[Federal Register Volume 62, Number 111 (Tuesday, June 10, 1997)]
[Rules and Regulations]
[Pages 31512-31516]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-15125]


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POSTAL SERVICE

39 CFR Part 111


Special Services Reform; Implementation Standards

AGENCY: Postal Service.

ACTION: Supplementary final rule.

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SUMMARY: This supplementary final rule sets forth the remaining 
Domestic Mail Manual (DMM) standards adopted by the Postal Service to 
implement the Decision of the Governors of the United States Postal 
Service on the Recommended Decision of the Postal Rate Commission on 
Special Services and Fees, Docket No. MC96-3. These standards 
constitute only minor changes or refinements to internal operational 
procedures that have been made since publication of the final rule in 
the Federal Register on May 12, 1997 (62 FR 26086-26099).
    The standards in this supplementary final rule do not, in any way, 
affect the fees or attributes of the special services as they were 
published in the final rule for post office box service and caller 
service, certified mail, insurance (insured mail and Express Mail), 
parcel airlift, registered mail, return receipt service, return receipt 
for merchandise service, and stamped cards (formerly named postal 
cards). Although no substantive changes have been made to the final 
rule, this supplementary final rule does respond to comments that the 
Postal Service had sought with publication of the final rule.

EFFECTIVE DATE: June 8, 1997.

FOR FURTHER INFORMATION CONTACT: Neil Berger, (202) 268-2859.

SUPPLEMENTARY INFORMATION: On June 7, 1996, pursuant to its authority 
under 39 U.S.C. 3621, et seq., the Postal Service filed with the Postal 
Rate Commission (PRC) a request for a recommended decision on several 
special service reform proposals. The PRC designated the filing as 
Docket No. MC96-3. The PRC published a notice of the filing, with a 
description of the Postal Service's proposals, on June 21, 1996, in the 
Federal Register (61 FR 31968-31979).
    Pursuant to 39 U.S.C. 3624, on April 2, 1997, the PRC issued its

[[Page 31513]]

Recommended Decision on the Postal Service's Request to the Governors 
of the Postal Service. The PRC's Recommended Decision made revisions to 
some of the restructuring of the post office box fees requested by the 
Postal Service. In other areas, the PRC's Recommended Decision 
generally followed the requests made by the Postal Service to increase 
the fee for certified mail, merge the two options for return receipt 
service, merge the two options for return receipt for merchandise, 
increase the maximum available indemnity for insured mail to $5,000, 
add optional insurance to $5,000 for Express Mail and refine the 
current available indemnity structure, simplify the fee schedule for 
registered mail, and eliminate special delivery. Although the PRC did 
not recommend a fee for postal cards (renamed stamped cards), it did 
suggest that the Postal Service remove costs unique to stamped cards 
from total stamped cards and postcards subclass costs to support any 
proposed fee in addition to the face value of the cards.
    To implement the Governors' decision, the Postal Service published 
a final rule containing the DMM standards adopted by the Postal Service 
in the May 12, 1997, Federal Register (62 FR 26086-26099). The revised 
DMM standards took effect June 8, 1997. As explained in that final 
rule, because the PRC's Recommended Decision, as approved by the 
Governors, established standards that were not previously published for 
public comment in a proposed rule, the Postal Service solicited 
comments from customers in three areas involving implementation of the 
PRC's Recommended Decision and the Governors' Decision. Comments were 
solicited on the following standards:
    1. Standards for post office box service as provided in DMM D910, 
including eligibility for box service in offices that offer no form of 
carrier delivery.
    2. Standards for indemnity as provided in DMM S010, S500, and S913.
    3. Standards for return receipt service and return receipt service 
for merchandise in DMM S915 and S917, including the merger of the 
options currently available.
    After considering the potential effects of these provisions, the 
Postal Service determined to allow 15 days for public comment through 
May 27, 1997. Although a longer comment period is usually provided, the 
Postal Service concluded that a 15-day comment period was warranted in 
this case for two reasons:
    1. First, the list of provisions on which comment was sought was 
short and straightforward. Customers and mailers would have little 
difficulty evaluating the effect of these provisions on their personal 
or commercial mailing requirements.
    2. Second, the Postal Service wanted to ensure that customers and 
mailers had sufficient time after the close of the comment period and 
publication of any possible revisions to the final rule to make the 
necessary changes to their operations before the June 8, 1997, 
implementation date.
    Part A of this supplementary final rule provides an analysis of 
comments received and the Postal Service responses. Part B describes 
the minor operational changes and clarifying amendments made to certain 
DMM standards as originally published in the final rule for post office 
box service and caller service. The affected text of the revised DMM 
standards that have been subsequently amended are published at the end 
of this supplementary final rule.

