NOTE: COMMENTS REGARDING ANY FEDERAL REGISTER NOTICE MUST BE SENT TO THE ADDRESS INDICATED IN THE DOCUMENT. ANY COMMENTS ON THE RAPID INFORMATION BULLETIN BOARD SYSTEM (RIBBS) ABOUT ANY FEDERAL REGISTER NOTICES WILL NOT BE USED OR CONSIDERED IN THE COURSE OF ANY RULE MAKING. ----------------------------------------------------------------------- POSTAL SERVICE 39 CFR Part 111 Revisions to Weight and Preparation Standards for Barcoded Letter Mail AGENCY: Postal Service. ACTION: Final rule. ----------------------------------------------------------------------- SUMMARY: This final rule amends Domestic Mail Manual (DMM) standards concerning the maximum weight of an automation-compatible barcoded letter-size mailpiece. Subject to additional preparation requirements, certain barcoded mailpieces weighing more than 3 ounces will be acceptable at Barcoded rates for a trial period of up to 1 year. EFFECTIVE DATE: January 16, 1995. FOR FURTHER INFORMATION CONTACT: Anthony M. Pajunas, (202) 268-3669. SUPPLEMENTARY INFORMATION: On July 14, 1994, the Postal Service published for public comment in the Federal Register (59 FR 35873- 35875) a proposed rule to amend the Domestic Mail Manual (DMM) standards for the physical characteristics of automation-compatible barcoded letter-size mail. For a period of up to 1 year, the Postal Service proposed to conduct a live test of barcoded bulk third-class regular rate letter mail weighing between 3.0 and 3.3067 ounces, and First-, second-, and bulk third-class nonprofit rate letter mail weighing between 3.0 and 3.3363 ounces. Although the Postal Service believes that this mail can benefit from barcoding (as the means of moving this mail into an automated processing environment), it also believes that this benefit can be achieved only under specific standards governing the construction and preparation of this "heavy letter mail." Thus, the proposed new standards required that each "heavy letter" mailpiece comply with the following: (1) Be part of a mailing that is 100 percent delivery point barcoded. (2) Have the barcode in the address block. (3) Be in an envelope that has no open windows. (4) Not be bound or have stiff enclosures. The Postal Service proposed to set the maximum weight for Barcoded rate letter-size mailpieces at 3.3363 ounces (or 3.3067 ounces for pieces mailed at regular bulk third-class rates), the break points between the bulk third-class minimum per-piece rates and the two-part piece/pound rates then in effect. (These values increase to 3.3376 and 3.3071 ounces, respectively, when R94 rates are implemented on January 1, 1995. The increased values are used in the text and DMM revisions appearing below.) If the maximum weight were set at 3.3 ounces, a small amount of letter-size minimum per-piece mail would be excluded from the rates otherwise available to letter mail. For simplicity and consistency, the maximum weight for First- and second-class barcoded letter mail was also proposed to be set at 3.3376 ounces. For regular bulk third-class rate only, the maximum is set at 3.3071 ounces, which is its "break point." If the proposed test or changes in the "break point" indicate that this alignment is not in the best interest of the Postal Service, the maximum weight will be adjusted accordingly. The Postal Service received 14 comments on the proposed rule, including three from mailing industry trade associations, one from a mailing-related business, and 10 from companies and corporations. The specific topics covered in those comments are discussed below. Consideration of Letter Mail Heavier Than 3.0 Ounces for Automation Rates All 14 commenters expressed support for the Postal Service's efforts to conduct live tests of barcoded letters weighing between 3.0 and 3.3376 ounces (or 3.3071 ounces for third-class regular rate mail). One commenter encouraged consideration for a much higher weight limit. The Postal Service believes that for the heavy letter-mail test period, the maximum weight should be limited to 3.3376 ounces. Previous controlled tests conducted by the Postal Service revealed that increased problems (such as damage, jams, and throughput) arose or worsened with mail heavier than 3.3376 ounces. Another commenter (a mailing company) supported the Postal Service's effort but expressed doubts that presort service bureaus would accept address-block barcoded heavy letter mail to run through their automated equipment because of possible machine jams, lowered machine throughput, and the requirement for 100 percent delivery point barcoding. Participation in this test is voluntary. Although the Postal Service realizes that some companies will be unable to participate, it does not believe that the objectives of the test can be served if the test