[Federal Register Volume 76, Number 157 (Monday, August 15, 2011)]
[Proposed Rules]
[Pages 50438-50441]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2011-20615]
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POSTAL SERVICE
39 CFR Part 111
Folded Self-Mailers and Unenveloped Mailpieces
AGENCY: Postal ServiceTM.
ACTION: Proposed rule.
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SUMMARY: The Postal Service proposes to revise the Mailing Standards of
the United States Postal Service, Domestic Mail Manual (DMM[supreg])
201.3.14 to provide standards for creating folded self-mailers (FSM)
and other unenveloped mailpieces such as forms, statements, and
official notices that will improve processing of these pieces on
automated Postal processing equipment.
DATES: We must receive your comments on or before September 14, 2011.
ADDRESSES: Mail or hand-deliver written comments to the manager,
Product Classification, U.S. Postal Service[supreg], 475 L'Enfant
Plaza, SW., Room 4446, Washington, DC 20260-5015. Interested parties
may review and photocopy all written comments at USPS[supreg]
Headquarters Library, 475 L'Enfant Plaza, SW., 11th Floor N,
Washington, DC between 9 a.m. and 4 p.m., Monday through Friday. Email
comments that contain the name and address of the commenter, may be
sent to: mailingstandards@usps.gov, with a subject line of ``FSM.''
Faxed comments will not be accepted.
FOR FURTHER INFORMATION CONTACT: Craig Vance at 202-268-7595, or Susan
Thomas at 202-268-8069.
SUPPLEMENTARY INFORMATION: In this proposed rule, the Postal Service
defines letter-sized FSM, provides detailed standards about the basic
elements of all FSM letter-sized pieces, and introduces ``panels'' as a
basic element for constructing FSMs. Additionally, optional creative
elements that are currently found in FSM designs, but are not defined
in the DMM, are added.
History
To improve the quality of FSMs, the USPS, in collaboration with the
mailing industry, implemented a series of tests designed to identify
the characteristics of FSMs that could be processed successfully on
automated letter-sorting machines. Industry members, recommended
through the Mailers Technical Advisory Council (MTAC), Postal Customer
Councils (PCC) and the Business Service Network, were asked to provide
sample mailpieces for testing. A wide array of mail owners, mail
service providers, and vendors participated. The collaboration resulted
in a better understanding of the capabilities and needs of the mailing
community and enabled the Postal Service to align terms commonly used
in the mailing industry with those in the proposed standards. Working
together, the Postal Service attempted to strike a balance between
innovation and mailpiece machinability.
The outcome of this collaboration is a streamlined framework of
proposed standards that aligns with existing letter-mail standards,
provides specific information, and clearly defines the characteristics
of additional design elements for mailers who create FSM mailpieces.
Folded self-mailer maximum dimensions and weights are now proposed to
align with other unenveloped letter standards. The dimensions will
better delineate envelope and oversized cards when compared to
unenveloped-type mail. Improved standards that are clear and easy to
understand will encourage consistency and level-set the playing field
minimizing delays in production and will help the Postal Service to
control costs.
Postal letter sorting equipment is capable of processing letters at
the rate of 10 pieces per second. When prepared according to current
standards and processed at that speed, some FSM designs have higher
rates of damage and cause jams in letter sorting equipment that result
in diverting those pieces to flat sorters or manual handling. Both
alternate processes are time consuming and costly. This proposed rule
provides standards for FSM and other unenveloped letter designs so
those mailpieces can better withstand the rigors of letter automation
processing.
Testing
The collaborative testing focused on the primary characteristics of
folded self-mailers. Four characteristics proved to be the most
important--dimensions, basis weight of the paper that forms the
[[Page 50439]]
outer sheet, closure method, and closure placement.
Testing revealed a strong correlation between higher damage,
equipment jam rates, and lower throughput as the basis weight of the
paper decreased or as the size of the FSM increased. The closure method
and placement of closures greatly affected machinability. Continuous
glue lines were determined to be the optimal method of sealing a FSM.
Use of a continuous glue line has been severely limited in the mailing
industry, because the existing equipment used by many is not currently
capable of producing continuous glue lines. As an alternative, the
Postal Service introduced elongated glue lines (dashes) and patterns of
glue spots to simulate glue lines. Testing also revealed that a one tab
closure produces an insufficient seal, so we propose that two or more
tabs be required depending on the design and total weight of the
mailpiece. Other factors that affected automation compatibility were:
Mailpiece thickness.
