Most agencies have many groups of customers, often with conflicting interests. The U.S. Forest Service, for example, simultaneously serves recreational, forestry and mining interests. Veterans Benefits surveys customers for all its services, from home loans to vocational rehabilitation services. It even surveys customers who were turned down for benefits. Next year they'll also survey college-aid officers, high school guidance counselors and financial institutions that make student loans.
Many agencies deliver both an obligation and a service.
Doing so is the most effective, least expensive way to deliver the obligation. So for sure, survey those who are obliged, whether by the IRS, OSHA, EPA, FAA or the other agencies. But we might expect satisfaction ratings lower than those from customers who are using a service of the federal government. It provides a strong vehicle for holding agencies accountable. It provides agencies with feedback crucial to improving their services.