[Federal Register Volume 73, Number 249 (Monday, December 29, 2008)]
[Proposed Rules]
[Pages 79430-79435]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-30752]


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POSTAL SERVICE

39 CFR Part 111


New Standards for Letter-Size Booklets and Folded Self-Mailers

AGENCY: Postal Service \TM\.

ACTION: Proposed rule.

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SUMMARY: On March 14, 2008, we published in the Federal Register 
(Volume 73, Number 51, pages 13812-13813) an advance notice of our 
intent to develop new mailing standards for folded self-mailers and 
booklets mailed at automation and machinable letter prices. In that 
advance notice, we provided justification for these changes, announced 
a two-phase testing initiative, and reported the results of the first 
phase of testing. We invited comments from customers and asked that 
they suggest alternative booklet designs that could improve mailpiece 
performance.
    The following proposed rule is based on the results of completed 
testing. We propose revisions to tab size, tab location, paper weight, 
and dimensions for folded self-mailers and booklets mailed at 
automation or machinable letter prices.

DATES: We must receive your comments on or before January 28, 2009.

ADDRESSES: Mail or deliver written comments to the Manager, Mailing 
Standards, U.S. Postal Service, 475 L'Enfant Plaza SW., Room 3436, 
Washington, DC 20260-3436. You may inspect and photocopy all written 
comments at USPS Headquarters Library, 475 L'Enfant Plaza SW., 11th 
Floor N., Washington, DC between 9 a.m. and 4 p.m., Monday through 
Friday.

FOR FURTHER INFORMATION CONTACT: Susan Thomas, 202-268-7268.

SUPPLEMENTARY INFORMATION: Many folded self-mailers and booklets mailed 
at automation and machinable letter prices do not process successfully 
on letter-sorting machines. Unenveloped pieces tend to double feed and 
jam resulting in damage to the equipment and the mail. These problems 
and the resulting loss of machine time make it necessary to process 
some types of folded self-mailers and booklets on flat sorting 
equipment or in manual operations. Typically these operations are 
slower and more labor intensive resulting in higher processing costs. 
To improve efficiency, the USPS [supreg] worked with customers to test 
multiple mailpiece designs and arrived at revised standards that 
improve automation processing.
    In addition to the controlled testing of 400 specially-manufactured 
mailpieces, in phase two of the testing our Engineering Department also 
evaluated 124 live mailings and tested 70 sample mailings provided by 
customers to determine optimal size, thickness, cover stock, tab style, 
tab strength, tab location and binding. Several customers actively 
participated and were present to observe the tests. When a mailpiece 
was nonmachinable, customers were encouraged to resubmit modified 
pieces for additional testing and evaluation.
    We are sensitive to the current economic climate and the effect 
these changes may have on the mailing community. Based on the results 
of our tests we identified incremental

[[Page 79431]]

opportunities for improvement while preserving as many mailpiece design 
options as possible. Our proposed standards and the resulting changes 
to folded self-mailer and booklet designs will make it possible to sort 
this type of mail on automation letter sorting equipment. These changes 
align with our operational goals to increase delivery point sequencing 
of letter mail in an effort to control costs and improve service. We 
will continue to monitor folded self-mailer and booklet performance in 
the automation mailstream and update the requirements as needed to 
reduce jams and mailpiece and machine damage. Revised standards for 
postcards and letter-sized cards will be issued in a subsequent Federal 
Register notice.

Overview of Comments

    We received five comments in response to our advance notice. All 
the commenters expressed concern that tabs without perforations would 
make mailpieces hard to open.
    Enveloped letters are sorted at a rate of 10 pieces per second on 
automation equipment. Tabbed folded self-mailers and letter-size 
booklets do not process like enveloped letters. Our tests revealed that 
tabs with perforations are easily broken and do not maintain their 
integrity while being transported or during automated letter sorting. 
Folded self-mailers and booklets may be damaged if the seals used as 
closures fail during high-speed processing. To minimize these issues, 
we concluded that tabs on folded self-mailers and booklets may not be 
perforated. We will continue to accept tabs without perforations made 
of plastic, vinyl, translucent paper, opaque paper and cellophane tape 
closures.