A. Summary of Comments

    The Postal Service received only two pieces of correspondence 
offering comments on the three identified aspects of the final rule. 
Both commenters were individual customers.
    Of those aspects on which comment was sought, one commenter wrote 
on issues relevant to all three aspects, whereas the second commenter 
wrote on only return receipt service. Some of the comments did not 
directly address the issues as requested in the final rule; instead, 
they touched on minor areas not within the scope of the final rule--for 
example, the use of special services stamps.
    Although comment was sought on only three specific aspects of the 
final rule, one commenter submitted comments on one other issue as 
discussed in section 4.

1. Post Office Box Service

a. Physical Address
    One commenter stated that the requirement in DMM D910.2.4 that a 
post office box applicant or current box customer must identify his or 
her physical address would preclude those customers who operate from a 
mobile home from obtaining a post office box. Furthermore, this 
commenter believed that any such requirement should be limited to those 
customers who obtain a box at the Group D or Group E fees.
    The Postal Service has not imposed a new requirement with the final 
rule. This requirement was included in the final rule for completeness 
and to provide readers the context for those standards that were 
changed by the final rule. The current box application form (PS Form 
1093, Application for Post Office Box or Caller Service) requires 
applicants, including those who operate from a mobile home, to provide 
a physical address (such as that of a mobile home park). The Postal 
Service believes that customers already have to identify a physical 
address for postal as well as many nonpostal purposes, and they should 
be able to identify such an address when applying for a post office 
box.
b. Box Termination
    One commenter stated that the regulation in DMM D910.8.2 that 
allows post office box service to be terminated if a box customer 
conducts himself or herself in a violent, threatening, or otherwise 
abusive manner on postal property is too subjective and should not 
apply only to box customers.
    The final rule merely codifies existing practices and policies. 
This regulation stems from problems that the Postal Service has 
experienced with box customers in particular and responds to those 
particular problems. Any customer whose box service is terminated on 
such grounds has a right of appeal as provided under DMM D910.8.3. 
Moreover, this basis for terminating box service has already been 
upheld by the Judicial Officer Department of the Postal Service, so 
inclusion of the language simply serves to identify all the applicable 
grounds for termination of box service.

2. Indemnity Standards

    One commenter stated that the lower bound in the first value 
increment for insured registered mail in DMM Exhibit R900.16.0 should 
be changed from $0.00 to $0.01 because the commenter asserted that 
insurance cannot be purchased for articles having no value.
    The lower bound in the first increment in the insured registry fee 
schedule begins at $0.00 for simplicity and parallel structure with the 
uninsured registry fee option. The Postal Service doubts, moreover, 
that customers mailing articles of no value will pay the marginally 
higher fee for insured registry because the option of purchasing 
registry without insurance will be available for a slightly lower fee. 
Retail postal clerks can assist customers in selecting the service 
option that best meets the needs of those customers.

3. Return Receipt Services

    Both commenters suggested that the Postal Service modify the green 
return receipt postcard (PS Form 3811,

[[Page 31514]]

Domestic Return Receipt) to enable the delivery employee to indicate on 
the card whether the addressee's delivery address matches the delivery 
address printed on the mailpiece. Currently, the delivery employee does 
not mark the address block on the card if the address of delivery 
matches the address on the mailpiece. The commenters emphasized that 
redesigning the card with a checkbox would provide further confirmation 
to the sender that the delivery address on the piece was correct.
    The Postal Service believes that this proposal merits adoption. 
This measure would provide further confirmation to the sender of the 
correctness of the addressee's address. The Postal Service is in the 
process of redesigning the return receipt card. Owing to large 
inventories of the current card, the Postal Service will not begin to 
introduce a new card until later this year.