criteria are altered. The Postal Service believes that it will be able, under the requirements adopted by this rule, to obtain sufficient participation to conduct a valid test. Requirement for Enveloped Mailpieces Two comments were received opposing the proposed standard that all heavy letter mail be in envelopes. One commenter thought that the heavy letter mail tests should be conducted using mailpieces constructed under current standards and encouraged the use of tabbed catalogs during the trial period. One commenter recommended the inclusion of self-mailers. The Postal Service believes that only enveloped mail should be tested as part of this trial and that the proposed restriction on self- mailers and on bound or booklet-type mail should remain. The preliminary tests were performed only on enveloped mailpieces that were heavier than 3.0 ounces and not on tabbed catalogs. The Postal Service has recently tested tabbed catalogs weighing 3.3 ounces on its automated equipment and found that such pieces caused equipment jams and were more susceptible to damage. As a result, the Postal Service believes that it is prudent to proceed to test only enveloped mail. Accordingly, that portion of the proposed rule that specified only enveloped mail would be eligible for the test will be retained in the final rule. In allowing only enveloped mail in the proposed test, the Postal Service is seeking to evaluate the performance of heavy letter mail having the best opportunity for successful automated processing, insofar as that can be predicted by physical criteria. Accordingly, in addition to retaining its focus on enveloped mail, the Postal Service also wishes to point out that by including heavy letter mail in the general category of automation-compatible mail for the test period, it is expecting that this mail will be prepared in trays, as is currently the case for other automation-compatible letter mail. Although the proposed rule did not explicitly discuss this point, the Postal Service finds it appropriate to emphasize this point in the final rule as a logical corollary to the temporary transfer of heavy letter mail into the automation-compatible category. Restriction of Open-Windowed Envelopes Four comments were received opposing the standard that heavy letter mail not be in envelopes with open windows. The Postal Service has conducted tests in which preliminary results indicate that open windows on mailpieces above 3.0 ounces have a greater tendency to snag on automated processing equipment. The Postal Service is also concerned about damage to the heavy letter mailpieces with open windows and other mail that might be adjacent to it during automated processing. Thus, the Postal Service has determined to retain the proposed prohibition of open-windowed envelopes in the final rule. 100% Delivery Point Barcode Requirement Nine comments were received opposing the standard that mailings of heavy letter pieces be 100 percent delivery point barcoded. Eight commenters stated that 100 percent delivery point barcoding would discourage or inhibit them from participating in the test and requested that barcoding levels be set at the 85 percent level now generally applicable to Barcoded rate letter mailings. Seven commenters stated that 100 percent delivery point barcoding would require splitting their mailings into two streams--one delivery point barcoded stream and one not. Several commenters stated that splitting the mail into two such streams would negate the benefits of the automation rate. One commenter stated that his company already splits the mail into two streams and meets the 100 percent requirement. Four commenters stated that no major mailer today has been able to ZIP+4 code 100 percent of its mailing. The Postal Service believes that the requirement for 100 percent delivery point barcoding of all heavy letter mail is necessary. As part of an effort to get a barcode on all mail, the Postal Service routinely processes on an optical character reader (OCR) all mailpieces rejected from barcode sorters in an effort to read the delivery address and print a barcode in the lower right corner of the mailpiece. However, heavy letter mail will not run through OCRs; attempts to process and barcode such mail on an OCR revealed that significant damage occurred to the heavy letter pieces and that any barcodes printed in the barcode clear zone by the OCR were often unreadable. (The increased thickness caused the bottom edges of the heavy letter mail envelopes to be rounded and to buckle when bent. Because of the curvature and irregular surface created by the rounding and buckling of the heavy mailpiece, barcodes printed in the lower right corner of such mailpieces by the OCR were outside the working