Summary of Changes and Implementation

    The following proposed changes to the design of folded self-mailers 
and booklets will make it possible to process them in the automated 
letter mailstream. References to paper weights are for book-grade paper 
unless otherwise specified. A conversion table to other paper grades is 
included in DMM [supreg] Exhibit 201.3.2.
    Examples of folded self-mailer and booklet designs are:
     A folded self-mailer is a single continuous sheet of paper 
folded to create a letter-size mailpiece.
     Booklets consist of multiple sheets of paper. Multiple 
sheets may be folded together to form a letter-sized booklet. Booklets 
may be perfect bound or permanently fastened with staples or another 
method that creates a uniformly thick mailpiece. Bound booklets may be 
folded for mailing if the final mailpiece remains uniform in thickness.
     We are proposing the use of tabs with no perforations. Tab 
size is dictated by the design of the mailpiece. Booklets need three 
1\1/2\-inch tabs and folded self-mailers need two 1-inch tabs. For 
larger and heavier booklets, we recommend 2-inch paper tabs.
     Glue spots or a continuous glue line may be used to seal 
some folded self-mailer and booklet designs.
     We will continue the current maximum weight of 3 ounces. 
However, 3-ounce booklets are processed with the least amount of damage 
when the final trim size is reduced to 9 inches in length.

Booklets

     Maximum size: 6 inches high by 10\1/2\ inches long by 0.25 
inches thick.
     Cover stock: 40 pound minimum basis weight for some 
designs: 60- or 70-pound minimum for pieces longer than 9 inches. 
Lighter paper is more easily damaged in processing. We strongly 
recommend the use of 70-pound paper as cover stock on mailpiece designs 
that approach maximum letter-size dimensions. The use of paper that is 
10 pounds heavier than the required minimum basis weight is recommended 
for better performance.

Optional Booklet Preparation--Oblong

    Oblong booklets must be prepared with a spine on the leading edge. 
Booklets with a spine on the trailing edge are not machinable.

Folded Self-Mailers

    Changes include:
     A new definition of folded self-mailers which limits 
pieces to those made from one continuous sheet of paper.
     Maximum size: 6 inches high by 10\1/2\ inches long by 0.25 
inches thick.
     Paper stock from 50 to 70 pounds, depending on the design 
of the mailpiece.
     Increased size, placement, and number of tabs.

Nonmachinable Pieces

    A nonmachinable price (for Standard Mail [supreg]), a surcharge 
(for First-Class Mail [supreg]), or a nonbarcoded price (for 
Periodicals) applies to booklets and folded self-mailers that do not 
comply with the proposed standards and are too small to be mailed at 
flats prices. Such pieces are not eligible for automation or machinable 
letter prices.

Implementation

    We propose to implement these standards in May 2009, concurrent 
with the Mailing Services price change.
    Although the Postal Service is exempt from the notice and comment 
requirements of the Administrative Procedure Act [5 U.S.C. of 553(b), 
(c)] regarding proposed rulemaking by 39 U.S.C. 410(a), we invite 
public comments on the following proposed revisions 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 111.1.

List of Subjects in 39 CFR Part 111

    Administrative practice and procedure, Postal Service.
    Accordingly, 39 CFR 111 is proposed to be amended as follows.

PART 111--[AMENDED]

    1. The authority citation for 39 CFR Part 111 continues to read as 
follows:

    Authority: 5 U.S.C. 552(a); 39 U.S.C. 101, 401, 403, 404, 414, 
416, 3001-3011, 3201-3219, 3403-3406, 3621, 3622, 3626, 3632, 3633, 
and 5001.

    2. Revise the following sections of Mailing Standards of the United 
States Postal Service, Domestic Mail Manual (DMM) as follows:
* * * * *

Mailing Standards of the United States Postal Service, Domestic Mail 
Manual (DMM)

* * * * *

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

* * * * *

1.1.3 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. * 
* *
* * * * *

3.0 Physical Standards for Machinable Letters and Cards

    [Revise text of 3.1 as follows:]