Total piece weight.
Fold orientation.
Thickness of attachments or enclosures within a mailpiece.
Flap size, style, and orientation.
Number of panels.
Panels are created when sheets of paper are folded--each two-sided
section created by folding is called a panel. The number of folds
determines the number of panels within the mailpiece. In addition to
these primary characteristics, the following optional design elements
were also considered during testing:
Loose inserts secured in pockets.
Attachments to the interior and exterior of the mailpiece.
Die-cut elements.
Perforations.
The aggregate data generated from testing was analyzed using Lean
Six Sigma (LSS) methodologies to develop a framework of potential
minimum and maximum standards. The initial framework was based on
optimized standards represented as 10 basic categories of FSMs. This
framework was provided to the participants of the FSM study and
meetings were conducted to begin the refinement process and develop a
draft of proposed revised DMM standards. This collaborative process
spanned six months. In addition to these meetings, the USPS reached out
to others in the design and production segments of the industry to gain
more specific knowledge and insight into their capabilities and needs.
Based on participant feedback, the Postal Service restructured the
original framework, aligned break-points, and crafted proposed
standards beginning with a basic folded self-mailer profile. Additional
optional creative elements were then incorporated to provide more
design flexibility.
As the Postal Service worked through refinement of the initial
proposed framework, built on Lean Six Sigma methodology, an attempt was
made to find the balance between creativity and machinability that also
allowed additional design options for FSM. The updated standards will
be mutually beneficial.
A Folded Self-Mailer Reference Material document was developed as
supporting information to this proposed rule. The document summarizes
information of the proposed standards, includes illustrations that
demonstrate some of the options for fold style, and includes closure
methods and optional elements that may be incorporated into a basic
folded self-mailer letter. The document can be found at: https://ribbs.usps.gov/index.cfm?page=FSM.
Although we are 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 Part 111.1.
List of Subjects in 39 CFR Part 111
Administrative practice and procedure, Postal Service.
Accordingly, 39 CFR Part 111 is proposed to be amended as follows:
PART 111--[AMENDED]
1. The authority citation for 39 CFR Part 111 is revised to read as
follows:
Authority: 5 U.S.C. 552(a); 13 U.S.C. 301-307; 18 U.S.C. 1692-
1737; 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 Letters and Cards
201 Physical Standards
* * * * *
3.0 Physical Standards for Machinable and Automation Letters and Cards
* * * * *
3.14 Folded Self-Mailers
[Delete current text of 3.14 in its entirety and replace with the
following:]
3.14.1 Definition
A folded self-mailer is formed of panels that are created when one
or more unbound sheets of paper are folded together and sealed to make
a letter-size mailpiece. The number of panels is determined by the
number of sheets in the mailpiece and the number of times the sheets
are folded.
3.14.2 Size
Folded self-mailers are:
a. Length: A minimum of 5 inches and a maximum of 10\1/2\ inches.
b. Height: A minimum of 3\1/2\ inches and a maximum of 6 inches.
c. Thickness: A minimum of 0.007 inch; (0.009 inch if the height
exceeds 4\1/4\ inches or if the length exceeds 6 inches); the maximum
thickness is \1/4\ inch.
d. Maximum Weight: 3 ounces.
e. Rectangular, with four square corners and parallel opposite
sides.
f. Within an aspect ratio (length divided by height) of 1.3 to 2.5,
inclusive (see 601.1.4).
g. Maximum number of panels, bi-fold, tri-fold and oblongs: 8.
Exception: Quarter folded self-mailers made of a minimum of 100 lb
book grade paper may have 4 panels and those made of 55 lb newsprint
must have at least 8 panels and may contain up to 16 panels.
