[Federal Register Volume 59, Number 177 (Wednesday, September 14, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-22735]
[[Page Unknown]]
[Federal Register: September 14, 1994]
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POSTAL SERVICE
39 CFR Part 111
Revisions to Standards for Detached Address Labels
AGENCY: Postal Service.
ACTION: Final rule.
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SUMMARY: The Postal Service adopts changes in Domestic Mail Manual
(DMM) standards concerning use of detached address labels (DALs) to
standardize those rules as they apply to the different uses of DALs
(second-, third-, and fourth-class flats and third-class merchandise
samples).
EFFECTIVE DATE: December 13, 1994.
FOR FURTHER INFORMATION CONTACT: Leo F. Raymond, (202) 268-5199.
SUPPLEMENTARY INFORMATION: On April 8, 1994, the U.S. Postal Service
(USPS) published for comment proposed changes to Domestic Mail Manual
(DMM) unit A060, which contains the standards for use of detached
address labels (DALs). 59 FR 16786-16788. The proposed revisions, which
arose from suggestions presented during the 1993 DMM redesign project,
were generally designed to eliminate as much as possible the
distinctions between how second-, third-, and fourth-class flats and
third-class merchandise samples can each be mailed using DALs. This
proposed rule did not seek to introduce significantly new requirements
or options for existing uses (other than those that occur from
standardization across classes), nor to permit new uses of DALs. To
avoid wordiness, the term ``item'' was introduced to replace the phrase
``second-class flat, third-class flat or merchandise sample, or fourth-
class bound printed matter'' when discussing that which is distributed
with the DAL.
The USPS received five written comments on the proposed rule.
All commenters generally supported the proposed rule as a measure
to simplify and standardize existing regulations. However, commenters
also suggested revisions beyond those related to making the standards
uniform in all mailing applications.
One commenter urged the Postal Service to allow the use of DALs in
more mailing situations than at present. This proposal is beyond the
scope of this rulemaking and will not be addressed as part of this
final rule.
Another commenter found the language of proposed DMM A060.1.2
ambiguous in its use of ``must'' and ``may'' to describe situations in
which DALs are permitted. That language is revised for greater clarity
in renumbered DMM A060.1.3 of the final rule. This commenter was also
concerned by the term ``full'' (in proposed DMM A060.3.3) as applied to
the cartons used to transport the items to be delivered using DALs,
fearing that, taken literally, it would require an infinite number of
carton sizes to suit all situations. The intent behind the full carton
requirement is that the fewest number of cartons be used and that each
be as full as reasonably possible to minimize transportation cost and
movement of (and potential damage to) the items inside the carton while
in transit. The USPS does not expect customers to bear an unreasonable
burden to ensure full cartons, and the language of the final rule is
clarified to state that full cartons can be achieved by placing dunnage
in cartons to maintain the integrity of their contents while in
transit.
One commenter submitted a series of questions as a means of
indicating areas in which it felt the proposed rule needed additional
definition. The issues raised are (1) whether the DALs and items for a
post office handling small volumes of mail could be combined in the
same shipping carton; (2) how many 5-digit ZIP Codes are needed for
general distribution and what constitutes the residual; and (3) the
standards applicable to palletization of cartons of DALs and items. The
final rule has been amended so that (1) only the DALs for the same 5-
digit ZIP Code area may be placed in the same carton; (2) general
distribution requires a minimum density in a 5-digit ZIP Code area, not
a minimum number of 5-digit areas (less-than-general-distribution
quantities in that mailing are considered residual); and (3) DALs and
items may be palletized under the same standards applicable to other
mail.
Another commenter stated that the notification requirement in
proposed DMM A060.3.1 represented an unnecessarily redundant burden on
the mailer by mandating both an advance written notice to the delivery
office and the enclosure of a copy of that notice in the actual
mailing. The USPS is interested in ensuring that delivery offices
correctly identify DAL mailings and associate them with the
corresponding mailer instructions. For that reason, the enclosure of a
copy of an advance notice was seen as a relatively foolproof device.
However, to remove this perceived burden, the final rule will allow the
mailer the alternative of showing a key number or code on both the
advance letter and (instead of a copy of the notice) on the cartons
used for the mailing.
