Federal Register: April 6, 2009 (Volume 74, Number 64)
DOCID: fr06ap09-8 FR Doc E9-7570
POSTAL SERVICE
Postal Service
CFR Citation: 39 CFR Part 111
NOTICE: RULES
DOCID: fr06ap09-8
DOCUMENT ACTION: Final rule.
SUBJECT CATEGORY:
New Standards for Domestic Mailing Services
DATES: Effective Date: May 11, 2009.
DOCUMENT SUMMARY:
The Postal Service is revising Mailing Standards of the United States Postal Service, Domestic Mail Manual (DMM[supreg]) to reflect changes to the prices and standards for the products now referred to as Mailing Services.
SUMMARY:
New Standards for Domestic Mailing Services,
SUPPLEMENTAL INFORMATION
On January 29, 2009 the Postal Service published a proposed rule in the Federal Register (Volume 74, Number 18, pages 51305137) that included several mail classification changes, modifications to mailpiece characteristics, and changes in classification terminology. A supplemental proposed rule was published in the Federal Register on February 6, 2009 (Volume 74, Number 24, pages 62506257) amending and clarifying certain standards. This final rule contains revisions that will be effective on May 11, 2009. We additionally describe those standards that were proposed for May 11, 2009 for which we will delay implementation until September 8, 2009.
For May 2010, we proposed: elimination of the Standard Mail[supreg] Not FlatMachinable category, restriction on inserts in flats, and a new flexibility or foldability standard for flats. These items will be included in a new, separate proposal at a later date.
In the sections below, we identify each revision, and summarize and respond to comments regarding May 11, 2009 implementation.
Overview of Changes for Letters and Flats for May 2009
Letters
We align standards for commercial machinable and automation letters
so all machinable letters have the same physical characteristics required of automation letters, with the exception of
[[Page 15381]]
a qualifying barcode. We make slight revisions to the list of
nonmachinable characteristics. We received comments in support of this
alignment. Several commenters requested clarification of some of the
elements that would render letters nonmachinable. Questions were raised
about the effect of window envelopes or attachments on the addition of
nonpaper surfaces to the list of nonmachinable characteristics. Several
commenters questioned if this new nonmachinable characteristic would
render laminated paper cards nonmachinable. The intent of this change
is the alignment of machinable and automation letter standards. Current
standards require automation letters to be ``made of paper.'' Mailers
who have been able to establish that their laminated paper cards are
made of paper and not plastic, have been able to mail those items at
automation prices and will continue to be able to do so. Letters with
nonpaper surfaces, other than envelope windows or attachments that are
allowed in a class of mail, are not machinable. Several commenters
asked for clarification of when letters with enclosed keys, coins or
similar objects are nonmachinable. If coins or similar objects are
either loose or make the letter nonuniform in thickness, the piece is
nonmachinable. This revision aligns with current standards in DMM
201.3.10 and with Customer Support Ruling PS328, available online at
pe.usps.com. Commercial letters that are not machinable are eligible to be mailed as nonmachinable letters.
We proposed a new minimum 0.009 inch thickness standard for automation and machinable letters. We received a few comments in favor of this proposal and a few opposed. We continue to require automation and machinable letters larger than postcard size to be at least 0.009 inch thick, and we continue the current minimum thickness of 0.007 inch for letters and cards up to postcard size (4\1/4\ inches high by 6 inches long).
We received several comments about the difficulty in determining excessive static charge or meeting coefficient of friction standards. As announced in a DMM Advisory notice on February 3, 2009, we postpone implementation of new static charge and coefficient of friction standards for automation and machinable letters, while new methods are explored to measure the standards. Some mailers indicated that they have methods to reduce effective static charge. We recommend that mailers try to measure and reduce the static charge created by their mailpieces to no more than two kilovolts and meet the papertopaper coefficient of friction recommendations between 0.24 and 0.36. As we stated in a DMM Advisory notice on January 28, 2009, we also postpone new standards for window envelopes.
Mailers have the option to prepare FirstClass Mail[reg] and Standard Mail automation letters and Standard Mail machinable letters to all applicable sort levels, with prices matching the level of sortation chosen. We received several comments objecting to this change and one in favor of the change. Claims were made that if a mailer chose to only prepare mixed AADC trays, that we would effectively be granting a discount for nonpresorted letters. There are other requirements for this mail, such as Move Update compliance, CASS \TM\certification for barcoded letters, and ZIP[reg] Code accuracyall of which help us process and deliver mixed AADC mail more efficiently than singlepiece mail. Some commenters stated that processing plants urged mailers to bring in ``residual'' mail as early as possible; they were also concerned that the USPS[supreg] might impose earlier critical entry times for this mail. The USPS has the operational capacity to enable timely processing without changing critical entry times.
