[Federal Register Volume 75, Number 50 (Tuesday, March 16, 2010)]
[Rules and Regulations]
[Pages 12445-12449]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-5636]


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POSTAL REGULATORY COMMISSION

39 CFR Part 3020

[Docket Nos. MC2010-18, CP2010-21 and CP2010-22; Order No. 414]


New Postal Product

AGENCY:  Postal Regulatory Commission.

ACTION:  Final rule.

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SUMMARY:  The Commission is adding International Business Reply Service 
Competitive Contract 2 to the Competitive Product List. This action is 
consistent with a postal reform law. Republication of the Market 
Dominant and Competitive Product Lists is also consistent with new 
statutory provisions.

DATES:  Effective March 16, 2010 and is applicable beginning February 
26, 2010.

FOR FURTHER INFORMATION CONTACT:  Stephen L. Sharfman, General Counsel, 
202-789-6820 or [email protected].

SUPPLEMENTARY INFORMATION: Regulatory History, 74 FR 49823 (September 
29, 2009).

Table of Contents

I. Introduction
II. Background
III. Comments
IV. Commission Analysis
V. Ordering Paragraphs

I. Introduction

    The Postal Service seeks to add a new product identified as 
International Business Reply Service Competitive Contract 2 to the 
Competitive Product

[[Page 12446]]

List. For the reasons discussed below, the Commission approves the 
Request.

II. Background

    On February 9, 2010, the Postal Service filed a notice announcing 
that it has entered into two additional International Business Reply 
Service (IBRS) contracts.\1\ Additionally, the Postal Service filed a 
formal request pursuant to 39 U.S.C. 3642 and 39 CFR 3020.30 et seq. to 
add International Business Reply Service Competitive Contract 2 to the 
Competitive Product List.\2\ The Postal Service asserts that the new 
International Business Reply Service Competitive Contract 2 product is 
a competitive product ``not of general applicability'' within the 
meaning of 39 U.S.C. 3632(b)(3). Id. The Request has been assigned 
Docket No. MC2010-18.
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    \1\ Notice of the United States Postal Service of Filing Two 
Functionally Equivalent IBRS Competitive Contracts and Request to 
Establish Successor Instruments as Baseline International Business 
Reply Service Competitive Contract 2, February 9, 2010 (Request).
    \2\ Id. at 2. The Postal Service states that it is not currently 
proposing to remove IBRS Contract 1 from the Competitive Product 
List because the agreement in Docket No. CP2009-17 remains in place. 
Id., n. 5..
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    The Postal Service contemporaneously filed two contracts related to 
the proposed new product pursuant to 39 U.S.C. 3632(b)(3) and 39 CFR 
3015.5. The contracts have been assigned Docket Nos. CP2010-21 and 
CP2010-22, respectively.
    The Postal Service uses IBRS contracts for customers that sell 
lightweight articles to foreign consumers and desires to offer their 
customers a way to return the articles to the United States for 
recycling, refurbishment, repair, or value-added processing. Id. at 3.
    The Postal Service filed the instant contracts pursuant to 39 CFR 
3015.5. In addition, the Postal Service contends that the contracts are 
in accordance with Order No. 290.\3\ The term of each contract is one 
year from the date the Postal Service notifies the customer that all 
necessary regulatory approvals have been received. The Postal Service 
states the instant contracts are to replace the expiring contracts in 
Docket Nos. CP2009-20 and CP2009-22.\4\ Id. at 3-4. The Postal Service 
notes that the current contracts expire on February 28, 2010.\5\
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    \3\ See Docket No. CP2009-50, Order Granting Clarification and 
Adding Global Expedited Package Services 2 to the Competitive 
Product List, August 28, 2009 (Order No. 290).
    \4\ Docket Nos. MC2009-14 and CP2009-20, Request of the United 
States Postal Service to Add International Business Reply Service 
Contracts to the Competitive Products List, and Notice of Filing 
(Under Seal) Contract and Enabling Governors' Decision, December 24, 
2008.
    \5\ The Postal Service indicates an intent to begin the new 
contracts on March 1, 2010. Id. at 4.
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    In support of its Request, the Postal Service filed the following 
attachments: Attachment 1-a statement of supporting justification as 
required by 39 CFR 3020.32; Attachments 2-A and 2-B-redacted copies of 
the contracts; Attachments 3-A and 3-B-redacted copies of the certified 
statements required by 39 CFR 3015.5(c)(2); Attachment 4-Governors' 
Decision No. 08-24 which establishes prices and classifications for the 
IBRS Contracts product; and includes Mail Classification Schedule 
language for IBRS contracts, formulas for pricing along with an 
analysis, certification of the Governors vote, and certification of 
compliance with 39 U.S.C. 3633(a); and Attachment 5-an application for 
non-public treatment of materials to maintain the contracts and 
supporting documents under seal.
    Substantively, the Request seeks to add International Business 
Reply Service Competitive Contract 2 to the Competitive Product List. 
Id. at 1.
    The Postal Service asserts that the two contracts have generally 
similar cost and market characteristics as previous IBRS contracts. 
However, because it requests that the instant contracts be deemed the 
new baseline contracts for the International Business Reply Service 
Competitive Contract 2 product, the Postal Service considers the 
appropriate analysis to be the comparison of the new contracts' cost 
attributes and market characteristics with one another. Id. at 4. The 
Postal Service indicates that the instant contracts differ from one 
another basically only in the customer identity. Id. The Postal Service 
represents that prices and classifications ``not of general 
applicability'' for IBRS contracts were established by Governors' 
Decision No. 08-24 filed in Docket Nos. MC2009-14 and CP2009-20. Id. at 
1, n.1. It also identifies the instant contracts as fitting within the 
Mail Classification Schedule language for IBRS contracts as included as 
an attachment to Governors' Decision No. 08-24. Id. at 1.
    The Request advances reasons why International Business Reply 
Service Competitive Contract 2 should be added to the Competitive 
Product List and fits within the Mail Classification Schedule language 
for IBRS contracts. Id. at 5. The Postal Service also explains that a 
redacted version of the supporting financial documentation is included 
with this filing as a separate Excel file. Id. at 3.
    The Postal Service asserts that the instant contracts are in 
compliance with 39 U.S.C. 3633, are functionally equivalent to one 
another, fit within the IBRS Mail Classification Schedule language, 
will serve as the new baseline contracts for the proposed product, and 
should be grouped together under a single product. Id. at 5-6. It 
requests that the instant contracts be included within the 
International Business Reply Service Competitive Contract 2 product. 
Id.
    In Order No. 407, the Commission gave notice of the docket, 
appointed a Public Representative, and provided the public with an 
opportunity to comment.\6\
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    \6\ Notice and Order Concerning Filing of International Business 
Reply Service Competitive Contract 2 Negotiated Service Agreement, 
February 12, 2010 (Order No. 407).
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III. Comments