One commenter raised a series of questions based on experience in
applying the existing standards, noting that certain issues were not
resolved by the proposed rule, and asking that they be addressed in the
final rule. The questions were (1) how the carton's weight is
considered for purposes of postage computation; (2) whether excess DALs
should be allowed (based on an assumed number of undeliverables), what
that excess should be, and how those DALs would be viewed for purposes
of classification, rate eligibility, and postage payment; and (3) how
the terms in proposed DMM A060.3.4 (regarding identification of
quantities) were to be correctly applied. The final rule has been
revised to address those questions: (1) postage is to be determined
based on the weight of the mailpiece, i.e., the combined weight of the
DAL and the accompanying item, excluding tare; (2) DALs and items are
to be supplied in equal numbers although, if excess items or DALs are
received by the delivery post office, additional quantities of items or
DALs (as needed) may be shipped First-Class Mail (or Priority Mail or
Express Mail); and (3) proposed DMM A060.3.4 (now DMM A060.3.5) has
been revised to narrow reference to ``packages'' to apply to packages
of compatible items (e.g., flats) placed in sacks.
Another commenter pointed out that use of the term ``detached
address card (DAC)'' in the proposed rule was contrary to prior
practice. It noted that the term ``detached address label (DAL)'' would
be more appropriate because it is used in the Domestic Mail
Classification Schedule and is well established in the mailing
industry's vocabulary. The USPS agrees and will retain the current term
(DAL) in the final rule.
The same commenter, while supporting the placement on the front of
the DAL of identifying information about the accompanying item, argued
that the language of proposed DMM A060.2.4 was too broad in allowing
``equivalent identifying information.'' Such a term, the commenter
believed, was likely to invite ``overreaching interpretations that
convert the front of the DAL into an advertising or promotional
vehicle.'' The USPS agrees that such a consequence is undesirable, and
the final rule tightens the wording in DMM A060.2.4 accordingly.
That commenter also pointed out that the language of proposed DMM
A060.4.1a, by requiring the mailer to supply additional items if their
quantity was exceeded by the number of DALs provided to a delivery
office, left the mailer without the option of having those excess DALs
disposed of as waste. (The proposed rule stated that excess DALs would
be returned postage due if the necessary additional items were not
provided.) Particularly when additional items were not available, the
commenter noted, the proposed requirement would be both impossible to
satisfy and punitive in its consequence.
Concurrently, the commenter noted that proposed DMM A060.4.1c would
appear not to offer the mailer a negative option concerning address
correction, and apparently mandates the return of all undeliverable-as-
addressed DALs. This commenter suggests that the mailer should have to
request address correction. For consistency, proposed DMM A060.5.0d
would also require revision. The USPS believes the commenter's points
are valid, and these provisions are amended in the final rule to allow
the options suggested by the commenter and to treat undeliverable-as-
addressed DALs like other mail of their class and rate.
Finally, concerning proposed DMM A060.3.3, this commenter suggests
that ``other authorized containers'' be included as means to transport
items, in addition to sacks and pallets, and that the application of
the 40-pound limit be more clearly defined. Although the use of
``other'' equipment, such as wheeled containers, might be reasonable in
some instances, the USPS is concerned both over the consequences of
irregular equipment supplies and how various types of equipment might
not be appropriate in some applications. For that reason, the final
rule allows the use of ``other'' equipment but limits its use to the
service area of the facility whose manager authorized such equipment
and which will receive the mailing. The final rule also more clearly
addresses the application of the 40-pound limit.
Based on the adoption of several commenter suggestions, the final
rule has been reorganized slightly from the proposed rule. It also
includes (as DMM A060.1.6) a provision that specifically states the
currently unwritten requirement that the mailer is responsible for
demonstrating compliance with the density, distribution, or other
criteria that might apply to a particular DAL mailing.
List of Subjects in 39 CFR Part 111
Postal Service.
For the reasons discussed above, the Postal Service hereby adopts
the following amendments to the Domestic Mail Manual, which is
incorporated by reference in the Code of Federal Regulations (see 39
CFR 111).
PART 111--[AMENDED]
1. The authority citation for 39 CFR 111 continues to read as
follows:
Authority: 5 U.S.C. 552(a); 39 U.S.C. 101, 401, 403, 404, 3001-
3011, 3201-3219, 3403-3406, 3621, 3626, 5001.
2. Replace Domestic Mail Manual A060 with the following:
A060 Detached Address Labels
1.0 USE
1.1 Definitions
For purpose of these standards, ``item[s]'' refers inclusively to
the types of mail described in 1.2 through 1.4.
1.2 Second- or Third-Class Flats
Saturation mailings of unaddressed second- or third-class flats may
be mailed with detached address labels (DALs). For purposes of this
standard, a saturation mailing is one sent to at least 75% of the total
addresses on a carrier route or 90% of the residential addresses on a
route, whichever is less. Deliveries are not required to every carrier
route of a delivery unit.