3.14.3 Panels
Panels are created when a sheet of paper is folded. When a folded
self-mailer is made of multiple sheets, multiply the number of sheets
by the number of panels created when folding a single sheet to
determine the total number of panels. The following conditions apply:
a. Panels created by folding must be equal or nearly equal in size.
b. The final folded edge must be the bottom of a folded self-mailer
unless prepared as an oblong. The final folded edge of an oblong folded
self-mailer must be the leading (right) edge.
c. Shorter panels must be internal to the mailpiece, covered by a
full-size panel, and count toward the maximum number of panels.
d. The final folded panel creates the back (non-address) side of
the mailpiece. The open edge of the back panel must be at the top or
within 1
[[Page 50440]]
inch of the top or trail (left) edge of the mailpiece.
e. Folding methods and the subsequent number of panels created when
folding a single sheet of paper are:
1. Bi-fold: Folded once forming two panels.
2. Tri-fold: Folded twice forming three panels.
3. Oblong: Paper with one elongated dimension and parallel opposite
sides folded once to form two rectangular panels. The final folded edge
must be the leading (shorter) edge.
4. Quarter-fold: Folded two times with each fold at a right angle
(perpendicular) to the preceding fold. One sheet of paper quarter-
folded creates four panels.
f. Flaps are formed when an extended portion of the final panel is
folded over an interior panel and affixed to the unaddressed side of
the mailpiece and must meet the following conditions:
1. Flaps begin at the top of the mailpiece and end one inch or more
above the bottom edge. Flaps must be at least 1\1/2\ inches long when
measured from the top of the mailpiece.
2. Flaps must be secured with a seal as described in 3.14.4.
3. Die-cut shaped flaps are firmly secured with a tab, glue line,
glue spots or elongated glue lines. A \1/8\-inch wide continuous glue
line that seals the contour of the die-cut is strongly recommended.
4. Flaps on oblong mailpieces are at least 5 inches long at the
longest point when measured from the leading edge and end more than one
inch from the trailing edge.
g. Flaps and pockets prepared within folded self-mailers to
stabilize enclosures are not counted as panels.
3.14.4 Sealing Methods
Folded self-mailers may be sealed using tabs or glue under the
following conditions:
a. Tabs. When tabs are used to seal FSMs, use non-perforated paper
tabs to seal folded self-mailers. Tabs with a tear strength of 50 grams
force (gf) machine 55gf cross direction are recommended. The size and
number of tabs required is determined by the weight of the mailpiece
and optional design elements as follows:
1. To seal all bi-fold and tri-fold self-mailers and quarter-folded
self-mailers that weigh one ounce or less, affix one tab either on the
top edge within one inch of the leading and one tab within one inch of
the trailing edge or affix one tab on the leading and one tab on the
trailing edges within one inch of the top.
2. To seal oblong folded self-mailers, affix two tabs in the center
of the top and trailing edges or on the trailing edge within one inch
of the top and bottom. Tabs may not be applied to the bottom of an
oblong mailpiece.
3. To seal quarter-folded mailpieces that weigh more than one ounce
and quarter-folded mailpieces made of newsprint, affix two tabs on the
leading and trailing edges within 1 inch from the top, with one
additional tab affixed on the lower leading edge \1/2\ inch from the
bottom (see 3.14.5).
b. Glue. The glue must be positioned within \1/4\ inch of the open
edges and be placed opposite the final fold or on the leading and
trailing edge when the final panel fold is on the bottom. Apply glue by
one of the following methods:
1. Continuous glue lines at least \1/8\-inch wide (0.125 inch).
2. Three or four glue spots at least \3/8\ inch (0.375 inch) in
diameter.
3. Three or four elongated glue lines. Seal folded self-mailers
that weigh up to one ounce with lines at least \1/2\-inch long. Seal
folded self-mailers that weigh more than one ounce with glue lines
either \1/8\-inch wide and at least 1-inch long or \1/4\-inch wide and
at least \1/2\-inch long.
4. Glue spots and elongated glue lines should be distributed evenly
along open edges.
5. Quarter-folded self-mailers must be sealed with tabs.
3.14.5 Paper Weight and Sealing Requirements
All references in 3.0 to paper basis weight are for book-grade
paper unless otherwise stated (see 3.2). When multiple optional design
elements are incorporated in a single mailpiece, the standards for the
design element with the highest paper weight and corresponding sealing
methods apply. Folded self-mailer paper weights and sealing methods
are:
a. Basic bi-fold, tri-fold, and oblong folded self-mailers as
described in 3.14.3:
1. Up to 1 ounce: 70 lb paper sealed with a continuous glue line,
three glue spots; or elongated glue lines under 3.14.4b; or two 1-inch
tabs under 3.14.4a1 and 3.14.4a2.