specifications of postal barcode readers and, as a result, useless for automated processing.) The additional OCR processing of non-delivery point barcoded heavy letter mail, the labor to repair damaged pieces, and the ensuing manual or mechanized handling of that mail amount to unreasonable additional costs for the Postal Service, well beyond that appropriate for Barcoded rate mail. As a result, the proposed rule's provisions for a 100 percent delivery point barcoded mailstream for heavy letter mail will be retained in the final rule. Follow Current Postal Requirements for Heavy Letter Mail Six commenters stated that the heavy letter mail trial period should be run using the current standards for automation rate mail and that no additional constraints should be imposed. The Postal Service believes that modification of the current standards for automation-compatible mail are necessary based on the results of controlled tests already performed on heavy letter mail as previously described. If appropriate additional standards are not imposed on heavy letter mail, consistent with the results of earlier tests, the Postal Service believes that live mail testing will have no chance for success and that greater customer dissatisfaction would result than may occur with the heavy letter mail standards adopted by this rule. Barcode Window Placement One commenter objected to extending the barcode window to the bottom of the envelope. The section referred to by the commenter applies only to lower right corner barcode windows. The Postal Service does not intend to add new standards to DMM C840.6.0, only to limit the use of lower right corner barcode windows to mailpieces weighing 3.0 ounces or less. Requirements for Identification of Test Mail Before the Postal Service can determine whether a permanent increase in the maximum weight for barcoded letter mail is appropriate, it must determine whether the impact of heavy letter mail is acceptable. Accurate evaluation of the test data will depend in part on the Postal Service's ability to identify, measure, and monitor heavy letter mail as it enters and moves through the mailstream. Accordingly, test participants will be required to take specific measures to identify heavy letter mail to enable the Postal Service to gather the necessary data for this test. Although not specifically discussed in the proposed rule, the importance of mail identification became evident as the comments were being reviewed, and provisions requiring identification are being introduced in the final rule as reasonable and logical elements of the test process. Specifically, the Postal Service will require that each container of heavy mail be clearly identified when submitted by the mailer. Pallets, general purpose mail containers, and other similar equipment used to transport trays of heavy letter mail will require labels (placards) bearing the words "HEAVY LETTER MAIL" in letters not less than 1/2 inch high. These labels must be white or light-colored stock, not smaller than 8 by 11 inches, and placed on two adjacent sides of the pallet or other equipment. Each tray of heavy letter mail must also be identified by a flag (similar to a separator card) clearly marked "HEAVY LETTER MAIL" and placed in front of the contents of the tray. No marking will be required on the pieces of heavy letter mail themselves other than as required by the class or rate claimed, or by the postage payment method used. Participants in the heavy letter mail test will also be asked to provide documentation for any heavy letter mailing exceeding 100,000 pieces. Requested information includes the mailer's name and contact person for test information, the mailing's contents (size, weight, volume, level of presort, and proportion of heavy letter mail), and the mailing's distribution (place(s) of mailing and destination ZIP Code ranges). This information, which should be provided to the address below at least 3 weeks before mailing, will allow the Postal Service adequate time to conduct on-site evaluation and data collection for test mail. Documentation of heavy letter mailings should be addressed to: Manager Customer Mail Preparation, USPS Headquarters Rm 6912, 475 L'Enfant Plaza SW., Washington DC 20260-6805. If heavy letter mail is damaged in processing during this test period, the mailer will be asked to recall the damaged pieces before delivery (by completing Form 1509) to allow their examination for evaluation of both the cause of the damage and possible remedies for that cause. List of Subjects in 39 CFR Part 111 Postal Service. For the reasons discussed above, the Postal Service hereby adopts the following amendments to the Domestic Mail Manual, which is incorporated by reference in the Code of Federal Regulations (see 39 CFR part 111). 