[Federal Register Volume 59, Number 177 (Wednesday, September 14, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-22735]


[[Page Unknown]]

[Federal Register: September 14, 1994]


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POSTAL SERVICE

39 CFR Part 111

 

Revisions to Standards for Detached Address Labels

AGENCY: Postal Service.

ACTION: Final rule.

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SUMMARY: The Postal Service adopts changes in Domestic Mail Manual 
(DMM) standards concerning use of detached address labels (DALs) to 
standardize those rules as they apply to the different uses of DALs 
(second-, third-, and fourth-class flats and third-class merchandise 
samples).

EFFECTIVE DATE: December 13, 1994.

FOR FURTHER INFORMATION CONTACT: Leo F. Raymond, (202) 268-5199.

SUPPLEMENTARY INFORMATION: On April 8, 1994, the U.S. Postal Service 
(USPS) published for comment proposed changes to Domestic Mail Manual 
(DMM) unit A060, which contains the standards for use of detached 
address labels (DALs). 59 FR 16786-16788. The proposed revisions, which 
arose from suggestions presented during the 1993 DMM redesign project, 
were generally designed to eliminate as much as possible the 
distinctions between how second-, third-, and fourth-class flats and 
third-class merchandise samples can each be mailed using DALs. This 
proposed rule did not seek to introduce significantly new requirements 
or options for existing uses (other than those that occur from 
standardization across classes), nor to permit new uses of DALs. To 
avoid wordiness, the term ``item'' was introduced to replace the phrase 
``second-class flat, third-class flat or merchandise sample, or fourth-
class bound printed matter'' when discussing that which is distributed 
with the DAL.
    The USPS received five written comments on the proposed rule.
    All commenters generally supported the proposed rule as a measure 
to simplify and standardize existing regulations. However, commenters 
also suggested revisions beyond those related to making the standards 
uniform in all mailing applications.
    One commenter urged the Postal Service to allow the use of DALs in 
more mailing situations than at present. This proposal is beyond the 
scope of this rulemaking and will not be addressed as part of this 
final rule.
    Another commenter found the language of proposed DMM A060.1.2 
ambiguous in its use of ``must'' and ``may'' to describe situations in 
which DALs are permitted. That language is revised for greater clarity 
in renumbered DMM A060.1.3 of the final rule. This commenter was also 
concerned by the term ``full'' (in proposed DMM A060.3.3) as applied to 
the cartons used to transport the items to be delivered using DALs, 
fearing that, taken literally, it would require an infinite number of 
carton sizes to suit all situations. The intent behind the full carton 
requirement is that the fewest number of cartons be used and that each 
be as full as reasonably possible to minimize transportation cost and 
movement of (and potential damage to) the items inside the carton while 
in transit. The USPS does not expect customers to bear an unreasonable 
burden to ensure full cartons, and the language of the final rule is 
clarified to state that full cartons can be achieved by placing dunnage 
in cartons to maintain the integrity of their contents while in 
transit.
    One commenter submitted a series of questions as a means of 
indicating areas in which it felt the proposed rule needed additional 
definition. The issues raised are (1) whether the DALs and items for a 
post office handling small volumes of mail could be combined in the 
same shipping carton; (2) how many 5-digit ZIP Codes are needed for 
general distribution and what constitutes the residual; and (3) the 
standards applicable to palletization of cartons of DALs and items. The 
final rule has been amended so that (1) only the DALs for the same 5-
digit ZIP Code area may be placed in the same carton; (2) general 
distribution requires a minimum density in a 5-digit ZIP Code area, not 
a minimum number of 5-digit areas (less-than-general-distribution 
quantities in that mailing are considered residual); and (3) DALs and 
items may be palletized under the same standards applicable to other 
mail.
    Another commenter stated that the notification requirement in 
proposed DMM A060.3.1 represented an unnecessarily redundant burden on 
the mailer by mandating both an advance written notice to the delivery 
office and the enclosure of a copy of that notice in the actual 
mailing. The USPS is interested in ensuring that delivery offices 
correctly identify DAL mailings and associate them with the 
corresponding mailer instructions. For that reason, the enclosure of a 
copy of an advance notice was seen as a relatively foolproof device. 
However, to remove this perceived burden, the final rule will allow the 