    Comments were filed by the Public Representative.\7\ No filings 
were submitted by other interested parties. The Public Representative 
states that each element of 39 U.S.C. 3633(a) appears to be met by the 
proposed International Business Reply Service Competitive Contract 2 
product. Id. at 2. He observes that the contracts' pricing terms 
comport with Governors' Decision No. 08-24. Id. The Public 
Representative relates that the addition of the proposed product to the 
Competitive Product List is consistent with the statutory requirements 
of 39 U.S.C. 3632, 3633, and 3642. Id. at 2-3.
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    \7\ Public Representative Comments in Response to United States 
Postal Service Notice Concerning Filing of Additional International 
Business Reply Service Contract 2 Negotiated Service Agreements, 
February 22, 2010 (Public Representative Comments).
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    He also states that the Postal Service has provided sufficient 
justification for confidentiality of the matters filed under seal. Id. 
at 3. The Public Representative notes that the IBRS product improves 
the efficiency of the mail, provides convenience to the mailers, and 
serves the public interest. Id. at 3-5. He concludes that the contracts 
comport with all applicable elements of title 39 because it appears 
they will generate sufficient revenue to cover attributable costs, 
should not cause market dominant products to subsidize competitive 
products, and will contribute to the recovery of the Postal Service's 
total institutional costs. Id. at 6.