4. Other

    One commenter requested that the Postal Service permit customers to 
use previously issued special delivery stamps for any purpose. The last 
special delivery stamp was issued 26 years ago in May 1971 and 
withdrawn from general sale in 1974. The commenter also requested that 
other special services stamps (certified mail, registered mail, and 
special handling) be valid for the particular service and that the old 
newspaper stamps and parcel post stamps be permitted for any use.
    Under DMM P022.2.2, certified mail stamps (last issued in 1955), 
special delivery stamps (last issued in 1974), and special handling 
stamps (last issued in 1955) are ``not valid to pay postage for U.S. 
domestic or U.S.-originated international mail.'' Although registry 
stamps are not listed in that regulation, they were issued on December 
11, 1911, and were withdrawn from general sale on May 28, 1913. It is 
unlikely that customers would use these stamps to pay registry fees 
because these stamps have much higher value as philatelic items. Parcel 
post stamps, last issued in 1913, have been valid for any domestic 
postal purpose since July 1, 1913.
    Newspaper stamps were first issued in 1865 for bulk mailings of 
newspapers and periodicals. Starting in 1875, the stamps were affixed 
to special cards, canceled, and kept by the postmaster as a record of 
proper payment. The Post Office Department discontinued issuing these 
stamps on July 1, 1898. Newspaper stamps were a precursor to the 
current required use of advance deposit accounts to pay Periodicals 
postage. Currently, Periodicals mail, unlike any other class of mail, 
may not be paid with adhesive stamps, postage meter stamps, or permit 
imprint indicia.
    When the Post Office Department introduced many of its special 
services, it issued distinctive stamps to enable customers to pay the 
fees for the particular special service as well as serve as a means of 
endorsement. As a customer convenience and a cost-saving measure for 
the Postal Service, issuance of new special services stamps was 
discontinued and customers were permitted to use ordinary postage 
stamps to pay the postage and the applicable special service fees. To 
ensure proper handling, the Postal Service has required the use of 
endorsements to indicate the purchase of services. Since 1994, the 
Postal Service has required customers to use special labels for most of 
these special services. This policy ensures that the mail is properly 
handled according to the service purchased.
    To avoid confusion, the Postal Service does not intend to change 
its policy of disallowing the use of special delivery stamps. Customers 
who possess special delivery stamps may use them to pay the special 
delivery fee for international special delivery mail. Section 373 of 
the International Mail Manual clearly provides that the sender ``may 
pay the special delivery fee with special delivery stamps, postage 
stamps, postage validation imprinter (PVI) labels, or postage meter 
stamps. However, special delivery stamps may only be used for the 
payment of the special delivery fee.''

B. Summary of DMM Changes

1. Post Office Box Service

    The scope of the amendments to the final rule on post office box 
service under DMM D910.5.0 covers clarifying definitions to the 
administrative and delivery boundaries of post offices that provide 
delivery to other offices. Additionally, the ambiguous term ``smallest 
available size'' in reference to no-fee boxes available to certain 
customers was specified as ``the smallest box currently vacant'' rather 
than the smallest box installed in the particular postal facility.
    Further, the amended language notes that boxes at Group E fees are 
also available as provided under the rules for post offices without any 
carrier delivery. Eligibility for Group E fees was additionally defined 
with the exclusion of customers who receive mail at single-point 
delivery stops such as hotels, colleges, military installations, and 
transient trailer parks.
    Finally, McLean, VA 22103 is deleted from DMM Exhibit D910.5.3, 
Facilities Assigned Location-Based Box Fees, with the relocation in 
1992 of that ZIP Code from a Group B location to a Group C postal 
facility. Customers receiving service at that ZIP Code are to be 
charged Group C fees.