2. Over 1 ounce: 80 lb paper sealed with a continuous glue line,
four glue spots; or four elongated glue lines under 3.14.4b; or two
1\1/2\-inch tabs under 3.14.4a1 and 3.14.4a2.
b. Basic quarter folded self-mailers as described in 3.14.3:
1. Up to 1 ounce: 70 lb paper sealed with two 1-inch tabs.
2. Over 1 ounce: 80 lb paper sealed with three 1\1/2\-inch tabs.
3. Newsprint: 55 lb minimum paper. Seal pieces with three 1\1/2\
inches tabs, see 3.14.4a3.
c. Optional Design Elements: Die-cut openings and perforated panes.
Folded self-mailers with die cut openings in the exterior panels as
described in 3.14.6 or perforated panes as described in 3.14.7 must
meet the following:
1. Up to 1 ounce: 100 lb paper sealed with glue under 3.14.4b, or
two 1\1/2\ inches tabs under 3.14.4a1 and 3.14.4a2.
2. Over 1 ounce: 120 lb paper sealed with glue under 3.14.4b, or
two 2-inch tabs under 3.14.4a1 and 3.14.4a2 or three 1\1/2\ inches tabs
under 3.14.4a3.
d. Optional Design Elements: Loose enclosures and attachments. For
folded self-mailers that have loose enclosures as described in 3.14.8
or attachments as described in 3.14.9, the following applies:
1. Up to 1 ounce: 80 lb paper sealed with glue under 3.14.4b or two
1\1/2\ inches tabs under 3.14.4a1 and 3.14.4a2.
2. Over 1 ounce: 100 lb paper sealed with glue under 3.14.4b, or
two 2-inch tabs under 3.14.4a1 and 3.14.4a2 or three 1\1/2\ inches tabs
under 3.14.4a3.
3.14.6 Die Cut Elements
Folded self-mailers may be produced with two distinct types of die
cut elements in the exterior panels: address windows or die-cut reveal
openings used to draw attention to important information within the
mailpiece. Die cut openings may not be used to create die cut punched
holes (that exist in the same location on all layers and panels so that
there is an opening through the entire mailpiece). Prepare die cut
elements as follows:
a. Die cut address windows (used to convey address information)
must conform to all standards for window envelopes under 601.6.4 and
meet the following additional conditions:
1. Windows may be up to 2 inches high by 4 inches long.
2. When an address window appears on a mailpiece, no other die cut
shapes may be made on the exterior panels.
b. Die cut reveal openings (used to reveal the contents of the
mailpiece), are:
1. Limited to two on only one of the external panels.
2. Either circular with a 2-inch maximum diameter or rectangular
and a maximum of 1\1/2\ inches high by 2 inches long with slightly
rounded \1/4\ inch radius corners.
3. Placed at least 1\1/2\ inches from all edges of the mailpiece if
on the addressed side.
4. Placed at least 5 inches from the leading edge and 1\1/2\ inches
from all other edges if on the non-addressed side.
5. Positioned at least 1\1/2\ inches apart when two or more die cut
openings are used.
[[Page 50441]]
c. A single \1/2\ inch semi-circular die cut thumb notch, used in
conjunction with an opening device, may be on the trailing edge of the
addressed or nonaddressed outer panel.
3.14.7 Perforated Strips and Panes
Folded self-mailers may be prepared with strips or panes that are
pulled open to reveal the contents. These design elements are placed on
the unaddressed side of the mailpiece and may be rectangular, circular,
or oval shaped. Perforations, a row of small holes punched in a sheet
of paper so that a part can be torn easily, are used to create the
openings. They may be pull-open strips, pop-out, or pop-open panes
subject to the following prepared requirements:
a. Two perforated lines creating a pull open strip must be parallel
and spaced at least \1/2\ inch apart. Position perforated strips
parallel to the height (the short side) of the mailpiece at least 5
inches from the leading and 2 inches from the trailing edge. Position
perforated strips parallel to the length (the long side) of the
mailpiece at least 1 inch from the top. Perforations have a 2mm cut
(max)/4mm tie (min) ratio or a 3mm cut (max)/3mm tie (min) ratio.
b. Pop-out panes have perforations around the entire perimeter. The
full perimeter of the pop-out is a maximum of 4 inches long by 4 inches
high, and:
1. Have panes placed at least 1 inch from any edge.
2. Are 2mm cut (max)/2mm tie (min) ratio.
3. When using two panes, must be spaced at least 1 inch apart.
4. May not have any address elements appear in perforated openings.
c. Pop-open panes have perforations on three sides and meet the
following conditions:
1. The full perimeter of the pull-open panel is a maximum of 4
inches long by 4 inches high.
