POSTAL REGULATORY COMMISSION

Annual Compliance 

Determination Report

Fiscal Year 2017

March 29, 2018

Postal Regulatory Commission

Submitted 3/29/2018 11:52:01 AM

Filing ID: 104398

Accepted 3/29/2018
TABLE OF CONTENTS

Page

EXECUTIVE SUMMARY.......................................................................................................................................1

A. Principal Findings: Market Dominant Rate and Fee Compliance ..........................1

B. Principal Findings: Market Dominant Noncompensatory Products ....................2

C. Principal Findings: Competitive Products Rate and Fee Compliance..................2

D. Principal Findings: Service Performance and Customer Access............................3

E. Principal Findings: Flats Cost and Service Issues ........................................................3

CHAPTER 1: INTRODUCTION...........................................................................................................................5

A. Statutory Context......................................................................................................................5

B. Timeline and Review of Report...........................................................................................6

C. Focus of the ACR .......................................................................................................................6

D. Other Reports.............................................................................................................................6

E. Commission Responsibilities...............................................................................................6

F. Procedural History...................................................................................................................7

G. Methodology Changes.............................................................................................................7

1. Calculation of Incremental Costs at the Class Level for Market 

Dominant Products....................................................................................................8

2. Calculation of Attributable Costs for Domestic Negotiated Service 

Agreements (NSAs)................................................................................................ 10

H. Attributable Costs in FY 2017 ACD................................................................................. 12

I. Product Analysis .................................................................................................................... 12

J. Service Performance ............................................................................................................ 12

K. Confidentiality ........................................................................................................................ 12

L. Requests for Additional Information............................................................................. 13

CHAPTER 2: MARKET DOMINANT PRODUCTS: PRICING REQUIREMENTS .............................. 14

A. Introduction............................................................................................................................. 14

B. The Class-Level Price Cap................................................................................................... 14

C. Workshare Discounts........................................................................................................... 14

1. First-Class Mail......................................................................................................... 15

2. Periodicals.................................................................................................................. 19

3. USPS Marketing Mail.............................................................................................. 24

4. Package Services...................................................................................................... 38

D. Preferred Rate Requirements........................................................................................... 42

CHAPTER 3: MARKET DOMINANT PRODUCTS: OTHER RATE AND FEE COMPLIANCE 

ISSUES .................................................................................................................................................................... 44

A. Introduction............................................................................................................................. 44
- ii -

B. Noncompensatory Products.............................................................................................. 44

1. Periodicals.................................................................................................................. 44

2. USPS Marketing Mail Flats................................................................................... 51

3. USPS Marketing Mail Parcels.............................................................................. 60

4. Stamp Fulfillment Services.................................................................................. 63

5. Money Orders ........................................................................................................... 64

6. Market Dominant International Mail .............................................................. 65

7. Market Dominant International Products Consisting of NSAs .............. 73

8. Media Mail/Library Mail ...................................................................................... 75

9. Domestic Market Dominant NSAs .................................................................... 76

C. Other Issues ............................................................................................................................. 78

1. First-Class Mail Product Cost Coverage Disparity...................................... 78

2. First-Class Mail Volume Decline........................................................................ 79

3. First-Class Mail Cost Avoidance Models......................................................... 80

CHAPTER 4: COMPETITIVE PRODUCTS ................................................................................................... 81

A. Introduction............................................................................................................................. 81

B. Cross-Subsidy Provision: 39 U.S.C. § 3633(a)(1)...................................................... 81

C. Product Cost Coverage Provision: 39 U.S.C. § 3633(a)(2)..................................... 82

1. Competitive Domestic Products with Rates of General Applicability. 83

2. Competitive Domestic Products Consisting of NSAs ................................. 83

3. Competitive International Products with Rates of General 

Applicability .............................................................................................................. 85

4. Competitive International Products Consisting of NSAs ......................... 88

5. Competitive Nonpostal Services........................................................................ 92

D. Appropriate Contribution Provision: 39 U.S.C. § 3633(a)(3)............................... 92

E. Other Issues ............................................................................................................................. 93

1. Other Issues Raised By Commenters............................................................... 93

2. Palletized Priority Mail Open and Distribute ............................................... 95

CHAPTER 5: SERVICE PERFORMANCE ..................................................................................................... 96

A. Service Performance Results ............................................................................................ 96

1. Introduction .............................................................................................................. 96

2. Measurement Systems .......................................................................................... 97

3. The Postal Service’s Responses to the Directives Related to First-Class 

Mail Single-Piece Letters/Postcards..............................................................107

4. FY 2017 Service Performance Results by Class.........................................143

5. Other Issues.............................................................................................................160

B. Customer Access ..................................................................................................................162

1. Introduction ............................................................................................................162
- iii -

2. Retail Facilities.......................................................................................................162

3. Post Office Suspensions ......................................................................................163

4. Delivery Points.......................................................................................................166

5. Collection Boxes.....................................................................................................167

6. Wait Time in Line..................................................................................................168

7. Alternative Access.................................................................................................169

C. Customer Satisfaction with Market Dominant Products .....................................170

1. Background .............................................................................................................170

2. Comments ................................................................................................................172

3. Commission Analysis...........................................................................................173

CHAPTER 6: FLATS COST AND SERVICE ISSUES.................................................................................174

A. Introduction...........................................................................................................................174

B. FY 2017 Results....................................................................................................................174

1. Bundle Processing.................................................................................................175

2. Low Productivity on Automation Equipment............................................176

3. Manual Sorting .......................................................................................................178

4. Productivity and Service Issues in Allied Operations .............................178

5. Increased Transportation Time and Cost....................................................179

6. Last mile/delivery.................................................................................................180

C. Comments...............................................................................................................................181

D. Status of Docket No. RM2018-1.....................................................................................182

Appendix A—Special Study of Delivery Performance in Remote Locations

Appendix B—Key Commission Findings and Directives Requiring Postal Service Action for 

Annual Compliance Reports

Appendix C—Commenters 2017 Annual Compliance Determination

Appendix D—Acronyms and Abbreviations
EXECUTIVE SUMMARY

This report reviews the Postal Service’s performance in Fiscal Year (FY) 2017, fulfilling the 

Commission’s responsibility to produce an annual assessment of Postal Service rates and 

service mandated by Title 39, section 3653, of the United States Code. It is based on 

information the Postal Service is required to provide within 90 days after the close of the 

fiscal year and on comments subsequently received from the public. Specific Commission 

findings and directives are identified in italics in each chapter.

Consistent with the approach adopted in past years, the Annual Compliance Determination

(ACD) focuses on compliance issues as defined in 39 U.S.C. §§ 3653(b)(1) and (b)(2). These 

statutory subsections require the Commission to make determinations on whether any 

rates and fees in effect during FY 2017 were not in compliance with chapter 36 of Title 

39 of the United States Code and whether any service standards in effect during FY 2017 

were not met. The Commission’s review in this year’s ACD is based on the rates approved 

in Docket No. R2017-1 and all the rates in effect during FY 2017 for Competitive Products.

The financial analysis that had been incorporated in ACDs prior to 2013 is expanded in the 

Financial Analysis of United States Postal Service Financial Results and 10-K Statement 2017. 

The Commission will also issue a separate report on the Postal Service’s FY 2017 Annual 

Performance Report and FY 2018 Performance Plan to fulfill its statutory responsibilities 

under 39 U.S.C. § 3653(c).

A. Principal Findings: Market Dominant Rate 

and Fee Compliance

In Chapter 2, the Commission identifies compliance issues related to 42 workshare 

discounts, finding that 20 of the discounts did not comply with section 3622(e). Workshare 

discounts that exceed avoided costs adversely affect Postal Service finances because they 

incentivize mailers to perform worksharing that the Postal Service could have done on a 

less costly basis.