Flats
We will retain the current preparation options for automation FirstClass Mail flats of either bundlebased or traybased sortation with applicable prices. We received many comments opposed to the proposal to eliminate bundlebased sortation, ranging from recent investments in bundling equipment to potentially less access to lower prices. We are postponing implementation of this change, and will reconsider it for later implementation.
Rigid flatsize mailpieces that are not able to meet the flexibility standards in DMM 301.1.3 may be eligible for automation prices if they are determined to have flats machinecompatibility through a Pricing and Classification Service Center (PCSC)administered testing process. Eligibility for such pieces will be valid until May 2010. Mailers coordinate testing requests via district managers of business mail entry. Those pieces that do not meet the published flexibility standards for flats, but are authorized to mail at flats prices by PCSC approval, must be marked ``Automation Flat.'' Postponed Until September 8, 2009Flats Changes
The following changes for flats will have a September 8, 2009 implementation date to provide additional time for mailers to make the adjustments to their operations.
Polywrap standards, currently applicable only to automation flats, will apply to all flatsize mailpieces using polywrap, except for flats mailed at saturation and highdensity Periodicals or Standard Mail prices. We received a few comments asking for exemption of saturation and highdensity flats, which we have accommodated in our revisions. We received some comments requesting more time to comply with this change and some comments in favor of the change. In response to requests for more time, the delayed implementation will allow mailers who have not been using approved polywrap to make the transition. Detailed specifications for polywrap approved for use on flats, as well as a list of approved products, is available at ribbs.usps.gov. The use of automationcompatible polywrap on all flatsize mailpieces improves mail processing efficiency and applies standardization and consistency for mailers of polywrapped flats.
The polywrap selvage (overhang) on a polywrapped flat will be included when a flat is measured for maximum dimensions, because selvage that extends beyond the maximum height or length interferes with efficient processing. Several commenters thought this restriction would render their larger flats ineligible for flats prices. When our flatssorting equipment attempts to process pieces that are larger than the maximum length or height of a mailpiece, the pieces are often culled out. As an accommodation, we will increase the maximum length of a polywrapped flat to 15.75 inches (inclusive of selvage) from the current 15 inches to accommodate some additional selvage for larger publications. As a reminder, we continue to allow no more than 1\1/2\ inches of selvage in the length and no more than \1/2\ inch in the height. We will not include selvage when measuring for minimum dimensions because the selvage is not substantial enough for it to be considered part of a uniformly thick flat. We received no comments related to selvage and minimum dimensions.
We extend the deflection standards currently applicable to
automation flats, to all flatsize mailpieces, except those mailed at
saturation and highdensity Periodicals or Standard Mail prices. The
deflection standards also change to allow one inch less of vertical
deflection (droop) than is currently allowed. We also eliminate the
current exception for oblong flats (those with a bound edge on the
shorter side) so all flats are tested with the length placed perpendicular to the edge of a flat surface. A few
[[Page 15382]]
commenters asked that the exception to deflection standards apply to
highdensity as well as saturation flats. We agree to make that
accommodation. Several commenters disagreed with the more restrictive
deflection standards on all flats. Some commenters also objected to the
change in the testing procedure for oblong flats, stating that those
flats would not pass the new test administered by placing the bound
edge parallel to the edge of the flat surface. As a reminder, the USPS
reduced the deflection standards in 2007, permitting up to a 4inch
drop for pieces at least 10 inches long. The new standards will allow a
3inch drop for pieces at least 10 inches long, compared to a maximum
of 2\3/8\ inch drop before May 2007. Our difficulties in processing
oblong flats, and those that come close to the current maximum
deflection, made it clear that the previous reduction was too
extensive. Some oblong flats may be able to meet the new standards by
adding a tab to the open edges opposite the bound edge or by other
methods. Our delayed implementation offers mailers the opportunity to
make changes to slightly stiffen their ``floppy'' flats to meet the new
standards. The new standards, by allowing more deflection for flats
over 10 inches long than for shorter pieces, provide flexibility to the
mailing community while ensuring efficient processing of the mail. Parcels
For consolidation purposes, we remove definitions of irregular
parcels from the mail preparation standards in DMM 465, 475, and 485,
and provide references to the current definition of irregular parcels
in DMM 401, Physical Standards. This does not change the current definition of irregular parcels.
Overview of Proposed Changes for 2010
Summary
All changes originally proposed for 2010 will be reissued in a subsequent proposed rule. As information, we briefly discuss those changes below.