2. Caller Service

    Postmasters in Group D post offices are given the option under new 
DMM D920.4.8 of synchronizing customer payments for caller service to 
April 1 and October 1 if the office has fewer than 500 post office 
boxes. This option was already available for post office box fees in 
Group D offices, but it was not available for caller service because, 
before the June 8 implementation of the final rule, caller service was 
not offered at Group D offices.
    Finally, McLean, VA 22103 is moved from Group B to Group C in DMM 
Exhibit D920.4.1, Caller Service Groups, with the relocation of that 
ZIP Code in 1992 from a Group B location to a Group C postal facility. 
Caller service customers receiving service at that ZIP Code are to be 
charged Group C fees.

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. In view of the foregoing, amend the following sections of 
Domestic Mail Manual Issue 51 as set forth below:

D  DEPOSIT, COLLECTION, AND DELIVERY

* * * * *

D900  Other Delivery Services

D910  Post Office Box Service

* * * * *
5.0  FEE GROUP ASSIGNMENTS

5.1  Post Offices

    For purposes of fee group assignment, and as defined in 4.3, a post 
office includes all subordinate facilities or units administered by 
that post office, such as classified stations, classified branches, and 
contractor-operated facilities. Additionally, the type of carrier 
delivery service available at any one facility administered by a post 
office determines the fee group applicable to all facilities of that 
post office as follows:

[Amend 5.1a by replacing ``boundaries of any delivery area ZIP Code'' 
with ``delivery ZIP Code boundaries''; by

[[Page 31515]]

adding ``(i.e., the smallest box currently vacant)'' after ``smallest 
available size''; and by adding ``Boxes at Group E fees are also 
available as provided under 5.1c.'' to the end of the section to read 
as follows:]
    a. Post Office With City Delivery. A post office that provides city 
carrier delivery at any of its administered facilities applies Group C 
fees, except as provided in 5.3. A customer whose physical residence or 
business location is within the geographic delivery ZIP Code boundaries 
administered by that city delivery post office, who is ineligible for 
any form of carrier delivery service from that post office and who does 
not receive carrier delivery via an out-of-bounds delivery receptacle, 
may obtain one box of the smallest available size (i.e., the smallest 
box currently vacant) at the Group E fee (no fee). Boxes at Group E 
fees are also available as provided under 5.1c.
    b. Post Office With Only Rural or Highway Contract Carrier 
Delivery. A post office that does not provide city carrier delivery but 
provides only rural carrier or highway contract carrier delivery at any 
of its administered facilities applies Group D fees, except as provided 
in 5.3, with two exceptions:

[Amend 5.1b(1) by replacing ``boundaries of any delivery area ZIP 
Code'' with ``delivery ZIP Code boundaries''; by adding ``(i.e., the 
smallest box currently vacant)'' after ``smallest available size''; and 
by adding ``Boxes at Group E fees are also available as provided under 
5.1c.'' to the end of the section to read as follows:]
    (1) A customer whose physical residence or business location is 
within the geographic delivery ZIP Code boundaries administered by that 
non-city delivery post office, who is ineligible for any form of 
carrier delivery service, who does not receive carrier delivery via an 
out-of-bounds delivery receptacle, and who resides outside the 
immediate vicinity of the post office as specified in Postal Operations 
Manual 653, may obtain one box of the smallest available size (i.e., 
the smallest box currently vacant) at the Group E fee (no fee). Boxes 
at Group E fees are also available as provided under 5.1c.
    (2) A customer whose ineligibility for carrier service arises from 
residing in the immediate vicinity of the post office as specified in 
Postal Operations Manual 653 is afforded continued access to general 
delivery service.