 For 7 of the 20 workshare discounts that were not in compliance with section 3622(e), 

the prices approved in Docket No. R2018-1 align the discounts with avoided costs or 

eliminate the discount; therefore, no further action is required.

 For the 13 workshare discounts remaining out of compliance with section 3622(e), the 

Postal Service must either align workshare discounts with avoided costs in the next 

Market Dominant price adjustment or specify an applicable statutory exception.

Additionally, for the Periodicals class, the Commission finds that the Postal Service 

meaningfully addressed the FY 2016 ACD directives to report on the cost and contribution 

impact of worksharing and progress in improving pricing efficiency. The Commission 
Docket No. ACR2017 - 2 -

directs the Postal Service to continue reporting on Periodicals pricing issues in its FY 2018 

Annual Compliance Report (ACR).

B. Principal Findings: Market Dominant 

Noncompensatory Products

In Chapter 3, the Commission identifies 10 noncompensatory Market Dominant products: 

Periodicals In-County, Periodicals Outside County, Standard Flats, Standard Parcels, Media 

Mail/Library Mail, Inbound Letter Post, Stamp Fulfillment Services, Money Orders, 

International Ancillary Services, Inbound Market Dominant PRIME Tracked Service 

Agreement, and the Market Dominant negotiated service agreement (NSA) with PHI 

Acquisitions, Inc. (PHI).

With respect to Periodicals In-County, Periodicals Outside County, and Standard Mail Flats, 

the Commission finds that additional transparency is necessary to hold the Postal Service 

accountable. The Commission will continue to explore cost and service issues related to 

flats in Docket No. RM2018-1.

For the Special Services products Money Orders and Stamp Fulfillment Services, the 

Commission finds that revenue was not sufficient to cover attributable cost in FY 2017. The 

Postal Service must investigate the accuracy of the costing methods for Money Orders.

For Inbound Letter Post, the Commission recommends that the Postal Service continue to 

pursue compensatory Universal Postal Union (UPU) terminal dues and pursue bilateral 

agreements with foreign postal operators that result in an improved financial position for 

the Postal Service. The Postal Service is also directed to provide an update on its collection 

of accurate shape-based costing data.

For the PHI NSA, the Commission finds that the PHI NSA did not meet the criteria of 

39 U.S.C. § 3622(c)(10)(A) in contract year 2. The Postal Service suspended the agreement 

during contract year 3. If the Postal Service provides the Commission with an amended 

contract, such filing shall include an estimate of the total contract net financial 

contribution. If an amended contract is not in effect by June 30, 2018, the PHI NSA will 

remain suspended.

For the remaining noncompensatory products, the Commission finds that the Postal 

Service is taking appropriate steps to improve cost coverage.

C. Principal Findings: Competitive Products 

Rate and Fee Compliance

In Chapter 4, the Commission finds that revenues for 7 Competitive products did not cover 

attributable costs and, therefore, did not comply with 39 U.S.C. § 3633(a)(2). The 
Docket No. ACR2017 - 3 -

Competitive products that did not cover attributable costs are: four domestic NSAs, 

International Money Transfer Service—Outbound (IMTS—Outbound), International Money 

Transfer Service—Inbound (IMTS—Inbound), and International Ancillary Services. The 

Commission directs the Postal Service to take corrective action, including reporting on an 

investigation of cost estimates, reporting on the status of contract negotiations, and seeking 

authority to terminate or renegotiate agreements.

D. Principal Findings: Service Performance 

and Customer Access

In Chapter 5, the Commission finds that FY 2017 service performance results improved for 

a majority of products compared to FY 2016 results. Despite these improvements, most 

products failed to meet their service performance targets for FY 2017. 

 The Postal Service met its service performance targets for USPS Marketing Mail High 

Density and Saturation Letters, USPS Marketing Mail Carrier Route, USPS Marketing 

Mail Letters, USPS Marketing Mail Parcels, Bound Printed Matter Parcels, Media 

Mail/Library Mail, and most Special Services products.

 Service performance results for all First-Class Mail products, both Periodicals 

products, USPS Marketing Mail High Density and Saturation Flats/Parcels, USPS 

Marketing Mail Flats, USPS Marketing Mail Every Door Direct Mail—Retail, Bound 

Printed Matter Flats, and Post Office Box Service did not meet their targets.

In the FY 2016 ACD, the Commission directed the Postal Service to provide specific 

information on First-Class Mail Single-Piece Letters/Postcards metrics as part of its FY 

2017 ACR. The Postal Service’s data and its robust narrative responses improve visibility 

into service performance and the Postal Service’s remediation strategy. Moreover, these 

data, provided consistently year over year, may increase the accuracy of evaluating what 

actions contribute to improving service performance results and the relative significance of 

those actions and improvements.

The Commission directs the Postal Service to continue reporting specific information on 

First-Class Mail Single-Piece Letters/Postcards metrics within 90 days of the issuance of 

this report and as part of its FY 2018 ACR.

E. Principal Findings: Flats Cost and Service 

Issues

In Chapter 6, the Commission finds that the Postal Service does not have a comprehensive 

plan to measure, track, and report flats cost and service issues. Given the continued decline 

of cost coverage, and service performance issues, the Commission finds additional 

transparency is necessary in these areas to hold the Postal Service accountable. Due to the 

Postal Service’s inability to provide a plan using existing data (or data to be developed) to 
Docket No. ACR2017 - 4 -

address systemic and long-standing cost and service issues related to flats processing, the 

Commission initiated a strategic rulemaking to develop proposed reporting requirements 

related to flats operational cost and service issues.1 Using the information provided by the 

Postal Service regarding its data systems and soliciting comments from interested parties, 

the Commission will develop potential data enhancements and consistent reporting 

requirements that will be used to develop metrics to measure, track, and report the cost 

and service performance issues concerning flats. The Commission anticipates that the data 

enhancement and consistent reporting will lead to the development of measurable goals to 

decrease the costs and improve the service of flats

 

1

Docket No. RM2018-1, Advance Notice of Proposed Rulemaking to Develop Data Enhancements and Reporting Requirements for Flats Issues, 

October 4, 2017 (Order No. 4142).
Docket No. ACR2017 - 5 -

CHAPTER 1: INTRODUCTION

A. Statutory Context

Two sections of Title 39 of the United States Code (U.S.C.), as amended by the Postal 

Accountability and Enhancement Act (PAEA),2 require ongoing, systematic reports and 

assessments of the financial and operational performance of the Postal Service. The first 

provision, 39 U.S.C. § 3652, requires the Postal Service to file certain annual reports with 

the Commission, including an ACR. See 39 U.S.C. § 3652(a). The second provision, 39 U.S.C. 

§ 3653, requires the Commission to review the Postal Service’s annual reports and issue an 

Annual Compliance Determination (ACD) regarding whether rates were not in compliance 

with applicable provisions of Title 39 and whether any service standards were not met. 39 

U.S.C. § 3653(b). Together, these provisions establish the ACR and the ACD as integrated 

mechanisms for providing ongoing accountability, transparency, and oversight of the Postal 

Service.

The Commission has once again decided to report separately on the Postal Service’s 

financial condition and its performance plans and program performance.3 It will issue both 

its financial analysis and its analysis of the performance plans and program performance, 

required by 39 U.S.C. § 3653(d), in the second quarter of 2018. This ACD focuses on the 

requirements of 39 U.S.C. § 3653(b)(1) and (b)(2).4

For regulations governing rates and fees, Congress divided mail categories and services 

between Market Dominant and Competitive products. Sections 3622 and 3626 of Title 39 

pertain to rates and fees for Market Dominant products; section 3633 pertains to 

Competitive products.