IV. Commission Analysis

    The Postal Service's filing presents several issues for the 
Commission to consider: (1) the addition of a new

[[Page 12447]]

product to the Mail Classification Schedule in accordance with 39 
U.S.C. 3642; (2) whether the contracts satisfy 39 U.S.C. 3633; and (3) 
the treatment of these contracts as the baseline agreements for any 
future International Business Reply Service Competitive Contract 2 
contracts. In reaching its conclusions, the Commission has reviewed the 
Request, the contracts, the financial analyses provided under seal, and 
the Public Representative's comments.
    Product classification. The Postal Service notes that the 
Commission has had the opportunity to review the IBRS competitive 
contracts product in Order No. 178 and found that those contracts were 
properly classified as competitive. In support of its proposal, the 
Postal Service includes the Statement of Supporting Justification 
(Statement) required by 39 CFR 3020.32 originally filed in Docket No. 
MC2009-14 concerning International Business Reply Service Contracts 1. 
Among other things, the Statement provides support for classifying IBRS 
as a competitive product. Use of the prior Statement is acceptable to 
support the conclusion that International Business Reply Service 
Contract 2 is appropriately classified as competitive, in particular, 
because the instant contracts are the successors to those in Docket 
Nos. CP2009-20 and CP2009-22. Id. at 5.
    Cost considerations. The Postal Service contends that the instant 
contracts and supporting documents filed in these dockets establish 
compliance with the statutory provisions applicable to rates for 
competitive products (39 U.S.C. 3633). Id. at 3. It asserts that 
Governors' Decision No. 08-24 supports these contracts and establishes 
a pricing formula and classification that ensures each contract meets 
the criteria of 39 U.S.C. 3633 and the regulations promulgated 
thereunder. Id., Attachment 4, Attachment D.
    Based on the data submitted, the Commission finds that these 
contracts should cover their attributable costs (39 U.S.C. 3633(a)(2)), 
should not lead to the subsidization of competitive products by market 
dominant products (39 U.S.C. 3633(a)(1)), and should have a positive 
effect on competitive products' contribution to institutional costs (39 
U.S.C. 3633(a)(3)). Thus, an initial review of the proposed contracts 
indicates that they comport with the provisions applicable to rates for 
competitive products.
    Baseline agreement. The Postal Service seeks to add a new product, 
International Business Reply Service Competitive Contract 2, to the 
Competitive Product List. It contends that the instant contracts are 
functionally equivalent to previously filed IBRS contracts. At the same 
time, it asks that the instant contracts be considered the new baseline 
for future International Business Reply Service Competitive Contract 2 
contracts. Id. at 2. The Postal Service notes that the instant 
contracts are the direct successors to the contracts that the 
Commission found to be eligible for inclusion in the International 
Business Reply Service Competitive Contracts 1 product. Id. Because 
International Business Reply Service Competitive Contract 2 is being 
added as a new product, the Commission finds it unnecessary to address 
the issue of functional equivalency with previous contracts. Instead, 
the Commission will review the instant contracts to determine if they 
are functionally equivalent with one another.
    The Commission reviewed each contract and finds that, with the 
exception of customer-specific information, they are essentially 
identical and, therefore, are functionally equivalent. Accordingly, the 
Commission finds that International Business Reply Service Competitive 
Contract 2 is properly added to the Competitive Product List as a new 
product.
    The instant contracts, similar to the previous IBRS competitive 
contracts, contain price contingency clauses which allow the Postal 
Service flexibility to change rates without entering a new agreement. 
The Commission initially reviewed a similar provision when it was filed 
in response to the Commission's request in Docket No. CP2009-20.\8\ In 
Order No. 178, the Commission addressed the implications of the 
contingency clause in the contract in Docket No. CP2010-20, and 
determined that those conclusions apply to other contracts (including 
the instant contracts) with similar provisions.\9\
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    \8\ See Docket Nos. MC2009-14 and CP2009-20, Response of the 
United States Postal Service to Order No. 164, and Notice of Filing 
Redacted Contract and Other Requested Materials, January 12, 2009.
    \9\ The Commission explained that the Postal Service must file 
the changed rates under 39 CFR 3015.5 and give a minimum of 15 days' 
notice. However, unless the changed rates raise new issues, the 
Commission found that it would not anticipate a need to act further. 
See Docket Nos. MC2009-14 and CP2009-20, Order Concerning 
International Business Reply Service Contract 1 Negotiated Service 
Agreement, February 5, 2009, at 9 (Order No. 178).
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    Following the current practice, the Postal Service shall identify 
all significant differences between any new IBRS contract and the 
International Business Reply Service Competitive Contract 2 product. 
Such differences would include terms and conditions that impose new 
obligations or new requirements on any party to the contract. The 
docket referenced in the caption should be Docket No. MC2010-18. In 
conformity with the current practice, a redacted copy of Governors' 
Decision No. 08-24 should be included in the new filing along with an 
electronic link to it.
    Other considerations. The Postal Service shall inform the 
Commission of the effective dates of the contract and promptly notify 
the Commission if the contract terminates earlier than scheduled.
    In conclusion, the Commission adds International Business Reply 
Service Competitive Contract 2 to the Competitive Product List and 
finds the negotiated service agreements submitted in Docket Nos. 
CP2010-21 and CP2010-22 are appropriately included within the 
International Business Reply Service Competitive Contract 2 product.