Flats
We proposed to merge standards for nonautomation and automation flats in May 2010; requiring all machinable flats, whether or not they are barcoded, to have the same physical characteristics. The terminology would change the categories to: machinable; barcoded machinable; and irregular flats. Irregular flats would encompass two types of flatsize mailpieces. One is a flatsize piece that is machinable, but with parcellike characteristics that affect deliverability, such as pieces with rigid contents because the pieces cannot be folded. Another type of irregular flat is foldable with favorable delivery characteristics, but is not machinable, such as flimsy pieces that are difficult to process on automation equipment.
Current flexibility standards in DMM 301.1.3 describe minimum flexibility as demonstrated by ``tabletop'' flexibility tests. Effective May 2009, rigid flatsize mailpieces not able to meet the flexibility standards in 301.1.3 may be eligible for automation prices if they demonstrate flat machinecompatibility through a PCSC administered testing process. Delivery of rigid pieces is often more costly than delivery of foldable flats. Rigid pieces that do not fit in smaller mail receptacles often result in Postal employees having to leave nondelivery notices. This is similar to delivery constraints for parcels.
For May 2010, we proposed a single flexibility standard that would require all machinable flatsize mailpieces with rigid contents to be foldable, parallel to the length, to a height no greater than 5 inches. Flatsize pieces failing to meet this level of flexibility may be categorized as irregular flats. Quite a few commenters objected to the 5inch restriction, suggesting that allowing a 6inch height would accommodate the contents that they mail in substantial quantities, while others requested that we allow pieces to be folded in either direction.
We will provide revised DMM language for new flexibility standards and any new categorization of flats for 2010 in a subsequent Federal Register proposal.
We are postponing our proposal to restrict inserts in flats. We received many comments requesting reconsideration due to the prevalence of inserts that advertisers rely on as part of their mailing strategy. We recognize that mailers rely on loose inserts for advertising purposes and understand that we share common ground in taking steps to be sure that inserts reach the addressees and do not fall out of mailpieces. Therefore, we will work with mailers to identify publications and catalogs with loose inserts that fall out of the mailpiece and inhibit our processing and delivery functions. In most cases, a simple ``shake'' test may provide a useful demonstration of whether inserts are likely to fall out. Pinching a flat with inserts by the upper corner of the bound edge and shaking it will tend to dislodge those inserts not blown well into the body of the flat. Inserts that are inserted or blown well into the body of a flat tend to stay in place.
Not FlatMachinable (NFMs)
In 2007, we created an NFM category for Standard Mail items that could not meet revised automation flats standards. We proposed to discontinue the NFM category in May 2010. Since 2007, many mailers have converted pieces that might have been subject to NFM or parcel prices, into pieces eligible for flats prices. We will include any change in the NFM categorization in a subsequent proposal along with other proposals to be effective in May 2010.
The Postal Service adopts the following changes to Mailing Standards of the United States Postal Service, Domestic Mail Manual (DMM), incorporated by reference in the Code of Federal Regulations. See 39 CFR Part 111.
List of Subjects in 39 CFR Part 111
Administrative practice and procedure, Postal Service. Accordingly, 39 CFR Part 111 is amended as follows:
PART 111[AMENDED]
1. The authority citation for 39 CFR Part 111 continues to read as follows:
Authority: 5 U.S.C. 552(a); 39 U.S.C. 101, 401, 403, 404, 414,
416, 30013011, 32013219, 34033406, 3621, 3622, 3626, 3632, 3633, and 5001.
2. Revise the following sections of Mailing Standards of the United
States Postal Service, Domestic Mail Manual (DMM), as follows: 100 Retail Mail Letters, Cards, Flats, and Parcels
101 Physical Standards
101.1 Physical Standards for Letters
* * * * *
1.2 Nonmachinable Criteria
A lettersize piece is nonmachinable (see 6.4) if it has one or
more of the following characteristics (see 601.1.4 to determine the length, height, top, and bottom of a mailpiece):
* * * * *
[Revise item b to add that any nonpaper exterior surface is nonmachinable as follows:]
b. Is polybagged, polywrapped, enclosed in any plastic material, or
has an exterior surface made of a material that is not paper. Windows
in envelopes made of paper do not make mailpieces nonmachinable.
Attachments allowable under applicable eligibility standards do not make mailpieces nonmachinable.