In Chapter 2, the Commission evaluates the workshare discounts for Market Dominant 

products to determine compliance with 39 U.S.C. § 3622(e). Chapter 2 also includes a 

discussion about preferred rate requirements and the price cap. Chapter 3 focuses on other 

compliance issues related to Market Dominant products’ rates and fees. Chapter 4 covers 

compliance issues related to the rates and fees of Competitive products. In Chapter 5, the 

Commission discusses service performance, customer access, and customer satisfaction.

Chapter 6 contains a follow-up discussion of the Commission’s directives in the FY 2015 

ACD regarding cost and service issues for flat-shaped mailpieces (flats).

 

2

Pub. L. 109-435, 120 Stat. 3198 (2006).

3

See Notice Regarding the Postal Service FY 2017 Annual Performance Report and FY 2018 Annual Performance Plan, January 3, 2018 (Order 

No. 4334).

4

The Commission addresses only rates and fees that have been challenged by Commenters, or otherwise present compliance issues.
Docket No. ACR2017 - 6 -

There are four appendices to this ACD. Appendix A contains the Commission evaluation of 

the special study of delivery performance in remote locations. Appendix B provides the 

status of Commission-directed actions from past ACDs and new Commission-directed 

undertakings in this ACD. Appendix C contains a list of Commenters. Appendix D contains 

an index of acronyms and abbreviations.

B. Timeline and Review of Report

The Postal Service must file the ACR no later than 90 days after the end of each fiscal year. 

(i.e., 90 days after September 30). The Commission must complete the ACD within 90 days 

of receiving the ACR. The Postal Service filed the FY 2017 ACR on December 29, 2017; thus, 

the Commission must issue this ACD no later than March 29, 2018.

C. Focus of the ACR

In accordance with 39 U.S.C. § 3652, the ACR must provide analyses of costs, revenues, 

rates, and quality of service sufficient to demonstrate that during the reporting year all 

products complied with all applicable requirements of Title 39. Additionally, for Market 

Dominant products, the Postal Service must include product information, mail volumes, 

and measures of quality of service, including the speed of delivery, reliability, and the levels 

of customer satisfaction. For Market Dominant products with workshare discounts, the 

Postal Service must report the per-item cost it avoided through the worksharing activity 

performed by the mailer, the percentage of the per-item cost avoided that the workshare 

discount represents, and the per-item contribution to institutional costs. 39 U.S.C. 

§ 3652(b).

D. Other Reports

In conjunction with filing the ACR, the Postal Service must also file its most recent 

Comprehensive Statement on Postal Operations, its FY 2018 Performance Plan, and its FY 

2017 Performance Report. 39 U.S.C. § 3652(g).

E. Commission Responsibilities

Upon receipt of the ACR, the Commission provides an opportunity for public comment on 

the Postal Service’s submissions. 39 U.S.C. § 3653(a). The Commission is responsible for 

making a written determination as to whether any rates or fees were not in compliance 

with applicable provisions of chapter 36 of Title 39 or related regulations, and whether any 

service standards were not met. 39 U.S.C. § 3653(b). If the Commission makes a timely 

written determination of non-compliance, it is required to take such action as it deems 

appropriate. 39 U.S.C. § 3653(c).
Docket No. ACR2017 - 7 -

F. Procedural History

On December 29, 2017, the Postal Service filed its FY 2017 ACR, covering the period from 

October 1, 2016, through September 30, 2017.5 The ACR included an extensive narrative 

and a substantial amount of detailed public and non-public information contained in 

library references. The library references include the Cost and Revenue Analysis (CRA), the 

International Cost and Revenue Analysis (ICRA), cost models supporting workshare 

discounts, and volume information presented in billing determinants. The library 

references also include the Postal Service’s “Roadmap Document” to the FY 2017 ACR, 

which contains a list of special studies and a discussion of obsolescence in accordance with 

39 C.F.R. § 3050.12.6

The Postal Service concurrently filed its 2017 Annual Report and Comprehensive Statement 

on Postal Operations as part of Library Reference USPS–FY17–17, December 29, 2017, to the 

FY 2017 ACR.7

On January 2, 2018, the Commission issued an order establishing Docket No. ACR2017 to 

consider the ACR, appointing a Public Representative to represent the interests of the 

general public, and establishing February 1, 2018, and February 12, 2018, as the deadlines 

for comments and reply comments, respectively.8

G. Methodology Changes

The FY 2017 ACR generally employs the methodologies used most recently by the 

Commission unless the Commission has approved a change in methodology.9 In this ACR 

proceeding, the Postal Service relies upon four approved methodology changes.10

 

5

FY 2017 Annual Compliance Report, December 29, 2017 (FY 2017 ACR). The Postal Service made two other filings that revise the FY 2017 ACR 

and selected Library References. United States Postal Service Notice of Filing Revised Appendix 2 to Attachment 2 -- Errata, January 12, 2018; 

Notice of the United States Postal Service of Filing of Revised Version of USPS-FY17-NP31 -- Errata, February 6, 2018; Unless otherwise noted, 

references to the Postal Service’s FY 2017 ACR are to its ACR as revised.

6

Library Reference USPS–FY17–9, December 29, 2017.

7

2017 Annual Report and Comprehensive Statement of Postal Operations, December 29, 2017. The Postal Service includes as parts of Library 

Reference USPS–FY17–17 the FY 2017 Annual Performance Report and its FY 2018 Performance Plan.

8

Notice of Postal Service's Filing of Annual Compliance Report and Request for Public Comments, January 2, 2018 (Order No. 4323); see also 83 

FR 839 (January 8, 2018). On January 31, 2018, the Commission extended the comment deadlines for comments related to the Inbound Letter 

Post product. See Order Modifying the Procedural Schedule, January 31, 2018, at 3 (Order No. 4395). On January 3, 2018, the Commission 

established separate comment dates for the Postal Service’s FY 2017 Performance Report and FY 2018 Performance Plan. See Order No. 4334.

9

See FY 2017 ACR at 4-6.

10 Library Reference USPS–FY16–9, December 29, 2017. See Docket No. RM2017-5, Order on Analytical Principles Used in Periodic Reporting 

(Proposal One), August 15, 2017 (Order No. 4039); Docket No. RM2017-6, Order on Analytical Principles Used in Periodic Reporting (Proposal 

Two), August 29, 2017 (Order No. 4080); Docket No. RM2017-7, Order on Analytical Principles Used in Periodic Reporting (Proposal Three), 

August 24, 2017, (Order No. 4066); Docket No. RM2017-8, Order on Analytical Principles Used in Periodic Reporting (Proposal Four), December 

1, 2017 (Order No. 4259).
Docket No. ACR2017 - 8 -

1. Calculation of Incremental Costs at the Class 

Level for Market Dominant Products

The Postal Service implements a methodological change in the FY 2017 ACR involving the 

use of incremental costs as attributable costs.11 In September 2016, the Commission 

adopted the analytical principle of using incremental costs12 as the basis for class-level and 

product-level attributable costs.13 Prior to that time, attributable costs were based on 

volume-variable and product-specific costs.14 Fiscal Year 2017 is the first year for which 

this new methodological approach is fully applied.

In the CRA filed as part of the FY 2017 ACR, the Postal Service calculates incremental costs

for each class of Market Dominant mail by determining the sum of the incremental costs for 

each individual product within that class.15 The Public Representative expresses concerns 

with this methodology.

The Public Representative asserts that the total incremental costs for a class of mail does 

not equal the sum of the individual incremental costs of each product within that class.16

This is due to the way in which “‘the total amount of the cost driver associated with the 

volume of the entire group is removed [when] calculating the aggregate group incremental 

costs.’”17 The Public Representative notes that the methodology employed in the CRA 

differs from the methodology employed in the Postal Service’s FY 2017 Market Dominant 

Product Incremental Costs report, which calculates incremental costs at both the product 

level and the class level.18 The Public Representative calculates that the methodology 

employed in the CRA understates incremental costs for Market Dominant mail by 

approximately $23.6 million. Id. at 46, Table IV-7. As a result, the Public Representative 

asserts that the Postal Service’s methodology for calculating attributable and institutional 

costs should be modified so that it is based on class-level incremental costs, and not the 

sum of all incremental costs for individual products within each class. Id. at 45-47.