V. Ordering Paragraphs

    It is ordered:
    1. International Business Reply Service Competitive Contract 2 
(MC2010-18), CP2010-21 and CP2010-22) is added to the Competitive 
Product List as a new product under Negotiated Service Agreements, 
Inbound International.
    2. The Postal Service shall notify the Commission of the effective 
dates of the contract and update the Commission if the termination date 
changes as discussed in this order.
    3. The Postal Service shall file any modifications of price based 
on cost increases or contingency price provisions in these contracts 
with the Commission as discussed in the body of this order.
    4. The Secretary shall arrange for the publication of this order in 
the Federal Register.

List of Subjects in 39 CFR Part 3020

    Administrative practice and procedure; Postal Service.

    By the Commission.
Shoshana M. Grove,
Secretary.

0
For the reasons discussed in the preamble, the Postal Regulatory 
Commission amends chapter III of title 39 of the Code of Federal 
Regulations as follows:

PART 3020--PRODUCT LISTS

0
1. The authority citation for part 3020 continues to read as follows:


[[Page 12448]]


    Authority: Authority: 39 U.S.C. 503; 3622; 3631; 3642; 3682.

0
2. Revise Appendix A to Subpart A of Part 3020-Mail Classification 
Schedule to read as follows:

Appendix A to Subpart A of Part 3020--Mail Classification Schedule

 
 