mailer the alternative of showing a key number or code on both the 
advance letter and (instead of a copy of the notice) on the cartons 
used for the mailing.
    One commenter raised a series of questions based on experience in 
applying the existing standards, noting that certain issues were not 
resolved by the proposed rule, and asking that they be addressed in the 
final rule. The questions were (1) how the carton's weight is 
considered for purposes of postage computation; (2) whether excess DALs 
should be allowed (based on an assumed number of undeliverables), what 
that excess should be, and how those DALs would be viewed for purposes 
of classification, rate eligibility, and postage payment; and (3) how 
the terms in proposed DMM A060.3.4 (regarding identification of 
quantities) were to be correctly applied. The final rule has been 
revised to address those questions: (1) postage is to be determined 
based on the weight of the mailpiece, i.e., the combined weight of the 
DAL and the accompanying item, excluding tare; (2) DALs and items are 
to be supplied in equal numbers although, if excess items or DALs are 
received by the delivery post office, additional quantities of items or 
DALs (as needed) may be shipped First-Class Mail (or Priority Mail or 
Express Mail); and (3) proposed DMM A060.3.4 (now DMM A060.3.5) has 
been revised to narrow reference to ``packages'' to apply to packages 
of compatible items (e.g., flats) placed in sacks.
    Another commenter pointed out that use of the term ``detached 
address card (DAC)'' in the proposed rule was contrary to prior 
practice. It noted that the term ``detached address label (DAL)'' would 
be more appropriate because it is used in the Domestic Mail 
Classification Schedule and is well established in the mailing 
industry's vocabulary. The USPS agrees and will retain the current term 
(DAL) in the final rule.
    The same commenter, while supporting the placement on the front of 
the DAL of identifying information about the accompanying item, argued 
that the language of proposed DMM A060.2.4 was too broad in allowing 
``equivalent identifying information.'' Such a term, the commenter 
believed, was likely to invite ``overreaching interpretations that 
convert the front of the DAL into an advertising or promotional 
vehicle.'' The USPS agrees that such a consequence is undesirable, and 
the final rule tightens the wording in DMM A060.2.4 accordingly.
    That commenter also pointed out that the language of proposed DMM 
A060.4.1a, by requiring the mailer to supply additional items if their 
quantity was exceeded by the number of DALs provided to a delivery 
office, left the mailer without the option of having those excess DALs 
disposed of as waste. (The proposed rule stated that excess DALs would 
be returned postage due if the necessary additional items were not 
provided.) Particularly when additional items were not available, the 
commenter noted, the proposed requirement would be both impossible to 
satisfy and punitive in its consequence.
    Concurrently, the commenter noted that proposed DMM A060.4.1c would 
appear not to offer the mailer a negative option concerning address 
correction, and apparently mandates the return of all undeliverable-as-
addressed DALs. This commenter suggests that the mailer should have to 
request address correction. For consistency, proposed DMM A060.5.0d 
would also require revision. The USPS believes the commenter's points 
are valid, and these provisions are amended in the final rule to allow 
the options suggested by the commenter and to treat undeliverable-as-
addressed DALs like other mail of their class and rate.
    Finally, concerning proposed DMM A060.3.3, this commenter suggests 
that ``other authorized containers'' be included as means to transport 
items, in addition to sacks and pallets, and that the application of 
the 40-pound limit be more clearly defined. Although the use of 
``other'' equipment, such as wheeled containers, might be reasonable in 
some instances, the USPS is concerned both over the consequences of 
irregular equipment supplies and how various types of equipment might 
not be appropriate in some applications. For that reason, the final 
rule allows the use of ``other'' equipment but limits its use to the 
service area of the facility whose manager authorized such equipment 
and which will receive the mailing. The final rule also more clearly 
addresses the application of the 40-pound limit.
    Based on the adoption of several commenter suggestions, the final 
rule has been reorganized slightly from the proposed rule. It also 
includes (as DMM A060.1.6) a provision that specifically states the 
currently unwritten requirement that the mailer is responsible for 
demonstrating compliance with the density, distribution, or other 
criteria that might apply to a particular DAL mailing.