 

11 FY 2017 ACR at 4-6.

12 The incremental costs of a product or class are the costs that the Postal Service would avoid if it did not provide that product or class. See

Docket No. RM2016-2, Order Concerning United Parcel Service, Inc.’s Proposed Changes to Postal Service Costing Methodologies (UPS 

Proposals One, Two, and Three), September 9, 2016, at 8, 55, 61-62 (Order No. 3506). Notice of Errata, October 19, 2016. This docket is 

currently before the D.C. Circuit Court. See Petition for Review, United Parcel Service, Inc. v. Postal Regulatory Commission, No. 16-1354 (D.C. 

Cir. Oct 7, 2016).

13 Id. at 3, 55, 125.

14 Id. at 9-10. “Volume-variable” costs are those which exhibit reliably-identified causal relationships to one or more specific products and which 

increase or decrease depending on the level of mail volume processed. “Product-specific” costs are fixed costs which are uniquely associated 

with an individual product and hence can be attributed solely to that product. Id. at 9.

15 Library Reference USPS–FY17–1, FY 2017 Public Cost and Revenue Analysis (PCRA) Report, December 29, 2017.

16 Public Representative Comments, February 1, 2018, at 45 (PR Comments) (footnote omitted).

17 Id. (citing Library Reference USPS–FY17–43 Preface.pdf, n.7 at 4; Docket No. R2000-1, Kay Testimony at 19).

18 Id. (citing Library Reference USPS–FY17–43, FY 2017 Market Dominant Product Incremental Costs, December 29, 2017 at 1).
Docket No. ACR2017 - 9 -

The Postal Service acknowledges that the sum of the individual incremental costs of all 

products in a class will generally be less than the group incremental costs for that class.19

However, the Postal Service maintains that “for the distinct regulatory concept of 

attributable costs, the approach taken in the FY 2017 ACR makes the most sense because it 

accords with the Commission’s focus on product-level compliance.”20 The Postal Service

asserts that “[t]he cost presentation in the FY 2017 ACR represents a simple, intuitive, 

direct, and tractable approach to incorporating the inframarginal cost component into the 

estimation of attributable costs.”21 Id. at 11-12 (footnote omitted).

The Commission agrees with the Public Representative that incremental costs are subadditive, meaning that the sum of product-level incremental costs for the various products 

within a mail class will be less than the class-level incremental costs calculated as a group. 

This is because certain costs may exist which are incurred by a class collectively, but not by 

any individual product within that class. 

The Postal Service is correct that the ACR generally focuses on product-level compliance 

for the purpose of cost coverage, particularly for Market Dominant mail.22 However, the 

PAEA does not mandate a focus on product-level compliance in every context. For example, 

Competitive products collectively must not be subsidized by Market Dominant mail and 

services, and Competitive products collectively must contribute an appropriate share to the 

Postal Service’s institutional cost.23 Both of these tests for compliance must be performed 

at a level above the product level. Similarly, for purposes of calculating class-level 

incremental costs for Market Dominant mail, the attributable costs for a class should be 

reported as the incremental costs of that class. 

Institutional costs are those costs that are not attributable costs, and are equal to the 

difference between total and attributable costs. Because the choice of aggregation level for 

calculating incremental costs affects the total amount of costs that are attributable, it also 

affects the calculation of institutional costs. This choice also affects the dollar amount of the 

appropriate share Competitive products must contribute to institutional costs.24 For 

purposes of calculating institutional costs, incremental costs should be calculated at the 

highest level of aggregation for which they can be estimated reliably.25 This ensures that 

 

19 Reply Comments of the United States Postal Service, February 12, 2018, at 11 (Postal Service Reply Comments).

20 Id. (footnote omitted) (citing 39 U.S.C. § 3652(a)(1)).

21 Inframarginal costs are variable costs that are not volume-variable, resulting from economies of scale and scope.

22 See 39 U.S.C. § 3652(a)(1) (“[T]he Postal Service shall . . . prepare and submit . . . a report . . . to demonstrate that all products during such 

year complied with all applicable requirements of this title . . . .” (emphasis added)).

23 See 39 U.S.C. § 3633(a)(1), (3).

24 See 39 U.S.C. § 3633(a)(3) (the Commission must ensure that Competitive products collectively cover what the Commission determines to be 

an appropriate share of the institutional costs of the Postal Service).

25 The constant elasticity assumption is necessary for calculating incremental costs, and is only reliable at certain levels of cost driver. See Order 

No. 3506 at 41-42.
Docket No. ACR2017 - 10 -

institutional costs exclude all attributable costs. Institutional costs, then, should constitute 

the difference between total cost and the sum of the following:

1. The sum of the incremental costs of each Market Dominant mail class 

calculated at the class level;

2. The incremental costs of Competitive products collectively;

3. The incremental costs of Market Dominant Special Services;26

4. The incremental costs of free mail;27

5. Market Dominant international mail incremental costs; and28

6. Inframarginal costs for international mail collectively.29

The mechanics and results of this calculation are reported in Library Reference PRC–

ACR2017–LR1.

For its FY 2018 ACR filing, the Commission directs the Postal Service to reconcile the 

difference in methodology in calculating total attributable costs between the Incremental 

Costs Report and the CRA by including incremental costs at the class level in the CRA. The 

Commission also directs the Postal Service to report the component-level total and 

institutional costs in the Incremental Costs Report.

2. Calculation of Attributable Costs for Domestic 

Negotiated Service Agreements (NSAs)

The Public Representative also expresses concerns with the methodology used by the 

Postal Service to calculate attributable costs for Market Dominant and Competitive NSAs.30

Specifically, the Public Representative asserts that when product-level data are not 

available with which to estimate incremental costs for individual NSA products, the Postal 

Service is forced to employ assumptions. Id. at 62-63. In particular, the Postal Service must 

approximate an NSA’s share of the cost driver incurred by its larger product group (e.g., the 

amount of a cost driver incurred by a Priority Mail NSA relative to Priority Mail 

collectively). Id. at 63. In order to accomplish this, the Postal Service uses the “‘ratio of NSAproduct volume variable cost to product-group volume variable cost within each cost 

pool.’”31

 

26 The incremental cost model does not calculate costs for each Market Dominant Special Service; rather, adjustments are made after the 

incremental cost model to incorporate those special services for which direct incremental costs are unavailable (e.g., Stamp Fulfillment 

Services, Credit Card Authentication).

27 Because free mail matter for the blind or other physically handicapped persons is not associated with a particular class, its incremental costs 

are calculated separately.

28 Because International Mail costs are calculated at the Market Dominant/Competitive level, its Market Dominant incremental costs are 

included separately. Competitive incremental costs are included within Competitive product incremental costs.

29 Inframarginal costs for international mail are costs incurred by international mail collectively.

30 PR Comments at 62-64.

31 Id. at 63 (citing Library Reference USPS–FY17–43, PDF file “Preface.pdf,” FY 2017 Market Dominant Product Incremental Costs, Appendix A, 

December 29, 2017, at 5-6 (USPS–FY17–43 Preface, Appendix A).
Docket No. ACR2017 - 11 -

However, the Public Representative’s analysis shows that the vast majority of the Postal 

Service’s NSA cost coverage calculations do not include inframarginal costs as part of 

incremental costs when determining attributable costs. Id. For the NSAs with inframarginal 

cost estimates, the Public Representative notes that those costs constitute up to 0.2 percent 

of those agreement’s total attributable costs.32 The Public Representative asserts that the 

absence of inframarginal costs from the majority of NSAs raises concerns regarding the 

approximation method employed by the Postal Service to calculate the incremental cost of 

these products. Id. She states that for different individual NSA products within a single NSA 

product group, volume-variable costs may vary significantly. Id. Consequently, within NSA 

product groups that contain a significant number of NSAs, an NSA with relatively low 

volume-variable costs might have an inadequately low or even zero ratio for calculating 

incremental costs. Id. The Public Representative recommends that the Postal Service open a 

rulemaking docket in order to clarify the methodology for calculating incremental costs for 

domestic NSAs. Id. at 64.