2. If prepared with multiple panes, they must be spaced at least 1
inch apart.
3. Panes must be placed at least 1 inch from all edges.
4. Perforation patterns have 2 mm cut (max)/2 mm tie (min) ratio.
d. Perforated panes may not be on mailpieces with die-cut design
elements or on any mailpiece made of newsprint.
3.14.8 Loose Enclosures
Loose enclosures included within a folded self-mailer must be made
of paper under the following conditions:
a. Must be secured within a folded self-mailer to ensure
containment and prevent excessive shift during processing.
b. May be inserted in an interior pocket or secured by any other
method that prevents excessive shift during processing. Pockets are not
counted as panels.
c. Enclosures are fully covered by the outer panels of the
mailpiece.
d. Folded self-mailers with die-cut openings may contain enclosures
if the inserted material is larger than the die cut opening.
e. Enclosed material does not exceed the maximum thickness of:
1. 0.05 inch thick for weights up to 1 ounce.
2. 0.09 inch thick for weights over 1 ounce.
3.14.9 Attachments
Attachments may be secured on the outside of a folded self-mailer
under 3.13. Attachments may be secured within folded self-mailers under
the following conditions:
a. The attachment is affixed to an inside panel and secured it at
least \1/2\ inch from any edge.
b. The attached material may not exceed a maximum thickness of:
1. 0.05 inch thick for weights up to 1 ounce.
2. 0.09 inch thick for weights over 1 ounce.
c. Multiple attachments must remain nearly uniform in thickness.
d. When multiple attachments are affixed to separate panels in
stacked alignment, the combined thickness of the attachments must be
equal to or less than the maximum thickness.
e. When multiple attachments are affixed adjacent to each other
across the length of a mailpiece, the thickest attachment must be equal
to or less than the maximum thickness.
f. Quarter-folded self-mailer may only have one internal attachment
not exceeding 0.012 inch thick. The attachment must be secured at least
0.5 inch from all edges.
3.14.10 Addressing
Printing addresses in a center or left-justified position within
the optical character reader (OCR) area under 2.1 is recommended when
folded self-mailers are prepared with uncoated paper.
3.15 Unenveloped Mailpieces
3.15.1 Lunch-Bag Style
Lunch-bag style mailpieces consists of two symmetrical horizontal
panels sealed together along top and bottom edges. Lunch-bag style
mailpieces must meet the following conditions:
a. Join panels using \1/8\ (0.125) inch continuous glue lines.
b. If flaps are used, they must be a minimum of at least 1\1/2\
inches wide and created as inner flaps adhered at the leading and
trailing edges to the panel from which the flap is formed.
c. All paper weight and sealing requirements in 3.14.5c and 3.14.5d
must be met.
3.15.2 Tear-Off Strips
When mailpieces have tear-off opening devices on the leading or
trailing edge, the unfolded edges must be sealed with an adhesive
(glue) or by a cohesive method. Unlike glue that will adhere to any
surface, a cohesive seal requires two fixative patterns placed on top
of each other to create a bond. The top-sealed edges may have a
perforated horizontal line no lower than \9/16\ (0.5625) inch from the
top that joins the leading and trailing edge perforations. Mailpieces
with sealed sides must meet the following conditions.
a. Tear off strips may be up to \9/16\ inch (0.5625) wide.
b. Tear lines (single lines of perforations) on pieces that weigh
one ounce or less, must be 1 mm cut (max)/1 mm tie (min) ratio.
c. Tear lines (single lines of perforations) on pieces that weigh
more than one ounce must be 1 mm cut (max)/2 mm tie (min) ratio.
* * * * *
We will publish an appropriate amendment to 39 CFR part 111 to
reflect these changes if our proposal is adopted.
Stanley F. Mires,
Chief Counsel, Legislative.
[FR Doc. 2011-20615 Filed 8-12-11; 8:45 am]
BILLING CODE 7710-12-P