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, 3001- 3011, 3201-3219, 3403-3406, 3621, 3626, 5001. 2. Revise the Domestic Mail Manual as noted below: C810 Letters and Cards 1.0 GENERAL DIMENSIONS * * * * * 1.5 Barcoded The weight of each piece in a Barcoded rate mailing must not exceed 3 ounces, except that until January 14, 1996, the maximum weight is 3.3376 ounces (or 3.3071 ounces if mailed at regular bulk third-class rates). 1.6 Heavy Letter Mail Heavy letter mail (pieces weighing more than 3 ounces) must be prepared in an envelope and must meet the additional barcoding standards in C840. 2.0 PROHIBITIONS * * * * * 2.3 Heavy Letter Mail Heavy letter mail (as defined in 1.6) may not be prepared as a self-mailer or as a bound or booklet-type mailpiece. * * * * * C840 Barcoded Mailpieces * * * * * 2.0 BARCODE LOCATION * * * * * 2.2 Letter-Size Barcoded Rate Mailings [Revise the first sentence as follows:] Except for pieces subject to 2.3, pieces may bear a DPBC within either the address block or the barcode clear zone in the lower right corner of the address side. * * * * * * * * [Renumber existing 2.3 through 2.10 as 2.4 through 2.11, respectively; add new 2.3, and revise renumbered 2.9, as follows:] 2.3 Heavy Letter Mail Heavy letter mail (letter-size pieces weighing more than 3 ounces up to the maximum weight for barcoded pieces) must bear a DPBC in the address block, subject to 2.9. * * * * * 2.9 Placement in Address Block When the barcode is placed in the address block on cards or letter- or flat-size mail: * * * * * [Replace the last sentence in renumbered 2.9d with the following:] d. * * * Address block windows on heavy letter mail (as defined in 2.3) must be covered; such windows may be covered on other mail. Covers for address block windows are subject to 6.3. * * * * * 6.0 ADDITIONAL STANDARDS FOR WINDOWS (LETTER-SIZE MAIL) * * * * * 6.2 Window Construction Barcode windows must extend fully to the lower edge of the envelopes, must be of wraparound construction, and must be covered subject to 6.3. 6.3 Window Covers Window covers must be of a nontinted clear or transparent material (e.g., cellophane or polystyrene), the edges of which are securely glued to the envelope, that permits the barcode and its background, as viewed through the window material, to meet the reflectance standards in 4.0. * * * * * E144 Barcoded Rate (Letters and Cards) 1.0 BASIC STANDARDS * * * * * 1.2 Rate Application * * * * * c. Meets the applicable standards in 1.3 through 1.8. 1.3 Barcode Window A mailpiece weighing 3 ounces or less, meeting the standards in 1.1 and 1.2, but with a barcode window in the lower right corner, may be eligible for Barcoded rates only if the correct delivery point barcode appears through the window. 1.4 5-Digit Barcodes [Revise the first sentence as follows:] Subject to 1.8, Barcoded rate mailings may include pieces with correct 5-digit barcodes if those pieces meet the standards in 1.1 and the standards for 5-digit barcodes in C840. * * * 1.5 ZIP+4 Barcodes [Revise the first sentence as follows:] Subject to 1.8, Barcoded rate mailings may include pieces with correct ZIP+4 barcodes if those pieces meet the standards in 1.1 and the standards for ZIP+4 barcodes in C840. * * * 1.6 85% Rule [Revise the first sentence as follows:] Subject to 1.8, at least 85% of all pieces in a Barcoded rate mailing (regardless of presort or rate) must bear the correct delivery point barcode for the delivery address, as defined by the standards for address quality and coding accuracy in A950. * * * * * * * * 1.8 100% Barcoding Each piece must bear the correct delivery point barcode: a. In 5-digit trays in a tray-based mailing under M814. b. In 5-digit packages in a package-based mailing under M815 or M816. c. In any mailing containing heavy letters (as defined in C810). * * * * * E244 Barcoded Discounts (Letter-Size Pieces) 1.0 BASIC STANDARDS * * * * * 1.2 Rate Application * * * * * c. Meets the applicable standards in 1.3 through 1.8. * * * * * 1.3 Barcode Window A mailpiece weighing 3 ounces or less, meeting the standards in 1.1 and 1.2, but with a barcode window in the lower right corner, may be eligible for Barcoded rates only if the correct delivery point barcode appears through the window. 