3.1 Basic Standards for Automation Letters and Cards

    Letters and cards claimed at any machinable or automation card or 
letter

[[Page 79432]]

price or Standard Mail Enhanced Carrier Route letter price must meet 
the standards in 3.0. Unless prepared as a folded self-mailer, booklet, 
or postcard under 3.15 through 3.17, each machinable or automation 
letter must be a sealed envelope (the preferred method) or, if 
unenveloped, must be sealed or glued completely along all four sides. 
Machinable and automation pieces must not be sealed with tabs on the 
bottom edge.
    [Delete current 3.4 through 3.6 in their entirety.]
    [Renumber current 3.2 through 3.3 as new 3.4 through 3.5.]
    [Add new 3.2 and new 3.3 as follows:]

3.2 Paper

    Mailpieces must be constructed from high tear strength paper stock. 
All references in 3.0 to paper basis weight are for book-grade paper 
unless otherwise stated. The conversion table in Exhibit 3.2 provides a 
paper basis weight cross-reference. The paper basis weights are based 
on the weight of 500 sheets of 17 x 22 inch bond-grade paper, 25 x 38 
inch sheets of book-grade paper, and 20 x 26 inch sheets of cover-grade 
paper.

            Exhibit 3.2--Paper Basis Weight Conversion Table
------------------------------------------------------------------------
                                           Then you can
                                          use bond paper  Or cover paper
If you use book paper weight of (pounds)     weight of       weight of
                                             (pounds)        (pounds)
------------------------------------------------------------------------
40......................................              16              22
50......................................              20              27
55......................................              22              30
60......................................              24              33
70......................................              28              40
75......................................              30              41
80......................................              31              44
90......................................              36              50
100.....................................              40              56
110.....................................              44              60
128.....................................              50              70
------------------------------------------------------------------------

3.3 Static and Coefficient of Friction

    Letter-sized machinable and automation mailpieces must be made of 
paper material with the following characteristics:
    a. Static charge of less than 2 KV when tested using test method 
ASTM D4470.
    b. Kinetic coefficient of friction between 0.26 and 0.34 when 
tested as paper to same paper using test method ASTM D 4917.
    [Revise heading and text of renumbered 3.4 as follows:]

3.4 Dimensions and Shape

    Each machinable or automation letter-sized piece must be 
rectangular (see 1.1.1) and, except folded self-mailers and booklets, 
must meet the following standards:
    a. Height: not more than 6\1/8\ inches or less than 3\1/2\ inches 
high.
    b. Length: not more than 11\1/2\ inches or less than 5 inches long.
    c. Thickness: not more than 0.25 inch or less than 0.009 inch 
thick.
    d. Dimensions and shape standards for folded self-mailers see 3.15; 
for booklets, see 3.16.
* * * * *
    [Renumber current 3.7 through 3.13 as new 3.8 through 3.14 and add 
new 3.6 as follows:]

3.6 Maximum Weight, Machinable and Automation Letters and Cards

    a. Booklets and folded self-mailers--3 ounces.
    b. Machinable enveloped letters and cards--3.3 ounces.
    c. Automation enveloped letters and cards--3.5 ounces (see 3.7 for 
pieces over 3 ounces.)
    [Renumber current 3.14.4 as new 3.7 and revise as follows:]

3.7 Heavy Letter Mail (Over 3 Ounces)

    Heavy letter mail (letter-size pieces over 3 ounces) must be 
prepared in a sealed envelope, may not contain stiff enclosures, and 
must have a POSTNET or an Intelligent Mail barcode with a delivery 
point routing code in the address block (see 202.5.0).
* * * * *
    [Revise renumbered 3.12 as follows:]

3.12 Tabs, Tape, and Glue

    Tabs on booklets must be at least 1\1/2\ inches in diameter. Tabs 
on folded self-mailers must be at least 1 inch in diameter. The tab 
placement standards in 3.15 and 3.16 are subject to \1/4\-inch variance 
in either direction. Tabs may be made of opaque paper, translucent 
paper, vinyl or plastic and must not contain perforations. Cellophane 
tape may also be used as a closure. The following standards also apply:
    a. Translucent paper tabs should be made of paper with a minimum of 
40-pound basis weight.
    b. Opaque paper tabs should be made of a minimum of 60-pound basis 
weight paper with a tear strength of at least 56 grams of force in the 
machine direction (MD) and 60 grams of force in the cross direction 
(CD).
    c. Tabs in the barcode clear zone must have a paper face meeting 
the standards for background reflectance and, if the barcode is not 
preprinted by the mailer, the standards for acceptance of water-based 
ink.
    d. Vinyl tabs and cellophane tape closures are not acceptable 
within the barcode clear zone.
    e. Tabs must be tight against the edge of the mailpiece. A maximum 
\1/32\-inch overhang is recommended.
    f. Two-inch opaque paper tabs are strongly recommended for booklets 
over 2.5 ounces.
    g. Glue spots may be used in lieu of tabs on some folded self-
mailer designs (see 3.15.4). and must be placed within \3/4\ inch of 
the open edges (see Exhibit 01.3.12.g)