The Postal Service asserts that the Public Representative appears to “misunderstand” its 

methodology for developing incremental costs. Postal Service Reply Comments at 13. 

Specifically, the Postal Service states that the Public Representative “do[es] not properly 

distinguish between the unique features of the approximation method and the procedures 

common to incremental cost estimation more broadly.” Id. By way of example, the Postal 

Service cites the Public Representative’s characterization of the “assumption that ‘the cost 

per unit driver is the same for all units of the driver consumed’” as being unique to NSA 

cost approximation, when in reality, according to the Postal Service, this assumption is 

generally embedded into the established incremental cost estimation methodology. Id. In 

addition, the Postal Service asserts that the Public Representative “do[es] not appear to 

distinguish between empirical results potentially caused by the approximation method, 

and empirical results that would not change even if resort[ing] to the approximation 

method were unnecessary.” Id. In particular, the Postal Service maintains that “the 

circumstance of small NSAs having extremely low (to the point of being negligible) shares 

of costs is correctly a function of their relative size, and would necessarily pertain whether 

the approximation method is used or if instead actual NSA product data were available at 

the cost pool level.” Id. at 13-14.

The Commission provisionally accepts the Postal Service’s estimates of domestic NSA 

attributable costs for purposes of the instant docket. The Commission finds, however, that the 

Postal Service’s estimate of domestic NSA attributable costs employs a new methodology, and 

directs the Postal Service to file a petition for the initiation of a proceeding to consider 

proposed changes in analytical principles for the new methodology within 90 days of issuance 

of this ACD.

 

32 Id. (citing Library Reference USPS–FY17–NP27, Excel file “NSA_Cost_Revenue_Summary_FY17.xlsx,” tab “NSA2017 – DomesticSP –

Summary”).
Docket No. ACR2017 - 12 -

H. Attributable Costs in FY 2017 ACD

The FY 2016 ACR utilized an expanded scope of attributable costs, in accordance with 

Order No. 3506. In the FY 2017 ACR, the Commission will again use incremental costs as its 

calculations of attributable costs, and will use incremental costs in determining cost 

coverage compliance.

I. Product Analysis

The Postal Service provides an analysis of each Market Dominant product, including special 

services, and domestic and international NSAs active during FY 2017. This analysis 

includes a discussion of workshare discounts and passthroughs for Market Dominant 

products, required by 39 U.S.C. § 3652(b). The Postal Service also provides data for 

Competitive products and discusses the data with references to standards under 39 U.S.C. § 

3633 and 39 C.F.R. § 3015.7. Last, the Postal Service discusses two Competitive market 

tests conducted in FY 2017.33

In addition, the Commission posts the most current workshare cost avoidance models on 

its website. Those models were used in its preparation of this ACD.

J. Service Performance

The ACR also included information regarding service performance, customer satisfaction, 

and consumer access, as required under 39 U.S.C. § 3652(a)(2) and 39 C.F.R. § 3055.

K. Confidentiality

Commission rules require the Postal Service, when it files non-public materials with the 

Commission, to simultaneously file an application for non-public treatment. 39 C.F.R. § 

3007.20. The application for non-public treatment must clearly identify all non-public 

materials and fulfill the burden of persuasion that the materials should be withheld from 

the public by showing that the information is commercially sensitive and by identifying the 

nature, extent, and likelihood of commercial harm that would result from disclosure. The 

ACR included such an application with respect to certain Competitive and international 

Market Dominant products.

 

33 FY 2017 ACR at 75.
Docket No. ACR2017 - 13 -

L. Requests for Additional Information

Twenty-two Chairman’s Information Requests (CHIRs) were issued with respect to the ACR 

from January 5, 2018, to February 27, 2018. The Postal Service responded to the CHIRs, 

often filing supplemental information in support of the responses.34

 

34 Several of the Postal Service’s CHIR responses were accompanied by motions requesting late acceptance. E.g., Motion of the United States 

Postal Service for Late Acceptance of Response to Questions 15 of Chairman’s Information Request No. 9, February 6, 2018. Each of the Postal 

Service’s motions for late acceptance is granted.
Docket No. ACR2017 - 14 -

CHAPTER 2: MARKET DOMINANT 

PRODUCTS: PRICING REQUIREMENTS

A. Introduction

The PAEA introduced three pricing requirements for Market Dominant products: a 

class-level price cap based upon changes in the consumer price index for all urban 

consumers (CPI-U), 39 U.S.C. § 3622(d)(2)(A), a cap on workshare discounts, id. 

§ 3622(e)(2), and a cap on preferred rates, id. § 3626 (a)(4)-(7). Chapter 2 discusses these 

requirements.

B. The Class-Level Price Cap

The Commission approved price adjustments that went into effect during FY 2017, which 

complied with the price cap provision.35 39 C.F. R. § 3010.23.

C. Workshare Discounts

Workshare discounts provide reduced prices for mail that is prepared or entered in a 

manner that avoids certain activities the Postal Service would otherwise have to perform. 

These discounts are based on the estimated avoided costs that result from the mailer 

performing the activity instead of the Postal Service. 39 U.S.C. § 3622(e)(2) directs the 

Commission to ensure that workshare discounts do not exceed the costs the Postal Service 

avoids as a result of the worksharing activity. The statute provides four exceptions to this 

requirement. See 39 U.S.C. §§ 3622(e)(2)(A) through (D).

Both the Public Representative and PostCom comment on the Postal Service’s calculation of 

avoided costs. PR Comments at 53-55; PostCom Comments at 3-6. The Public 

Representative states that the timing of rate adjustments can be such that updated avoided 

costs information is unavailable for several months. PR Comments at 53-54. The Public 

Representative also suggests that the Commission require the Postal Service to provide 

updated cost avoidance data in future market dominant rate adjustment proceedings in 

order to reduce the number of noncompliant passthroughs that happen when discounts are 

set based on prior year ACD data. Id. at 53-56. The Postal Service states that this 

proposition is unfeasible. Postal Service Reply Comments at 7-8.

 

35 Docket No. R2017-1, Order on Price Adjustments for First-Class Mail, Standard Mail, Periodicals, and Package Services Products and Related 

Mail Classification Changes, November 15, 2016 (Order No. 3610); Docket No. R2017-1, Order on Price Adjustments for Special Services 

Products and Related Mail Classification Changes, December 15, 2016 (Order No. 3670). 
Docket No. ACR2017 - 15 -

PostCom states that “vagaries and variability in avoided costs cast doubt on whether the 

changes enacted by R2018-1 will result in more efficient processing of mail.” PostCom 

Comments at 4. PostCom states that 39 U.S.C. § 3622(e) does not impose an absolute 

requirement that no passthroughs exceed 100 percent, and that encouraging the Postal 

Service to reduce passthroughs encourages it to make inefficient pricing decisions. Id. at 5. 

PostCom suggests that passthroughs exceeding 100 percent should be considered against 

passthroughs less than 100 percent. Id. at 6. PostCom suggests that by requiring 

justification for passthroughs above 100 percent causes the Postal Service “to err on the 

side of reducing passthroughs well below 100%,” reducing the Postal Service’s ability to set 

efficient prices. Id. at 7. PostCom also expresses concern that the Commission has 

previously encouraged the Postal Service to reduce discounts set above avoided costs that 

are justified under the operational efficiency exception. Id. at 6.