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 111).

PART 111--[AMENDED]

    1. The authority citation for 39 CFR 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. Replace Domestic Mail Manual A060 with the following:

A060 Detached Address Labels

1.0  USE

1.1  Definitions

    For purpose of these standards, ``item[s]'' refers inclusively to 
the types of mail described in 1.2 through 1.4.

1.2  Second- or Third-Class Flats

    Saturation mailings of unaddressed second- or third-class flats may 
be mailed with detached address labels (DALs). For purposes of this 
standard, a saturation mailing is one sent to at least 75% of the total 
addresses on a carrier route or 90% of the residential addresses on a 
route, whichever is less. Deliveries are not required to every carrier 
route of a delivery unit.

1.3  Third-Class Merchandise Samples

    Merchandise samples more than 5 inches wide (high) or 1/4 inch 
thick, or nonuniform in thickness, mailed at bulk third-class rates, 
must be mailed with DALs when prepared for general distribution on city 
delivery routes. Merchandise samples may be mailed with DALs for 
general distribution on other (e.g., rural) routes and for the residual 
portion of a general distribution mailing. For purpose of this 
standard, ``general distribution'' means distribution in a single 
mailing to at least 25% of the addresses in any 5-digit ZIP Code 
delivery area regardless of the number of samples addressed to a single 
route or the number of 5-digit areas to which samples are addressed. If 
the same mailing includes a ``general distribution'' to one or more 5-
digit areas and distribution of lesser quantities to one or more other 
5-digit areas, the latter pieces are considered ``residual.''

1.4  Fourth-Class Bound Printed Matter

    Mailings of unaddressed pieces of bound printed matter may be 
mailed with DALs for delivery in the local zone of the post office of 
mailing.

1.5  Alternative Address Formats

    The addresses on DALs may be prepared using an alternative address 
format, subject to the applicable eligibility, volume, density, and 
preparation standards.

1.6  Evidence of Distribution

    When requested by the USPS, DAL mailers must provide documentation 
to establish that the applicable distribution standards in 1.2 through 
1.4 are met.

2.0  PREPARING DETACHED ADDRESS LABELS

2.1  Construction

    Each DAL must be made of paper or cardboard stock that is not 
folded, perforated, or creased, and that meets these measurements:
    a. Between 3\1/2\ and 5 inches high (perpendicular to the address 
label).
    b. Between 5 and 9 inches long (parallel to the address label).
    c. At least 0.007 inch thick.

2.2  Addressing

    The address for each item must be placed on a DAL, parallel to the 
longest dimension of the DAL, and may not appear on the item it 
accompanies. The DAL must contain the recipient's delivery address and 
the mailer's return address. A ZIP+4 code or 5-digit ZIP Code is 
required unless an alternative address format is used. The delivery 
address may include the correct delivery point barcode.

2.3  Ratio

    Only one DAL may be prepared for each accompanying item, and only 
one item may be identified for delivery per DAL (i.e., one DAL may not 
be prepared to deliver with one each of multiple different accompanying 
items or with multiples of the same item).

2.4  Required Information

    The following words must appear in bold type at least 1/8 inch high 
on the front of each DAL: ``USPS regulations require that this address 
label be delivered with its accompanying postage-paid mail. If you 
should receive this label without its accompanying mail, please notify 
your local postmaster.'' The title or brand name of the item (which may 
include an illustration of the item) must also appear on the front or 
back of the DAL to associate it with the accompanying item.

2.5  Other Information

    Nothing may appear on the front of a DAL except the information 
described above, an indicium of postage payment, and official pictures 
and data circulated by the National Center for Missing and Exploited 
Children. Ancillary service endorsements are not permitted; 
undeliverable material is treated under 4.0.

3.0  PREPARING THE MAILING

3.1  Notice to Delivery Office

    Each delivery office to receive a DAL mailing must be notified in 
writing at least 10 days in advance of the requested delivery period. 
To ensure that the delivery office can readily relate the notice to the 
cartons containing the corresponding items, a copy of that letter must 
be enclosed with the DALs unless the initial notice and the cartons 
used for the DALs and items each conspicuously bears a mailing 
identification number. The letter must show the following:
    a. Name and telephone number of mailer or representative.
    b. Origin post office of mailing.
    c. Expected mailing date.
    d. Description of mailing.
    e. Number of addressees for each 5-digit ZIP Code.
    f. Number of DALs per carton or package.
    g. Number of items per carton or package.
    h. Expected delivery period (range of dates).
    i. Requested action in the event of excess or undeliverable DALs or 
items (see 4.0).

3.2  DALs

    The DALs must be presorted, counted, and packed by 5-digit ZIP Code 
delivery area. Only DALs for the same 5-digit area may be placed in the 
same carton. DAL mailings claimed at carrier route or walk-sequence 
rates must be further prepared under the corresponding standards. 
Different size cartons may be used in the same mailing, but each must 
be filled with dunnage as necessary to ensure that the DALs retain 
their integrity while in transit. Each carton of DALs must bear a label 
showing the information in 3.5 unless a mailing identification number 
is used (see 3.1). Multiple containers of DALs must be numbered 
sequentially (1 of ____, 2 of ____, etc.).

3.3  Items

    The items to be distributed with the DALs must be placed in cartons 
or prepared in packages placed in sacks, as appropriate for the type of 
item and subject to the standards applicable to the rate claimed. A 
label bearing the content description information in 3.5 must be 
affixed to each carton, sacked package, or pallet unless a mailing 
identification number is used (see 3.1). Cartons of items (including 
those on pallets) may be of different sizes but must be filled with 
dunnage as necessary to ensure the integrity of the items while in 
transit. The gross weight of each carton or sack must not be more than 
40 pounds.