Exhibit 201.3.12.g Glue Spot Placement
[GRAPHIC] [TIFF OMITTED] TP29DE08.004

    h. Continuous glue lines may be used as cover-to-cover seals on 
some designs (see 3.15.4 and 3.16.4). and must be placed along the 
entire length of the open edge and end no more than \3/4\ inch from the 
open ends (see Exhibit 201.3.12.h)

Exhibit 201.3.12.h Glue Line Placement
[GRAPHIC] [TIFF OMITTED] TP29DE08.005

* * * * *
    [Renumber current 3.14.1 as new 3.15 and revise title and text as 
follows:]

3.15 Folded Self-Mailers

3.15.1 Definition

    A folded self-mailer is a single, continuous sheet of paper with no 
binding, folded to create a letter-size mailpiece.

3.15.2 Paper Weight

    Folded self-mailers generally must be made of paper with a minimum 
50 pound basis weight or equivalent. The minimum basis weight is higher 
for some designs (see exhibit 3.15.4).

[[Page 79433]]

3.15.3 Physical Standards for Folded Self-Mailers

    Folded self-mailers must meet the following standards:
    a. Height: not more than 6 inches or less than 3.5 inches high.
    b. Length: not more than 10.5 inches or less than 5 inches long.
    c. Thickness: not more than 0.25 inch or less than 0.009 inch 
thick.
    d. Weight: not more than 3 ounces.
    e. Aspect ratio: within 1.3 to 2.5 (see 201.3.1).

3.15.4 Folded Self-Mailer Design and Sealing

    Additional tabs or seals may be used. Do not place tabs or seals on 
the bottom edge of the mailpiece (see exhibit 3.15.4).

Exhibit 3.15.4 Folded Self-Mailer Design

BILLING CODE 7710-12-P
[GRAPHIC] [TIFF OMITTED] TP29DE08.006


[[Page 79434]]


[GRAPHIC] [TIFF OMITTED] TP29DE08.007

    [Renumber current 3.14.2 as new 3.16 and revise as follows:]

3.16 Booklets

3.16.1 Definition

    Booklets are multiple sheets of paper. Multiple sheets may be 
folded together to form a letter-sized booklet. Booklets may be perfect 
bound or permanently fastened with staples or another method that 
creates a uniformly thick mailpiece. Bound booklets may be folded for 
mailing if the final mailpiece remains uniform in thickness.

3.16.2 Paper

    Booklet covers generally must be made with a minimum paper basis 
weight of 60-pounds or equivalent. Minimum basis weights are higher for 
some designs (see 3.16.4).

[[Page 79435]]

3.16.3 Physical Standards for Booklets

    Booklets must meet the following standards:
    a. Height: not more than 6 inches or less than 3.5 inches high.
    b. Length: not more than 10.5 inches or less than 5 inches long.
    c. Thickness: not more than 0.25 inches or less than 0.009 inches 
thick.
    d. Weight: not more than 3 ounces.
    e. Aspect ratio: within 1.3 to 2.5 (see 201.3.1).

3.16.4 Booklet Design and Sealing

    Booklets may be designed with the spine or fold at the bottom or on 
the leading edge and applicable sealing (see exhibit 3.16.4).

Exhibit 3.16.4 Booklet Design
[GRAPHIC] [TIFF OMITTED] TP29DE08.008

    [Renumber current 3.14.3 as new 3.17.]
    [Renumber current 3.14.4 as new 3.7.]
    [Renumber current 3.15 as new 3.18.]
* * * * *
    We will publish an appropriate amendment to 39 CFR 111 if our 
proposal is adopted.

Stanley F. Mires,
Chief Counsel, Legislative.
[FR Doc. E8-30752 Filed 12-24-08; 8:45 am]
BILLING CODE 7710-12-C