The Commission analyzes discounts to determine whether they comply with applicable 

statutory provisions. Section 3653(b)(1) of U.S.C. Title 39 requires the Commission to base 

its determinations on rates and fees “in effect” during FY 2017. The prices in effect in 

FY 2017 were the prices approved in Docket No. R2015-4 (through January 21, 2017) and 

R2017-1 (after January 21, 2017). The discounts evaluated for compliance are the Docket 

No. R2017-1 prices. Workshare discounts that were not greater than the associated 

avoided costs were in compliance for FY 2017.36 Although passthroughs below 100 percent 

are lawful, they send inefficient pricing signals to mailers. Passthroughs set as close as 

possible to 100 percent promote pricing efficiency, lower the total combined costs for 

mailers and the Postal Service, and encourage the retention and growth of the Postal 

Service’s most profitable products. In instances where the Commission finds that discounts 

set above avoided costs are nonetheless lawful because they promote operational 

efficiency (39 U.S.C. § 3622(e)(D)), the Commission encourages the reduction of those 

discounts to promote pricing efficiency. If the operational efficiency results in cost savings 

to the Postal Service, the Postal Service should quantify the impact of the operational 

efficiency in its cost avoidance models.

The sections below review, for each class of mail, workshare discounts that are greater 

than the avoided costs associated with the discounts.

1. First-Class Mail

Five First-Class Mail workshare discounts exceeded the avoided costs of the corresponding 

mailer worksharing activity in FY 2017. These five workshare discounts are in the 

Presorted Letters/Cards and Flats products.

 

36 The workshare discount divided by the avoided costs and expressed as a percentage is referred to as the passthrough. Passthroughs above 

100 percent indicate discounts that are greater than avoided costs. Passthroughs below 100 percent indicate discounts that are below avoided 

costs.
Docket No. ACR2017 - 16 -

a. Presorted Letters/Cards

The following four workshare discounts for Presorted Letters/Cards exceeded avoided 

costs in FY 2017:

 Automation automated area distribution center (AADC) Letters

 Automation Mixed AADC Cards

 Automation AADC Cards

 Automation 5-Digit Cards

Each is discussed below. All remaining discounts offered for Presorted Letters/Cards were 

less than avoided costs and were thus consistent with 39 U.S.C. § 3622(e) in FY 2017. Table 

II-1 shows the discounts for the Presorted Letters/Cards product for FY 2017.

Table II-1

First-Class Presorted Letters/Cards

Workshare Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

First-Class Mail Automation Letters: Barcoding & Presorting

Automation Mixed AADC Letters (Metered Letters) 3.7 6.8 54.4%

Automation AADC Letters (Automation Mixed AADC Letters) 2.0 1.7 117.6%

Automation 3-Digit Letters (Automation AADC Letters) 0.0 0.6 0.0%

Automation 5-Digit Letters (Hybrid Automation AADC/3-Digit 

Letters) 3.0 3.2 93.8%

First-Class Mail Non-automation Letters: Barcoding

Non-automation Presort Letters (Metered Letters) 0.7 8.1 14.8%

First-Class Mail Automation Cards: Barcoding & Presorting

Automation Mixed AADC Cards (Non-automation Presort Cards) 1.0 0.7 142.9%

Automation AADC Cards (Automation Mixed AADC Cards) 0.8 0.6 133.3%

Automation 3-Digit Cards (Automation AADC Cards) 0.0 0.1 0.0%

Automation 5-Digit Cards (Hybrid Automation AADC/3-Digit Cards) 1.3 1.1 118.2%

Source: Library Reference PRC–LR–ACR2017/3.

(1) Automation AADC Letters

In FY 2017, the passthrough for Automation AADC Letters was 117.6 percent. FY 2017 ACR 

at 10. The Postal Service does not provide a statutory justification for this excessive 
Docket No. ACR2017 - 17 -

passthrough. The Postal Service states that it reduced the discount to 1.6 cents in Docket 

No. R2018-1. Id. The Postal Service states that when the Docket No. R2018-1 prices go into 

effect the passthrough will be 94.1 percent. The Public Representative states that this 

passthrough was not in compliance, but because the discount established in Docket No. 

R2018-1 reduces the passthrough to 100 percent or lower, no further action is necessary. 

PR Comments at 51.

The Commission finds that the discount for Automation AADC Letters was not in compliance 

in FY 2017. Due to the discount approved in Docket No. R2018-1, the Commission finds that no 

further action is required for the Automation AADC Letters discount. 

(2) Automation Mixed AADC Cards, Automation AADC 

Cards, and 5-Digit Automation Cards

In FY 2017, the passthroughs for Automation Mixed AADC Cards, Automation AADC Cards, 

and 5-Digit Automation Cards were 142.9 percent, 133.3 percent, and 118.2 percent, 

respectively. FY 2017 ACR at 10, 11. The Postal Service does not provide statutory 

justifications for these excessive passthroughs. The Postal Service states that it reduced 

these discounts in Docket No. R2018-1. Id. The Postal Service reports that when the Docket 

No. R2018-1 prices go into effect the passthroughs will be 85.7 percent, 100.0 percent, and 

100.0 percent, respectively. Id. The Public Representative states that these passthroughs 

were not in compliance, but because the discounts established in Docket No. R2018-1 

reduce the passthroughs to 100 percent or lower, no further action is necessary. PR 

Comments at 51.

The Commission finds that the Automation Mixed AADC Cards, Automation AADC Cards, and 

5-Digit Automation Cards discounts were not in compliance in FY 2017. Due to the discounts 

approved in Docket No. R2018-1, the Commission finds that no further action is required for 

the Automation Mixed AADC Cards, Automation AADC Cards, and 5-Digit Automation Cards

discounts.

b. First-Class Mail Flats

The following workshare discount for First-Class Mail Flats exceeded avoided costs in FY 

2017:

 Automation 5-Digit Flats

This discount is discussed below. All remaining discounts offered for Flats were less than 

avoided costs and were thus consistent with 39 U.S.C. § 3622(e) in FY 2017. Table II-2 

shows the discounts for the Flats product for FY 2017.
Docket No. ACR2017 - 18 -

Table II-2

First-Class Mail Flats

Workshare Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

First-Class Mail Automation Flats: Barcoding & Presorting

Automation ADC Flats (Automation Mixed ADC Flats) 8.0 9.2 87.0%

Automation 3-Digit Flats (Automation ADC Flats) 4.0 5.1 78.4%

Automation 5-Digit Flats (Automation 3-Digit Flats) 18.4 14.2 129.6%

Source: Library Reference PRC–LR–ACR2017/3.

Automation 5-Digit Flats. In FY 2017, the passthrough for Automation 5-Digit Flats was 

129.6 percent. FY 2017 ACR at 11. The Postal Service does not provide a statutory 

justification for this excessive passthrough. The Postal Service states that it reduced the 

discount in Docket No. R2018-1. Id. The Postal Service states that when the Docket No. 

R2018-1 prices go into effect, the passthrough will be 83.8 percent. Id. The Public 

Representative states that this passthrough was not in compliance, but because the 

discount established in Docket No. R2018-1 reduces the passthrough to 100 percent or 

lower, no further action is necessary. PR Comments at 51.

The Commission finds that the Automation 5-Digit Flats discount was not in compliance in FY 

2017. Due to the discount approved in Docket No. R2018-1, the Commission finds that no 

further action is required for the Automation 5-Digit Flats discount.

c. Single Piece Letters/Cards

No workshare discounts for Single Piece Letters/Cards exceeded avoided costs and, 

therefore, all discounts were consistent with 39 U.S.C. § 3622(e) in FY 2017. Table II-3 

shows the discounts for the Single Piece Letters/Cards product for FY 2017.
Docket No. ACR2017 - 19 -

Table II-3

First-Class Single Piece Letters/Cards

Workshare Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

First-Class Mail Single Piece Letters: Qualified Business Reply Mail Barcoding

QBRM (Handwritten Reply Mail) 1.4 1.5 93.3%

First-Class Mail Single Piece Cards: Qualified Business Reply Mail Barcoding

QBRM (Handwritten Reply Cards) 1.4 1.5 93.3%

Source: Library Reference PRC–LR–ACR2017/3.