* * * * *
[Revise item d to clarify that letters are nonmachinable when certain items
[[Page 15383]]
are loose or when they cause the thickness to be uneven, as follows:]
d. Contains items such as pens, pencils, keys, or coins that cause
the thickness of the mailpiece to be uneven; or loose keys or coins or
similar objects not affixed to the contents within the mailpiece. Loose
items may cause a letter to be nonmailable when mailed in paper
envelopes; see 601.2.3, OddShaped Items in Paper Envelopes. * * * * *
[Revise item h by referring to sealing standards in 201.3.14.1 for all selfmailers as follows:]
h. Is a selfmailer that is not prepared according to 201.3.14.1. [Revise item i by referring to sealing standards in 201.3.14.2 for all booklets as follows:]
i. Is a booklet that is not prepared according to 201.3.14.2. * * * * *
200 Commercial Mail Letters and Cards
201 Physical Standards
1.0 Physical Standards for Machinable Letters and Cards
1.1 Physical Standards for Machinable Letters
1.1.1 Dimensional Standards for Letters
[Revise introductory sentence as follows:]
Machinable lettersize mail is:
* * * * *
[Add new item d as follows:]
d. Within an aspect ratio (length divided by height) of 1.3 to 2.5, inclusive. See 601.1.4.
* * * * *
1.1.3 All Machinable Letters
[Revise the first sentence of 1.1.3 as follows:]
All pieces of FirstClass Mail and Standard Mail machinable letters
must meet the standards for automationcompatible letters in 201.3.0. * * *
* * * * *
2.0 Physical Standards for Nonmachinable Letters
2.1 Criteria for Nonmachinable Letters
[Revise 2.1 by noting that letters with exterior surfaces not made
of paper or that do not meet automationcompatibility standards are
nonmachinable; that all letters over 3.3 ounces must have a barcode and
claim an automation letter price to avoid a surcharge; and by removing the individual listed items as follows:]
A lettersize piece is nonmachinable if it has an exterior surface
that is not made of paper or if it does not meet the standards in
201.3.0. Windows in envelopes made of paper do not make mailpieces
nonmachinable. Attachments do not render mailpieces nonmachinable if
allowed by eligibility standards according to the class of mail and if
not prohibited in 201.3.0. In addition, a lettersize piece is
nonmachinable if it weighs more than 3.3 ounces (up to 3.5 ounces)
unless it has a barcode and is eligible for and claims automation
letter prices or Standard Mail Carrier Route letter prices. * * * * *
[Revise title of 3.0 as follows:]
3.0 Physical Standards for Machinable and Automation Letters and Cards * * * * *
[Revise title of 3.2 as follows:]
3.2 Dimensions and Shape Standards for Machinable and Automation Letters
* * * * *
230 FirstClass Mail
* * * * *
235 Mail Preparation
* * * * *
[Revise heading of 6.0 as follows:]
6.0 Preparing Automation Letters
* * * * *
6.6 Tray Preparation
* * * Preparation sequence, tray size, and Line 1 labeling: * * * * *
[Revise items b through d to allow optional preparation and modify grouping requirement as follows:]
b. 3digit/scheme: optional, but required for 3digit price (150 piece minimum except no minimum for origin or entry 3digit/scheme); overflow allowed; for Line 1, use L002, Column B.
c. AADC: optional, but required for AADC price (150piece minimum); overflow allowed; group pieces by 3digit (or 3digit scheme) ZIP Code when overflow pieces from 3digit trays are placed in AADC trays. For Line 1, use L801, Column B.
d. Mixed AADC: required (no minimum); group pieces by AADC when
overflow pieces from AADC trays are placed in mixed AADC trays. For
Line 1 use L201; for mail originating in ZIP Code areas in Column A,
use ``MXD'' followed by city, state, and 3digit ZIP Code prefix in
Column C (use ``MXD'' instead of ``OMX'' in the destination line and ignore Column B).
* * * * *
240 Standard Mail
* * * * *
245 Mail Preparation
* * * * *
5.0 Preparing Nonautomation Letters
* * * * *
5.3 Machinable Preparation
* * * * *
[Revise introductory paragraph of 5.3.2 as follows:]
5.3.2 Traying and Labeling
Instead of preparing overflow AADC trays with fewer than 150
pieces, mailers may include these pieces in mixed AADC trays when a
tray of 150 or more pieces can be made. Mailers must note these trays
on standardized documentation (see 708.1.2). Pieces that are placed in
the next tray level must be grouped by destination and placed in the
front or back of that tray. Preparation sequence, tray size, and labeling:
* * * * *
[Revise first sentence of 5.3.2 b to allow optional preparation as follows:]
b. AADC (optional, but required for AADC price); 150piece minimum
(overflow allowed); group pieces by AADC when overflow pieces from AADC trays are placed in mixed AADC trays; labeling: * * *
* * * * *
[Revise heading of 7.0 as follows:]
7.0 Preparing Automation Letters
* * * * *
7.5 Tray Preparation
* * * Preparation sequence, tray size, and Line 1 labeling: * * * * *
[Revise items b through d to allow optional preparation and modify grouping requirement as follows:]
b. 3digit/scheme; optional, but required for 3digit price (150 piece minimum, except no minimum for optional origin/entry 3digit/ scheme(s)); overflow allowed; for Line 1, use L002, Column B.