1.4 5-Digit Barcodes [Revise the first sentence as follows:] Subject to 1.8, Barcoded rate mailings may include pieces with correct 5-digit barcodes if those pieces meet the standards in 1.1 and the standards for 5-digit barcodes in C840. * * * 1.5 ZIP+4 Barcodes [Revise the first sentence as follows:] Subject to 1.8, Barcoded rate mailings may include pieces with correct ZIP+4 barcodes if those pieces meet the standards in 1.1 and the standards for ZIP+4 barcodes in C840. * * * 1.6 85% Rule [Revise the first sentence as follows:] Subject to 1.8, at least 85% of all pieces in a Barcoded rate mailing (regardless of presort or rate) must bear the correct delivery point barcode for the delivery address, as defined by the standards for address quality and coding accuracy in A950. * * * * * * * * 1.8 100% Barcoding Each piece must bear the correct delivery point barcode: a. In 5-digit trays in a tray-based mailing under M814. b. In 5-digit packages in a package-based mailing under M815 or M816. c. In any mailing containing heavy letters (as defined in C810). * * * * * E344 Barcoded Discounts (Letter-Size Pieces) 1.0 BASIC STANDARDS * * * * * 1.2 Rate Application * * * * * c. Meets the applicable standards in 1.3 through 1.8. * * * * * 1.3 Barcode Window A mailpiece weighing 3 ounces or less, meeting the standards in 1.1 and 1.2, but with a barcode window in the lower right corner, may be eligible for Barcoded rates only if the correct delivery point barcode appears through the window. 1.4 5-Digit Barcodes [Revise the first sentence as follows:] Subject to 1.8, Barcoded rate mailings may include pieces with correct 5-digit barcodes if those pieces meet the standards in 1.1 and the standards for 5-digit barcodes in C840. * * * 1.5 ZIP+4 Barcodes [Revise the first sentence as follows:] Subject to 1.8, Barcoded rate mailings may include pieces with correct ZIP+4 barcodes if those pieces meet the standards in 1.1 and the standards for ZIP+4 barcodes in C840. * * * 1.6 85% Rule [Revise the first sentence as follows:] Subject to 1.8, at least 85% of all pieces in a Barcoded rate mailing (regardless of presort or rate) must bear the correct delivery point barcode for the delivery address, as defined by the standards for address quality and coding accuracy in A950. * * * * * * * * 1.8 100% Barcoding Each piece must bear the correct delivery point barcode: a. In 5-digit trays in a tray-based mailing under M814. b. In 5-digit packages in a package-based mailing under M815 or M816. c. In any mailing containing heavy letters (as defined in C810). * * * * * M814 Barcoded--Tray-Based Mailings 1.0 BASIC STANDARDS * * * * * 1.9 Heavy Letter Mail Each tray of heavy letter mail (as defined in C810) must be identified by a flag (similar to a separator card) clearly marked "HEAVY LETTER MAIL" and placed in front of the contents of the tray. Each pallet, general purpose mail container, or other equipment used to transport trays of heavy letter mail must be labeled "HEAVY LETTER MAIL," in letters not less than 1/2 inch high on white or light- colored stock not smaller than 8 by 11 inches, on two adjacent sides of the pallet or other equipment. * * * * * M815 Barcoded--Two-Tier Package-Based Mailings 1.0 BASIC STANDARDS * * * * * 1.7 Heavy Letter Mail Each tray of heavy letter mail (as defined in C810) must be identified by a flag (similar to a separator card) clearly marked "HEAVY LETTER MAIL" and placed in front of the contents of the tray. Each pallet, general purpose mail container, or other equipment used to transport trays of heavy letter mail must be labeled "HEAVY LETTER MAIL," in letters not less than 1/2 inch high on white or light- colored stock not smaller than 8 by 11 inches, on two adjacent sides of the pallet or other equipment. * * * * * M816 Barcoded--Three-Tier Package-Based Mailings 1.0 BASIC STANDARDS * * * * * 1.7 Heavy Letter Mail Each tray of heavy letter mail (as defined in C810) must be identified by a flag (similar to a separator card) clearly marked "HEAVY LETTER MAIL" and placed in front of the contents of the tray. Each pallet, general purpose mail container, or other equipment used to transport trays of heavy letter mail must be labeled "HEAVY LETTER MAIL," in letters not less than 1/2 inch high on white or light- colored stock not smaller than 8 by 11 inches, on two adjacent sides of the pallet or other equipment. * * * * * R100 First-Class Mail * * * * * [Revise the Summary of First-Class Rates chart as follows:] ------------------------------------------------------------------------ Presorted 3-digit Presorted 5- digit Weight not over (oz.) barcoded barcoded ------------------------------------------------------------------------ ***** 4...................... $0.908 (Weight not to $0.902 (Weight not to exceed 3.3376 oz.) exceed 3.3376 oz.) ***** ------------------------------------------------------------------------ A transmittal letter making these changes in the pages of the Domestic Mail Manual will be published and transmitted to subscribers automatically. Notice of issuance will be published in the Federal Register as provided by 39 CFR 111.3. Stanley F. Mires, Chief Counsel, Legislative. [FR Doc. 94-31396 Filed 12-21-94; 8:45 am]