2. Periodicals

a. Fiscal Year 2017 Periodicals Workshare Discounts

(1) Passthroughs over 100 percent

Two In-County Periodicals workshare discounts and nine Outside County Periodicals 

workshare discounts exceeded the avoided costs of the corresponding mailer worksharing 

activity in FY 2017. Table II-4 identifies these 11 passthroughs.
Docket No. ACR2017 - 20 -

Table II-4

Periodicals Workshare Discounts Exceeding Avoided Costs37

Type of Worksharing

Year End 

Discount 

(Cents)

Unit Cost 

Avoidance 

(Cents)

Passthrough

Outside County

Presorting 

High Density 3.4 3.3 103.0%

Saturation 2.3 1.3 176.9%

Non-machinable Non-automation 3-Digit/SCF Flats 10.6 5.0 212.0%

Non-machinable Non-automation 5-Digit Flats 14.3 9.5 150.5%

Non-machinable Automation 3-Digit/SCF

Flats 8.8 4.5 195.6%

Non-machinable Automation 5-Digit Flats 13.8 9.6 143.8%

Presorting Automation Letters 

Automation ADC Letters 3.7 1.4 264.3%

Automation 3-Digit Letters 2.0 0.4 500.0%

Automation 5-Digit Letters 6.8 2.2 309.1%

In-County

Presorting

Saturation 1.4 1.3 107.7%

Presorting Automation Letters

Automation 3-Digit Letters 1.1 0.6 183.3%

Source: Library Reference PRC–LR–ACR2017/5.

Workshare discounts are allowed to exceed avoided costs if a statutory exception applies. 

See 39 U.S.C. § 3622(e). The Postal Service justifies Periodicals workshare discounts that 

exceeded 100 percent passthroughs on the basis of 39 U.S.C. § 3622(e)(2)(C), which 

authorizes workshare discounts greater than avoided costs if provided in connection with a 

subclass that consists exclusively of mail matter with educational, cultural, scientific, or 

informational (ECSI) value. FY 2017 ACR at 39.

(2) Commission Analysis

(i) Statutory Considerations for Passthroughs

Because the Periodicals class consists exclusively of ECSI mail, the Commission finds that 

the Periodicals workshare discounts that exceeded avoided costs in FY 2017 were 

 

37 The Periodicals pricing structure differs from the other Market Dominant classes, in that it includes piece, pound, bundle, and container 

elements. See Library Reference PRC–LR–ACR2017/5 for a comprehensive display of all Periodicals prices and worksharing relationships for 

FY 2017.
Docket No. ACR2017 - 21 -

consistent with 39 U.S.C. § 3622(e). Given that the Periodicals class does not cover costs, 

sending efficient price signals is particularly important. Although 39 U.S.C. § 3622(e) does 

not prohibit the Postal Service from offering workshare discounts with passthroughs that 

are less than 100 percent, other statutory requirements and objectives focus on sending 

efficient pricing signals to mailers. This concept is relevant to all passthroughs, including 

those that qualify for ECSI consideration. Generally, prices must “...enable the Postal 

Service, under best practices of honest, efficient, and economical management, to maintain 

and continue the development of postal services of the kind and quality adapted to the 

needs of the United States.” 39 U.S.C. § 404(b). Moreover, the Market Dominant ratemaking 

system is designed to achieve nine objectives, of which one is “[t]o maximize incentives to 

reduce costs and increase efficiency.” 39 U.S.C. § 3622(b)(1). Therefore, the Postal Service 

should, in all cases, consider whether such passthroughs send efficient pricing signals to 

mailers.

Inefficient pricing signals may contribute to Periodicals revenues not covering costs if the 

price does not incentivize mailers to prepare Periodicals mailings efficiently. However, as 

the Postal Service notes, for a specified discount, a sudden price change to bring 

passthroughs to 100 percent may not be prudent. Continued improvement of the 

relationship between discounts and avoided costs should signal to the mailer the mail 

preparation method that is most efficient for both the Postal Service and the mailer. The 

Commission emphasized in past ACDs that, as a general principle, passthroughs closer to 

100 percent would send better pricing signals to mailers and would increase contribution 

and cost savings to the Postal Service.38

In Docket No. R2015-4, the Postal Service improved the alignment of bundle and pallet 

price signals and costs.39 In Docket No. R2017-1, the Postal Service further improved the 

alignment of these price signals and costs.40 In addition, the Postal Service provided a 

greater incentive for mailers to enter additional Carrier Route bundles on Carrier Route 

pallets. Id. In Docket No. R2018-1, the Postal Service adjusted prices for sacks and trays to 

improve cost coverage, adjusted prices for bundles and pallets based on estimated bottomup costs, and increased the price difference between Carrier Route and Machinable 

Automation 5-Digit Flats to encourage preparation of more Carrier Route pieces.41 While 

the Commission notes that some improvements have been made, continued improvement 

of Periodicals pricing efficiency would maximize contribution (or in this case, minimize 

negative contribution) and cost savings.

 

38 See Docket No. ACR2009, Annual Compliance Determination, March 29, 2010, at 76 (FY 2009 ACD); Docket No. ACR2010, Annual Compliance 

Determination, March 29, 2011, at 96-97 (FY 2010 ACD); Docket No. ACR2011, Annual Compliance Determination, March 28, 2012, at 108-110 

(FY 2011 ACD); Docket No. ACR2012, Annual Compliance Determination, March 28, 2013, at 100-101 (FY 2012 ACD); Docket No. ACR2013, 

Annual Compliance Determination, March 27, 2014, at 21-23 (FY 2013 ACD); Docket No. ACR2014, Annual Compliance Determination, March 

27, 2015, at 14-16 (FY 2014 ACD); Docket No. ACR2015, Annual Compliance Determination, March 28, 2016, at 17-19 (FY 2015 ACD); Docket No. 

ACR2016, Annual Compliance Determination, March 28, 2017, at 18-20 (FY 2016 ACD).

39 Docket No. R2015-4, United States Postal Service Notice of Market-Dominant Price Adjustment, January 15, 2015, at 27-28.

40 Docket No. R2017-1, Response of United Postal Service to Questions 2 and 3 of Chairman’s Information Request No. 3, October 24, 2016, 

question 3.

41 Docket No. R2018-1, Notice of Market-Dominant Price Adjustment, October 6, 2017, at 23.
Docket No. ACR2017 - 22 -

(ii) Sending Efficient Pricing Signals

Since FY 2013, the Commission has highlighted the growing disparity between the Postal 

Service’s pricing signals that appear to encourage 5-Digit presortation and discourage 

Carrier Route presortation.42

Most Outside County Periodicals volume is presorted to Machinable Automation 5-Digit or 

Carrier Route Basic. Figure II-1 details changes in passthroughs for Carrier Route Basic and 

Machinable Automation 5-Digit piece presorting from FY 2008 to FY 2017.

Figure II-1

Carrier Route Basic and Machinable Automation 5-Digit Passthroughs

Source: Library Reference PRC–LR–ACR2016/5.

In the 10-year period between FY 2008 and FY 2017, the Machinable Automation 5-Digit 

passthrough has generally increased, whereas the Carrier Route Basic passthrough has 

markedly decreased.43 In FY 2017, the gap between the passthroughs for Machinable 

Automation 5-Digit and Carrier Route shrunk considerably. Both passthroughs are now 

under 100 percent. 