3.4  Combined Cartons

    Both the DALs and the accompanying items may be enclosed in the 
same carton when sent to a small-volume 5-digit ZIP Code area. If 
packed together, the following standards apply:
    a. The DALs must be packaged and labeled under 3.2 and placed on 
top of the items.
    b. The carton must be packed with dunnage to ensure the integrity 
of the contents while in transit.
    c. The gross weight of the carton must not exceed 40 pounds.
    d. The exterior of the carton must be labeled under 3.5 and marked 
``DALs ENCLOSED'' in letters not less than \1/2\ inch high.

3.5  Label Information

    Sacks, cartons, and pallets of DAL mail must be labeled under the 
preparation standards applicable to the rate claimed. A second label 
must be affixed to each carton or sacked package to provide the 
following information (unless a mailing identification number is used 
under 3.1):
    a. Delivery post office name and 5-digit ZIP Code delivery area.
    b. Title, brand name, or other description of the items.
    c. Name and telephone number of the mailer or representative.
    d. Number of labels or items in the carton, as applicable.
    e. Instructions to open and distribute either the DALs with 
matching items or the items with matching DALs, as appropriate.

3.6  Use of Equipment

    Cartons, packages of flats, and sacks of items may be palletized 
under the applicable standards; cartons of DALs must be palletized with 
the corresponding items under the same standards. The USPS plant 
manager at whose facility a DAL mailing is deposited may authorize 
other types of equipment for the portion of the mailing to be delivered 
in that plant's service area.

3.7  Bound Printed Matter

    Bound printed matter distributed with DALs must be deposited at the 
acceptance point specified by the postmaster. Local zone rates are 
available, subject to G030.

3.8  Mailing Statement

    The mailer must complete and provide the appropriate mailing 
statement with each mailing.

4.0  DISPOSITION OF EXCESS OR UNDELIVERABLE MATERIAL

4.1  Excess Material

    The letter required under 3.1 must either request that the delivery 
office contact the mailer (or representative) about excess DALs or 
items, or provide instructions for their treatment. (If the mailer does 
not provide information about excess DALs or items, such material is 
disposed of as waste by the USPS.) The mailer must choose one of the 
following options for each DAL mailing and the items:
    a. Dispose of any excess material as waste.
    b. Return the excess material to the mailer, postage due at the 
applicable single-piece rate under 5.0.
    c. Hold the excess material for pickup by the mailer (or 
representative); if pickup is not made within 15 calendar days of the 
notice to the mailer, the material is returned to the mailer postage 
due.
    d. Hold the excess material while additional DALs or items are 
supplied (as applicable); if additional material is not supplied within 
15 days of the notice to the mailer, the excess material is returned to 
the mailer postage due. Additional material must be sent prepaid to the 
delivery post office as First-Class Mail, Priority Mail, or Express 
Mail.

4.2  Undeliverable-as-Addressed DALs

    DALs with incorrect, nonexistent, or otherwise undeliverable 
addresses are handled under F010. The accompanying item is treated as 
specified by the mailer under 4.1.

5.0  POSTAGE

5.1  Available Rates

    DAL mailings are not eligible for any automation rate, but they may 
qualify for carrier route or walk-sequence rates subject to the 
applicable standards.

5.2  Initial Distribution

    Postage is computed based on the weight of the entire mailpiece 
(i.e., combined weight of the item and the accompanying DAL). If the 
number of DALs and items mailed is not identical, the ``number of 
pieces'' used to determine postage is the greater of the two; no 
postage refund is allowed in these situations. The total weight of the 
mailing excludes the weight of the cartons used to carry the DALs or 
items, dunnage, and carton labels. In addition, these methods of 
postage payment apply:
    a. Second-class flats must be prepaid. A notice of entry must 
appear in the upper right corner of the DAL.
    b. Third-class flats and samples and fourth-class bound printed 
matter must be paid by permit imprint, which must appear on each DAL. 
Third-class postage is computed at the applicable nonletter rates.

5.3  Returns

    Postage for excess or undeliverable DALs or items being returned is 
computed at the single-piece third- or fourth-class rate applicable to 
the combined weight of the DAL and the accompanying item, regardless of 
whether both are being returned. The total amount due for returned 
material, which includes the return postage and the applicable address-
correction fee for each DAL or item returned, is collected upon the 
material's return to the mailer.

5.4  Additional Items

    Additional material (DALs or items) being supplied under 4.1d must 
be mailed with postage prepaid as First-Class Mail, Priority Mail, or 
Express Mail, subject to the eligibility standards applicable to the 
rate claimed and the conditions in 5.2.
    A transmittal letter making these changes in the pages of the 
Domestic Mail Manual will be published and will be 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. 94-22735 Filed 9-13-94; 8:45 am]
BILLING CODE 7710-12-P