1.3 Third-Class Merchandise Samples
Merchandise samples more than 5 inches wide (high) or 1/4 inch
thick, or nonuniform in thickness, mailed at bulk third-class rates,
must be mailed with DALs when prepared for general distribution on city
delivery routes. Merchandise samples may be mailed with DALs for
general distribution on other (e.g., rural) routes and for the residual
portion of a general distribution mailing. For purpose of this
standard, ``general distribution'' means distribution in a single
mailing to at least 25% of the addresses in any 5-digit ZIP Code
delivery area regardless of the number of samples addressed to a single
route or the number of 5-digit areas to which samples are addressed. If
the same mailing includes a ``general distribution'' to one or more 5-
digit areas and distribution of lesser quantities to one or more other
5-digit areas, the latter pieces are considered ``residual.''
1.4 Fourth-Class Bound Printed Matter
Mailings of unaddressed pieces of bound printed matter may be
mailed with DALs for delivery in the local zone of the post office of
mailing.
1.5 Alternative Address Formats
The addresses on DALs may be prepared using an alternative address
format, subject to the applicable eligibility, volume, density, and
preparation standards.
1.6 Evidence of Distribution
When requested by the USPS, DAL mailers must provide documentation
to establish that the applicable distribution standards in 1.2 through
1.4 are met.
2.0 PREPARING DETACHED ADDRESS LABELS
2.1 Construction
Each DAL must be made of paper or cardboard stock that is not
folded, perforated, or creased, and that meets these measurements:
a. Between 3\1/2\ and 5 inches high (perpendicular to the address
label).
b. Between 5 and 9 inches long (parallel to the address label).
c. At least 0.007 inch thick.
2.2 Addressing
The address for each item must be placed on a DAL, parallel to the
longest dimension of the DAL, and may not appear on the item it
accompanies. The DAL must contain the recipient's delivery address and
the mailer's return address. A ZIP+4 code or 5-digit ZIP Code is
required unless an alternative address format is used. The delivery
address may include the correct delivery point barcode.
2.3 Ratio
Only one DAL may be prepared for each accompanying item, and only
one item may be identified for delivery per DAL (i.e., one DAL may not
be prepared to deliver with one each of multiple different accompanying
items or with multiples of the same item).
2.4 Required Information
The following words must appear in bold type at least 1/8 inch high
on the front of each DAL: ``USPS regulations require that this address
label be delivered with its accompanying postage-paid mail. If you
should receive this label without its accompanying mail, please notify
your local postmaster.'' The title or brand name of the item (which may
include an illustration of the item) must also appear on the front or
back of the DAL to associate it with the accompanying item.
2.5 Other Information
Nothing may appear on the front of a DAL except the information
described above, an indicium of postage payment, and official pictures
and data circulated by the National Center for Missing and Exploited
Children. Ancillary service endorsements are not permitted;
undeliverable material is treated under 4.0.
3.0 PREPARING THE MAILING
3.1 Notice to Delivery Office
Each delivery office to receive a DAL mailing must be notified in
writing at least 10 days in advance of the requested delivery period.
To ensure that the delivery office can readily relate the notice to the
cartons containing the corresponding items, a copy of that letter must
be enclosed with the DALs unless the initial notice and the cartons
used for the DALs and items each conspicuously bears a mailing
identification number. The letter must show the following:
a. Name and telephone number of mailer or representative.
b. Origin post office of mailing.
c. Expected mailing date.
d. Description of mailing.
e. Number of addressees for each 5-digit ZIP Code.
f. Number of DALs per carton or package.
g. Number of items per carton or package.
h. Expected delivery period (range of dates).
i. Requested action in the event of excess or undeliverable DALs or
items (see 4.0).
3.2 DALs
The DALs must be presorted, counted, and packed by 5-digit ZIP Code
delivery area. Only DALs for the same 5-digit area may be placed in the
same carton. DAL mailings claimed at carrier route or walk-sequence
rates must be further prepared under the corresponding standards.
Different size cartons may be used in the same mailing, but each must
be filled with dunnage as necessary to ensure that the DALs retain
their integrity while in transit. Each carton of DALs must bear a label
showing the information in 3.5 unless a mailing identification number
is used (see 3.1). Multiple containers of DALs must be numbered
sequentially (1 of ____, 2 of ____, etc.).
3.3 Items
The items to be distributed with the DALs must be placed in cartons
or prepared in packages placed in sacks, as appropriate for the type of
item and subject to the standards applicable to the rate claimed. A
label bearing the content description information in 3.5 must be
affixed to each carton, sacked package, or pallet unless a mailing
identification number is used (see 3.1). Cartons of items (including
those on pallets) may be of different sizes but must be filled with
dunnage as necessary to ensure the integrity of the items while in
transit. The gross weight of each carton or sack must not be more than
40 pounds.
