[Federal Register: April 6, 2009 (Volume 74, Number 64)]
[Rules and Regulations]
[Page 15380-15384]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr06ap09-8]
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POSTAL SERVICE
39 CFR Part 111
New Standards for Domestic Mailing Services
AGENCY: Postal Service \TM\.
ACTION: Final rule.
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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.
DATES: Effective Date: May 11, 2009.
FOR FURTHER INFORMATION CONTACT: Bill Chatfield, 202-268-7278.
SUPPLEMENTARY INFORMATION: On January 29, 2009 the Postal Service
published a proposed rule in the Federal Register (Volume 74, Number
18, pages 5130-5137) 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 6250-6257) 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 Flat-Machinable 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 PS-328, 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 paper-to-paper
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 First-Class 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 accuracy--all of which help us
process and deliver mixed AADC mail more efficiently than single-piece
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
First-Class Mail flats of either bundle-based or tray-based sortation
with applicable prices. We received many comments opposed to the
proposal to eliminate bundle-based 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 flat-size 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 machine-compatibility
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, 2009--Flats 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 flat-size mailpieces using polywrap, except for flats
mailed at saturation and high-density Periodicals or Standard Mail
prices. We received a few comments asking for exemption of saturation
and high-density 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
automation-compatible polywrap on all flat-size 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
flats-sorting 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 flat-size mailpieces, except those mailed at
saturation and high-density 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
high-density 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 4-inch
drop for pieces at least 10 inches long. The new standards will allow a
3-inch 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 flat-size mailpieces. One is a flat-size piece that is
machinable, but with parcel-like 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 flat-size mailpieces not able to meet the
flexibility standards in 301.1.3 may be eligible for automation prices
if they demonstrate flat machine-compatibility 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 non-delivery notices. This is similar to delivery constraints for
parcels.
For May 2010, we proposed a single flexibility standard that would
require all machinable flat-size mailpieces with rigid contents to be
foldable, parallel to the length, to a height no greater than 5 inches.
Flat-size pieces failing to meet this level of flexibility may be
categorized as irregular flats. Quite a few commenters objected to the
5-inch restriction, suggesting that allowing a 6-inch 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 Flat-Machinable (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.
0
Accordingly, 39 CFR Part 111 is amended as follows:
PART 111--[AMENDED]
0
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, 3001-3011, 3201-3219, 3403-3406, 3621, 3622, 3626, 3632, 3633,
and 5001.
0
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 letter-size 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, Odd-Shaped Items in Paper Envelopes.
* * * * *
[Revise item h by referring to sealing standards in 201.3.14.1 for
all self-mailers as follows:]
h. Is a self-mailer 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 letter-size 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 First-Class Mail and Standard Mail machinable letters
must meet the standards for automation-compatible 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 automation-compatibility 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 letter-size 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 letter-size 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 First-Class 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. 3-digit/scheme: optional, but required for 3-digit price (150-
piece minimum except no minimum for origin or entry 3-digit/scheme);
overflow allowed; for Line 1, use L002, Column B.
c. AADC: optional, but required for AADC price (150-piece minimum);
overflow allowed; group pieces by 3-digit (or 3-digit scheme) ZIP Code
when overflow pieces from 3-digit 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 3-digit 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); 150-piece 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. 3-digit/scheme; optional, but required for 3-digit price (150-
piece minimum, except no minimum for optional origin/entry 3-digit/
scheme(s)); overflow allowed; for Line 1, use L002, Column B.
c. AADC: optional, but required for AADC price (150-piece minimum);
overflow allowed; group pieces by 3-digit (or 3-digit scheme) ZIP Code
prefix when overflow pieces from 3-digit/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 Flats--Machine Compatibility
Flat-size 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
flats-machine compatibility. Rigid flat-size mailpieces in paper,
polywrap or similar packaging that allows for the pieces to be grasped
and inducted into USPS flat-sorting 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 flat-sorting
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. E9-7570 Filed 4-3-09; 8:45 am]
BILLING CODE 7710-12-P