Part A--Market Dominant Products
1000 Market Dominant Product List
First-Class Mail
    Single-Piece Letters/Postcards
    Bulk Letters/Postcards
    Flats
    Parcels
    Outbound Single-Piece First-Class Mail International
    Inbound Single-Piece First-Class Mail International
Standard Mail (Regular and Nonprofit)
    High Density and Saturation Letters
    High Density and Saturation Flats/Parcels
    Carrier Route
    Letters
    Flats
    Not Flat-Machinables (NFMs)/Parcels
Periodicals
    Within County Periodicals
    Outside County Periodicals
Package Services
    Single-Piece Parcel Post
    Inbound Surface Parcel Post (at UPU rates)
    Bound Printed Matter Flats
    Bound Printed Matter Parcels
    Media Mail/Library Mail
Special Services
    Ancillary Services
    International Ancillary Services
    Address Management Services
    Caller Service
    Change-of-Address Credit Card Authentication
    Confirm
    Customized Postage
    International Reply Coupon Service
    International Business Reply Mail Service
    Money Orders
    Post Office Box Service
Negotiated Service Agreements
    HSBC North America Holdings Inc. Negotiated Service Agreement
    Bookspan Negotiated Service Agreement
    Bank of America Corporation Negotiated Service Agreement
    The Bradford Group Negotiated Service Agreement
    Inbound International
        Canada Post--United States Postal Service Contractual Bilateral
         Agreement for Inbound Market Dominant Services (MC2010-12 and
         R2010-2)
Market Dominant Product Descriptions
First-Class Mail
    Single-Piece Letters/Postcards
    Bulk Letters/Postcards
    Flats
    Parcels
    Outbound Single-Piece First-Class Mail International
    Inbound Single-Piece First-Class Mail International
Standard Mail (Regular and Nonprofit)
    High Density and Saturation Letters
    High Density and Saturation Flats/Parcels
    Carrier Route
    Letters
    Flats
    Not Flat-Machinables (NFMs)/Parcels
Periodicals
    Within County Periodicals
    Outside County Periodicals
Package Services
    Single-Piece Parcel Post
    Inbound Surface Parcel Post (at UPU rates)
    Bound Printed Matter Flats
    Bound Printed Matter Parcels
    Media Mail/Library Mail
Special Services
    Ancillary Services
    Address Correction Service
    Applications and Mailing Permits
    Business Reply Mail
    Bulk Parcel Return Service
    Certified Mail
    Certificate of Mailing
    Collect on Delivery
    Delivery Confirmation
    Insurance
    Merchandise Return Service
    Parcel Airlift (PAL)
    Registered Mail
    Return Receipt
    Return Receipt for Merchandise
    Restricted Delivery
    Shipper-Paid Forward
    Signature Confirmation
    Special Handling
    Stamped Envelopes
    Stamped Cards
    Premium Stamped Stationery
    Premium Stamped Cards
    International Ancillary Services
    International Certificate of Mailing
    International Registered Mail
    International Return Receipt
    International Restricted Delivery
    Address List Services
    Caller Service
    Change-of-Address Credit Card Authentication
    Confirm
    International Reply Coupon Service
    International Business Reply Mail Service
    Money Orders
    Post Office Box Service
Negotiated Service Agreements
    HSBC North America Holdings Inc. Negotiated Service Agreement
    Bookspan Negotiated Service Agreement
    Bank of America Corporation Negotiated Service Agreement
    The Bradford Group Negotiated Service Agreement
Part B--Competitive Products
2000 Competitive Product List
Express Mail
    Express Mail
    Outbound International Expedited Services
    Inbound International Expedited Services
        Inbound International Expedited Services 1 (CP2008-7)
        Inbound International Expedited Services 2 (MC2009-10 and CP2009-
         12)
        Inbound International Expedited Services 3 (MC2010-13 and CP2010-
         12)
Priority Mail
    Priority Mail
    Outbound Priority Mail International
    Inbound Air Parcel Post (at non-UPU rates)
        Royal Mail Group Inbound Air Parcel Post Agreement
    Inbound Air Parcel Post (at UPU rates)
Parcel Select
Parcel Return Service
International
    International Priority Airlift (IPA)
    International Surface Airlift (ISAL)
    International Direct Sacks--M--Bags
    Global Customized Shipping Services
    Inbound Surface Parcel Post (at non-UPU rates)
        Canada Post--United States Postal Service Contractual Bilateral
         Agreement for Inbound Competitive Services (MC2010-14 and
         CP2010-13--Inbound Surface Parcel post at Non-UPU Rates and
         Xpresspost-USA)
    International Money Transfer Service--Outbound
    International Money Transfer Service--Inbound
    International Ancillary Services
Special Services
    Address Enhancement Service
    Greeting Cards and Stationery
    Premium Forwarding Service
    Shipping and Mailing Services
Negotiated Service Agreements
    Domestic
        Express Mail Contract 1 (MC2008-5)
        Express Mail Contract 2 (MC2009-3 and CP2009-4)
        Express Mail Contract 3 (MC2009-15 and CP2009-21)
        Express Mail Contract 4 (MC2009-34 and CP2009-45)
        Express Mail Contract 5 (MC2010-5 and CP2010-5)
        Express Mail Contract 6 (MC2010--6 and CP2010-6)
        Express Mail Contract 7 (MC2010--7 and CP2010-7)
        Express Mail Contract 8 (MC2010--16 and CP2010-16)
        Express Mail & Priority Mail Contract 1 (MC2009-6 and CP2009-7)
        Express Mail & Priority Mail Contract 2 (MC2009-12 and CP2009-
         14)
        Express Mail & Priority Mail Contract 3 (MC2009-13 and CP2009-
         17)
        Express Mail & Priority Mail Contract 4 (MC2009-17 and CP2009-
         24)
        Express Mail & Priority Mail Contract 5 (MC2009-18 and CP2009-
         25)

[[Page 12449]]