3.4 Combined Cartons
Both the DALs and the accompanying items may be enclosed in the
same carton when sent to a small-volume 5-digit ZIP Code area. If
packed together, the following standards apply:
a. The DALs must be packaged and labeled under 3.2 and placed on
top of the items.
b. The carton must be packed with dunnage to ensure the integrity
of the contents while in transit.
c. The gross weight of the carton must not exceed 40 pounds.
d. The exterior of the carton must be labeled under 3.5 and marked
``DALs ENCLOSED'' in letters not less than \1/2\ inch high.
3.5 Label Information
Sacks, cartons, and pallets of DAL mail must be labeled under the
preparation standards applicable to the rate claimed. A second label
must be affixed to each carton or sacked package to provide the
following information (unless a mailing identification number is used
under 3.1):
a. Delivery post office name and 5-digit ZIP Code delivery area.
b. Title, brand name, or other description of the items.
c. Name and telephone number of the mailer or representative.
d. Number of labels or items in the carton, as applicable.
e. Instructions to open and distribute either the DALs with
matching items or the items with matching DALs, as appropriate.
3.6 Use of Equipment
Cartons, packages of flats, and sacks of items may be palletized
under the applicable standards; cartons of DALs must be palletized with
the corresponding items under the same standards. The USPS plant
manager at whose facility a DAL mailing is deposited may authorize
other types of equipment for the portion of the mailing to be delivered
in that plant's service area.
3.7 Bound Printed Matter
Bound printed matter distributed with DALs must be deposited at the
acceptance point specified by the postmaster. Local zone rates are
available, subject to G030.
3.8 Mailing Statement
The mailer must complete and provide the appropriate mailing
statement with each mailing.
4.0 DISPOSITION OF EXCESS OR UNDELIVERABLE MATERIAL
4.1 Excess Material
The letter required under 3.1 must either request that the delivery
office contact the mailer (or representative) about excess DALs or
items, or provide instructions for their treatment. (If the mailer does
not provide information about excess DALs or items, such material is
disposed of as waste by the USPS.) The mailer must choose one of the
following options for each DAL mailing and the items:
a. Dispose of any excess material as waste.
b. Return the excess material to the mailer, postage due at the
applicable single-piece rate under 5.0.
c. Hold the excess material for pickup by the mailer (or
representative); if pickup is not made within 15 calendar days of the
notice to the mailer, the material is returned to the mailer postage
due.
d. Hold the excess material while additional DALs or items are
supplied (as applicable); if additional material is not supplied within
15 days of the notice to the mailer, the excess material is returned to
the mailer postage due. Additional material must be sent prepaid to the
delivery post office as First-Class Mail, Priority Mail, or Express
Mail.
4.2 Undeliverable-as-Addressed DALs
DALs with incorrect, nonexistent, or otherwise undeliverable
addresses are handled under F010. The accompanying item is treated as
specified by the mailer under 4.1.
5.0 POSTAGE
5.1 Available Rates
DAL mailings are not eligible for any automation rate, but they may
qualify for carrier route or walk-sequence rates subject to the
applicable standards.
5.2 Initial Distribution
Postage is computed based on the weight of the entire mailpiece
(i.e., combined weight of the item and the accompanying DAL). If the
number of DALs and items mailed is not identical, the ``number of
pieces'' used to determine postage is the greater of the two; no
postage refund is allowed in these situations. The total weight of the
mailing excludes the weight of the cartons used to carry the DALs or
items, dunnage, and carton labels. In addition, these methods of
postage payment apply:
a. Second-class flats must be prepaid. A notice of entry must
appear in the upper right corner of the DAL.
b. Third-class flats and samples and fourth-class bound printed
matter must be paid by permit imprint, which must appear on each DAL.
Third-class postage is computed at the applicable nonletter rates.
5.3 Returns
Postage for excess or undeliverable DALs or items being returned is
computed at the single-piece third- or fourth-class rate applicable to
the combined weight of the DAL and the accompanying item, regardless of
whether both are being returned. The total amount due for returned
material, which includes the return postage and the applicable address-
correction fee for each DAL or item returned, is collected upon the
material's return to the mailer.
5.4 Additional Items
Additional material (DALs or items) being supplied under 4.1d must
be mailed with postage prepaid as First-Class Mail, Priority Mail, or
Express Mail, subject to the eligibility standards applicable to the
rate claimed and the conditions in 5.2.
A transmittal letter making these changes in the pages of the
Domestic Mail Manual will be published and will be transmitted to
subscribers automatically. Notice of issuance will be published in the
Federal Register as provided by 39 CFR 111.3.
Stanley F. Mires,
Chief Counsel, Legislative.
[FR Doc. 94-22735 Filed 9-13-94; 8:45 am]
BILLING CODE 7710-12-P