The interpretations of government travel rules differ depending upon which agency you work for. My organization does not require that we use the government card when booking hotels - in fact, it is discouraged. However, flights must be booked using the card. I have never been given written travel orders, and am discouraged from telling a hotel employee the nature of my travel; just that I'm on official government business. I have often been allowed use of the government rate, even when informing the hotel in advance that I am on leisure travel. There is no world in which this is fraud, as I've made it clear that I'm not on official government business. For the record, I am asked to produce my government ID at check in approximately once per year.