 
        Express Mail & Priority Mail Contract 6 (MC2009-31 and CP2009-
         42)
        Express Mail & Priority Mail Contract 7 (MC2009-32 and CP2009-
         43)
        Express Mail & Priority Mail Contract 8 (MC2009-33 and CP2009-
         44)
        Parcel Select & Parcel Return Service Contract 1 (MC2009-11 and
         CP2009-13)
        Parcel Select & Parcel Return Service Contract 2 (MC2009-40 and
         CP2009-61)
        Parcel Return Service Contract 1 (MC2009-1 and CP2009-2)
        Priority Mail Contract 1 (MC2008-8 and CP2008-26)
        Priority Mail Contract 2 (MC2009-2 and CP2009-3)
        Priority Mail Contract 3 (MC2009-4 and CP2009-5)
        Priority Mail Contract 4 (MC2009-5 and CP2009-6)
        Priority Mail Contract 5 (MC2009-21 and CP2009-26)
        Priority Mail Contract 6 (MC2009-25 and CP2009-30)
        Priority Mail Contract 7 (MC2009-25 and CP2009-31)
        Priority Mail Contract 8 (MC2009-25 and CP2009-32)
        Priority Mail Contract 9 (MC2009-25 and CP2009-33)
        Priority Mail Contract 10 (MC2009-25 and CP2009-34)
        Priority Mail Contract 11 (MC2009-27 and CP2009-37)
        Priority Mail Contract 12 (MC2009-28 and CP2009-38)
        Priority Mail Contract 13 (MC2009-29 and CP2009-39)
        Priority Mail Contract 14 (MC2009-30 and CP2009-40)
        Priority Mail Contract 15 (MC2009-35 and CP2009-54)
        Priority Mail Contract 16 (MC2009-36 and CP2009-55)
        Priority Mail Contract 17 (MC2009-37 and CP2009-56)
        Priority Mail Contract 18 (MC2009-42 and CP2009-63)
        Priority Mail Contract 19 (MC2010-1 and CP2010-1)
        Priority Mail Contract 20 (MC2010-2 and CP2010-2)
        Priority Mail Contract 21 (MC2010-3 and CP2010-3)
        Priority Mail Contract 22 (MC2010-4 and CP2010-4)
        Priority Mail Contract 23 (MC2010-9 and CP2010-9)
        Priority Mail Contract 24 (MC2010-15 and CP2010-15)
    Outbound International
        Direct Entry Parcels Contracts
            Direct Entry Parcels 1 (MC2009-26 and CP2009-36)
        Global Direct Contracts (MC2009-9, CP2009-10, and CP2009-11)
        Global Direct Contracts 1 (MC2010-17 and CP2010-18)
        Global Expedited Package Services (GEPS) Contracts
            GEPS 1 (CP2008-5, CP2008-11, CP2008-12, CP2008-13, CP2008-
             18, CP2008-19, CP2008-20, CP2008-21, CP2008-22, CP2008-23,
             and CP2008-24)
            Global Expedited Package Services 2 (CP2009-50)
        Global Plus Contracts
            Global Plus 1 (CP2008-8, CP2008-46 and CP2009-47)
            Global Plus 2 (MC2008-7, CP2008-48 and CP2008-49)
    Inbound International
        Inbound Direct Entry Contracts with Foreign Postal
         Administrations
            Inbound Direct Entry Contracts with Foreign Postal
             Administrations (MC2008-6, CP2008-14 and MC2008-15)
            Inbound Direct Entry Contracts with Foreign Postal
             Administrations 1 (MC2008-6 and CP2009-62)
        International Business Reply Service Competitive Contract 1
         (MC2009-14 and CP2009-20)
        International Business Reply Service Competitive Contract 2
         (MC2010-18, CP2010-21 and CP2010-22)
    Competitive Product Descriptions
        Express Mail
        Express Mail
        Outbound International Expedited Services
        Inbound International Expedited Services
        Priority
        Priority Mail
        Outbound Priority Mail International
        Inbound Air Parcel Post
        Parcel Select
        Parcel Return Service
        International
        International Priority Airlift (IPA)
        International Surface Airlift (ISAL)
        International Direct Sacks--M-Bags
        Global Customized Shipping Services
        International Money Transfer Service
        Inbound Surface Parcel Post (at non-UPU rates)
        International Ancillary Services
        International Certificate of Mailing
        International Registered Mail
        International Return Receipt
        International Restricted Delivery
        International Insurance
        Negotiated Service Agreements
        Domestic
        Outbound International
    Part C--Glossary of Terms and Conditions [Reserved]
    Part D--Country Price Lists for International Mail [Reserved]
 

[FR Doc. 2010-5636 Filed 3-15-10; 8:45 am]
BILLING CODE 7710-FW-S