental, and food expenses while 

waiting 11 days to obtain seats on a space-available flight at Baltimore 

Washington International Airport. Over the 11 days, the family attempted to 

obtain space-available seats on eight flights. Meanwhile, the active duty service 

member had to extend his leave because he could not get back to his duty 

station overseas. 

• A category VI retiree waited 3 days for a seat on a space-available flight out of 

either Dover Air Force Base or Baltimore Washington International Airport. The 

retiree had originally tried to fly with two dependents, but he sent his 

dependents on a commercial flight with the hope that he could obtain one seat 

more easily than three. With no lodging available at Dover, the retiree slept in 

his car while waiting for space-available travel. 

Page 30

Objective 2

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