[Amend 5.1c by replacing ``boundaries of other post offices'' with 
``ZIP Code boundaries of another post office'' to read as follows:]
    c. Post Office Without Any Carrier Delivery. A post office that 
does not provide any form of carrier delivery (i.e., a nondelivery post 
office) exists within the geographic delivery ZIP Code boundaries of 
another post office. A nondelivery post office applies Group D fees or 
Group E fees (no fees), based on the box customer's physical residence 
or business location relative to the geographic boundaries of the post 
office containing the nondelivery office, as follows:
[Amend 5.1c(1) by replacing in the first sentence ``inside the 
geographic ZIP Code boundaries'' with ``within the geographic delivery 
ZIP Code boundaries''; by replacing in the second sentence ``a box at 
either the nondelivery office or the containing delivery office'' with 
``a box of any size at the nondelivery office or the smallest vacant 
box at the containing delivery office'' to read as follows:]
    (1) If the box customer's physical residence or business location 
is within the geographic delivery ZIP Code boundaries of the post 
office containing the nondelivery office, and the customer is eligible 
for carrier delivery service, a box at the nondelivery office is 
provided at the Group D fee. If the customer is not eligible for 
carrier delivery service and does not receive carrier delivery via an 
out-of-bounds delivery receptacle, a box of any size at the nondelivery 
office or the smallest vacant box at the containing delivery office is 
provided at the Group E fee (no fee).

[Amend 5.1c(2) by replacing ``geographic ZIP Code boundaries'' with 
``geographic delivery ZIP Code boundaries'' to read as follows:]

    (2) If the box customer's physical residence or business location 
is outside the geographic delivery ZIP Code boundaries of the post 
office containing the nondelivery office, a box is provided at the 
Group D fee.

[Add new 5.1d to read as follows:]
    d. Single-Point Delivery. Eligibility for Group E fees does not 
extend to individual tenants, contractors, employees, or other 
individuals receiving or eligible to receive single-point delivery such 
as delivery to a hotel, college, military installation, or transient 
trailer park.

    [Amend 5.2 by adding ``and not under the administration of a post 
office'' after ``post office boxes'' to read as follows:]

5.2  Mail Processing Facilities

    Mail processing facilities with post office boxes and not under the 
administration of a post office apply Group C fees to post office 
boxes, except as provided in 5.3.

[Amend 5.3 by removing ``McLean, VA 22103'' in Exhibit 5.3 to read as 
follows:]

5.3  Facilities Assigned Location-Based Box Fees

    The facilities defined by the ZIP Codes in Exhibit 5.3 constitute 
exceptions to the fee groupings described in 5.1 and 5.2. Group A or B 
fees apply as identified.

                            Facilities Assigned Location-Based Box Fees--Exhibit 5.3                            
----------------------------------------------------------------------------------------------------------------
               Group                           Location                              ZIP Codes                  
----------------------------------------------------------------------------------------------------------------
A..................................  New York, NY...............  10001-10299                                   
B..................................  Boston, MA.................  02113, 02115, 02117, 02128, 02134, 02135,     
                                                                   02139, 02140, 02142, 02146, 02158-02162,     
                                                                   02164-02168, 02178, 02179, 02181, 02205,     
                                                                   02214-02216, 02218, 02238                    
                                     Staten Island, NY..........  10301-10399                                   
                                     Long Island City, NY.......  11101-11199                                   
                                     Brooklyn, NY...............  11201-11299                                   
                                     Queens (Flushing), NY......  11301-11399                                   
                                     Queens (Jamaica), NY.......  11401-11499                                   
                                     Queens (Far Rockaway), NY..  11601-11699                                   
                                     Philadelphia, PA...........  19101-19104, 19105, 19107                     
                                     Washington, DC.............  20004-20009, 20013, 20026, 20033, 20035,      
                                                                   20036, 20037, 20038, 20043, 20044, 20050,    
                                                                   20056                                        
                                     Bethesda, MD...............  20813, 20824, 20825, 20827                    
                                     Arlington, VA..............  22202, 22209, 22210, 22216                    

[[Page 31516]]

                                                                                                                
                                     Chicago, IL 60606, 60610,                                                  
                                      60611, 60654, 60664,                                                      
                                      60680, 60681, 60684, 60690.                                               
                                     Los Angeles, CA............  90019, 90024, 90025, 90034, 90035, 90048,     
                                                                   90049, 90064, 90067, 90069                   
                                     Beverly Hills, CA..........  90210-90212                                   
                                     Santa Monica, CA...........  90401-90405                                   
                                     San Francisco, CA..........  94101, 94107, 94108, 94126, 94133, 94147,     
                                                                   94159, 94164                                 
                                     Honolulu, HI...............  96801-96815, 96830                            
----------------------------------------------------------------------------------------------------------------

