"More specifically, end user satisfaction surveys indicated that the percent of end users that met the Navy's definition of a satisfied user has remained consistently below the target of 85 percent (latest survey results categorize 74 percent as satisfied)," according to the GAO. "Given that the Navy's definition of the term "satisfied" includes many marginally satisfied and arguably somewhat dissatisfied users, this percentage represents the best case depiction of end user satisfaction."

The GAO said neither of the other two groups was satisfied with the system. "Without satisfied customers, the Navy will be challenged in meeting program goals," the agency said.

The GAO has recommended that the Department of Defense implement effective program performance management; expand the measurement and understanding of service-level agreement performance; work to better manage customer satisfaction efforts; and decide whether overall performance to date warrants program changes.

In written comments responding to the report, the DOD said it agrees with the GAO's recommendations and said it has implemented, is implementing, or will implement each of them.