c. AADC: optional, but required for AADC price (150piece minimum); overflow allowed; group pieces by 3digit (or 3digit scheme) ZIP Code prefix when overflow pieces from 3digit/scheme trays are placed in AADC trays. For Line 1, use L801, Column B.
d. Mixed AADC: required (no minimum); group pieces by AADC when
overflow pieces from AADC trays are placed in mixed AADC trays. For
Line 1 labeling: use L011, Column B. Use L010, Column B if entered at an
[[Page 15384]]
ASF or BMC or for mail placed on an ASF, BMC, or SCF pallet under the option in 705.8.10.3.
* * * * *
300 Commercial Mail Flats
301 Physical Standards
* * * * *
3.0 Physical Standards for Automation Flats
* * * * *
[Renumber 3.3 through 3.7 as new 3.4 through 3.8, and add new 3.3 as follows:]
3.3 FlatsMachine Compatibility
Flatsize mailpieces meeting the standards in 1.0 and 3.0, but unable to meet the minimum flexibility standards described in 1.3, are not eligible for automation prices unless the mailpieces demonstrate flatsmachine compatibility. Rigid flatsize mailpieces in paper, polywrap or similar packaging that allows for the pieces to be grasped and inducted into USPS flatsorting equipment may qualify for automation prices when meeting the following standards:
a. Mailpieces must be enclosed in envelopes or similar packaging capable of withstanding normal processing on USPS flatsorting equipment.
b. Mailpieces must be approved for automation flats pricing by the USPS. Mailers seeking approval for mailpieces under this standard must contact their local manager, business mail entry for instructions on submitting sample mailpieces to the Pricing and Classification Service Center (PCSC) (see 608.8.0 for address) for analysis and possible testing. Mailpieces having a previous approval from the PCSC for automation flats prices, granted after May 2007, are not required to be resubmitted for a new approval. These and all other approvals granted under 3.3 expire in May 2010.
c. Mailpieces approved for automation flats pricing under this
standard must print the endorsement ``Automation Flat'' directly under or to the left of the postage imprint.
* * * * *
302 Elements on the Face of a Mailpiece
* * * * *
4.0 Barcode Placement
* * * * *
4.6 Barcode in Address Block
When the barcode is included as part of the address block: * * * * *
[Revise 4.6d by adding a new last sentence as follows:]
d. * * * Window envelopes also must meet the specifications in 601.6.3.
* * * * *
400 Commercial Parcels
* * * * *
460 Bound Printed Matter
* * * * *
465 Mail Preparation
* * * * *
5.0 Preparing Presorted Parcels
5.1 Basic Standards
5.1.1 General Preparation Requirements
All mailings of Presorted Bound Printed Matter (BPM) are subject to these general standards:
* * * * *
[Revise item b as follows:]
b. All pieces in a mailing must be within the same processing
category. See 401.1.0 for definitions of machinable and irregular parcels.
* * * * *
470 Media Mail
* * * * *
475 Mail Preparation
* * * * *
5.0 Preparing Media Mail Parcels
[Revise introductory paragraph of 5.1 as follows:]
5.1 Basic Standards
All mailings of Presorted Media Mail are subject these general requirements:
* * * * *
[Revise item b as follows:]
b. All parcels in a mailing must be within the same processing
category. See 401.1.0 for definitions of machinable and irregular parcels.
* * * * *
480 Library Mail
* * * * *
485 Mail Preparation
* * * * *
5.0 Preparing Library Mail Parcels
[Revise introductory paragraph of 5.1 as follows:]
5.1 Basic Standards
All mailings of Presorted Library Mail are subject to these general standards:
* * * * *
[Revise item b as follows:]
b. All pieces in a mailing must be within the same processing
category. See 401.1.0 for definitions of machinable and irregular parcels.
* * * * *
Stanley F. Mires,
Chief Counsel, Legislative.
[FR Doc. E97570 Filed 4309; 8:45 am]
BILLING CODE 771012P
FOR FURTHER INFORMATION CONTACT
Bill Chatfield, 202-268-7278.