* * * * *

D920  Caller Service

* * * * *
4.0  BASIS OF FEES AND PAYMENT
[Amend 4.1 by removing ``McLean, VA 22103'' from Exhibit 4.1 to read as 
follows:]

4.1  Basic Caller Fee

    The caller service fee groups are shown in Exhibit 4.1 and are 
charged per semiannual (6-month) period. The fee must be paid for each 
caller number or separation used, with two exceptions:
* * * * *

                                       Caller Service Groups--Exhibit 4.1                                       
----------------------------------------------------------------------------------------------------------------
               Group                           Location                              ZIP Codes                  
----------------------------------------------------------------------------------------------------------------
A..................................  New York, NY...............  10001-10299                                   
B..................................  Boston, MA.................  02113, 02115, 02117, 02128, 02134, 02135,     
                                                                   02139, 02140, 02142, 02146, 02158-02162,     
                                                                   02164-02168, 02178, 02179, 02181, 02205,     
                                                                   02214-02216, 02218, 02238                    
                                     Staten Island, NY..........  10301-10399                                   
                                     Long Island City, NY.......  11101-11199                                   
                                     Brooklyn, NY...............  11201-11299                                   
                                     Queens (Flushing), NY......  11301-11399                                   
                                     Queens (Jamaica), NY.......  11401-11499                                   
                                     Queens (Far Rockaway), NY..  11601-11699                                   
                                     Philadelphia, PA...........  19101-19104, 19105, 19107                     
                                     Washington, DC.............  20004-20009, 20013, 20026, 20033, 20035,      
                                                                   20036, 20037, 20038, 20043, 20044, 20050,    
                                                                   20056                                        
                                     Bethesda, MD...............  20813, 20824, 20825, 20827                    
                                     Arlington, VA..............  22202, 22209, 22210, 22216                    
                                     Chicago, IL................  60606, 60610, 60611, 60654, 60664, 60680,     
                                                                   60681, 60684, 60690                          
                                     Los Angeles, CA............  90019, 90024, 90025, 90034, 90035, 90048,     
                                                                   90049, 90064, 90067, 90069                   
                                     Beverly Hills, CA..........  90210-90212                                   
                                     Santa Monica, CA...........  90401-90405                                   
                                     San Francisco, CA..........  94101, 94107, 94108, 94126, 94133, 94147,     
                                                                   94159, 94164                                 
                                     Honolulu, HI...............  96801-96815, 96830                            
C..................................                                                                             
(1)All post offices with city                                                                                   
 delivery and all nondelivery mail                                                                              
 processing facilities not listed                                                                               
 in Group A or B.                                                                                               
D..................................                                                                             
(1)All post offices with no city                                                                                
 delivery but with only rural or                                                                                
 highway contract delivery and not                                                                              
 listed in Group A or B.                                                                                        
----------------------------------------------------------------------------------------------------------------

* * * * *
[Add new 4.8 to read as follows:]

4.8  Exception for Group D Offices

    Postmasters at Group D offices with fewer than 500 post office 
boxes may set April 1 and October 1 as the beginning of payment periods 
for caller service customers in their offices. Payment periods 
beginning other than April 1 or October 1 are brought into alignment 
with these respective dates by adjusting fees as follows:
    a. New service, one-sixth of the semiannual fee is charged for each 
remaining month between the beginning of the new payment period and the 
next April 1 or October 1.
    b. Existing service, one-sixth of the semiannual fee is charged for 
each remaining month between the end of all currently paid periods and 
the next April 1 or October 1.
    c. Next one or two semiannual payment periods, an adjustment may be 
accepted in addition to fees.
* * * * *
Stanley F. Mires,
Chief Counsel, Legislative.
[FR Doc. 97-15125 Filed 6-9-97; 8:45 am]
BILLING CODE 7710-12-P