 

42 See FY 2013 ACD at 21, FY 2014 ACD at 15, FY 2015 ACD at 18, FY 2016 ACD at 19.

43 The price difference between Machinable Automation 5-Digit and Carrier Route Basic in FY 2017 was 10.7 cents. The price difference 

between Machinable Automation 5-Digit and Carrier Route Basic approved in Docket No. R2018-1 is 10.9 cents.
Docket No. ACR2017 - 23 -

However, prices that yield passthroughs closer to 100 percent would promote further 

Periodicals pricing efficiency. Discounts are most efficient when they are set to their 

corresponding avoided costs. Passthroughs set under 100 percent generally reflect a 

situation where the discount offered to mailers is less than the Postal Service’s avoided 

cost. A discount that is “too small” may be problematic if a mailer could perform the work 

at a lower cost than the Postal Service, but does not because the cost to the mailer for 

performing the work exceeds the amount of the discount.

b. Fiscal Year 2016 ACD Directives

In the FY 2016 ACD, the Commission directed the Postal Service to include an updated 

version of the FY 2016 ACD Periodicals Pricing Report in its FY 2017 ACR. The updated 

report was to include an analysis of how the removal of FSS pricing approved in Docket No. 

R2017-1 impacted the cost, contribution, and revenue of Periodicals in FY 2017 and 

whether the removal improved the efficiency of Periodicals pricing in FY 2017. FY 2016 

ACD at 22.

The Postal Serviced filed this updated report as Library Reference USPS–FY17–44, 

December 29, 2017, Update to Periodicals Pricing Report (Periodicals Pricing Report). 

Commission Analysis. In the Periodicals Pricing Report, the Postal Service discusses the two 

significant initiatives intended to improve Periodicals pricing: (1) the removal of FSS 

pricing, and (2) the significant reduction in the price of Carrier Route bundles on Carrier 

Route pallets. Periodicals Pricing Report at 3. 

The Postal Service states that the removal of FSS pricing delinked prices from operational 

decisions and increased incentives for greater mailing density. Id. It also contends that the 

reduction in the price of Carrier Route bundles on Carrier Route pallets encourages 

production of pallets that can bypass bundle sorting operations in the plant and reduces 

mail processing costs. Id. The Postal Service states that it is not feasible to isolate the 

impacts of these price changes from the multitude of other co-variates (e.g., mail 

preparation requirements, alternative delivery channels, or cost of production inputs). Id.

at 4.

The Postal Service provides, however, that it is possible to compare the preparation profile 

prior to the rate change and after the rate change. Id. The data provided by the Postal 

Service show that the proportion of mail arriving in containers that do not require plant 

bundle distribution increased by 2.2 percent after the rate change. Id. at 5. In addition, the 

proportion of mail arriving in finely presorted bundles increased by 1.14 percent after the 

rate change. Id. at 8.

The data provided by the Postal Service show that the mail processing cost per bundle and 

container decreased after the rate change, while the mail processing cost per piece 

increased, likely because of the expansion of zones processed on the FSS. Id. at 9. At the 

same time, the revenues per piece, bundle, and container decreased. Id. at 11. In total, the 
Docket No. ACR2017 - 24 -

decreases in revenue were greater than the decreases in costs; thus, Periodicals 

contribution deteriorated.

The Commission concludes that, on the whole, the Postal Service’s report meaningfully 

responds to the Commission’s directive. In the Periodicals Pricing Report, the Postal 

Service provided a robust narrative and workpapers containing quantitative analyses. By 

performing a quantitative analysis of changes in cost, contribution, and revenue after 

implementation of new prices, the Postal Service has begun to make progress in analyzing 

the pricing efficiency of Periodicals. Such analysis provides a useful tool for the Postal 

Service to more fully understand potential impacts of new prices on cost, revenue, and 

contribution. In future rate changes, such analysis can aid in increasing Periodicals pricing 

efficiency.

The Commission directs the Postal Service to include an updated version of the Periodicals 

Pricing Report in its FY 2018 ACR. The report must include an analysis of how the pricing in 

Docket No. R2018-1 impacted the cost, contribution, and revenue of Periodicals in FY 2018 

and whether the new pricing improved the efficiency of Periodicals pricing in FY 2018.

3. USPS Marketing Mail44

Twenty-two USPS Marketing Mail workshare discounts exceeded the avoided costs of the 

corresponding mailer workshare activity in FY 2017. These twenty-two workshare 

discounts are in the Letters, Flats, Parcels, Carrier Route, and High Density and Saturation 

Letters products.

a. Letters

The following seven workshare discounts for Letters exceeded avoided costs in FY 2017:

 Automation Mixed automated area distribution center (AADC) Letters

 Automation AADC Letters

 Non-automation AADC Machinable Letters

 Non-automation 3-Digit Non-machinable Letters

 Non-automation 5-Digit Non-machinable Letters

 Destination network distribution center (DNDC) dropship Letters

 Destination sectional center facility (DSCF) dropship Letters

Each is discussed below. All remaining discounts offered for Letters were less than or equal 

to avoided costs and were thus consistent with 39 U.S.C. § 3622(e) in FY 2017. Table II-5 

shows the discounts for the Letters product for FY 2017.

 

44 Standard Mail was renamed USPS Marketing Mail as of January 22, 2017. 
Docket No. ACR2017 - 25 -

Table II-5

USPS Marketing Mail Letters (Commercial and Nonprofit)45

Workshare Discounts and Benchmarks

Type of Worksharing 

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

USPS Marketing Mail Automation Letters: Barcoding (Cents/Piece)

Automation Mixed AADC Letters

(Non-automation Machinable Mixed ADC Letters) 1.3 0.1 1300.0%

USPS Marketing Mail Automation Letters: Presorting (Cents/Piece)

Automation AADC Letters (Automation Mixed AADC Letters) 1.7 1.4 121.4%

Automation 5-Digit Letters (Automation 3-Digit Letters) 2.0 2.5 80.0%

USPS Marketing Mail Non-automation Letters: Presorting (Cents/Piece)

Non-automation AADC Machinable Letters

(Non-automation Mixed AADC Machinable Letters) 1.7 1.6 106.3%

Non-automation ADC Non-machinable Letters 

(Non-automation Mixed ADC Non-machinable Letters) 7.3 7.3 100.0%

Non-automation 3-Digit Non-machinable Letters

(Non-automation ADC Non-machinable Letters) 2.5 2.2 113.6%

Non-automation 5-Digit Non-machinable Letters

(Non-automation 3-Digit Non-machinable Letters) 8.7 6.8 127.9%

USPS Marketing Mail Letters: Dropship (Cents/Piece)

DNDC Letters (Origin Letters) 2.6 1.7 152.9%

DSCF Letters (Origin Letters) 3.4 2.1 161.9%

Source: Library Reference PRC–LR–ACR2017/4. 

(1) Automation Mixed AADC Letters

The passthrough for Automation Mixed AADC Letters was 1300 percent in FY 2017, up 

from 800 percent in FY 2016. FY 2017 ACR at 17. The Postal Service explains that this 

increase was due to the unit cost avoidance decreasing from 0.2 cents to 0.1 cents. See id.

The Postal Service justifies this excessive passthrough pursuant to 39 U.S.C. 

§ 3622(e)(2)(D), asserting that the barcoding discount encourages mailers to provide 

Intelligent Mail barcodes (IMbs) on their mailpieces, thereby improving operational 

efficiency. Id. Despite the Postal Service’s commitment to eliminate the portion of the 

discount above avoided costs in its FY 2016 ACR, the Postal Service left the discount 

 

45 In FY 2017, all USPS Marketing Mail Letters commercial and nonprofit discounts were equal.
Docket No. ACR2017 - 26 -

unchanged at 1.3 cents in Docket No. R2018-1.46 The Postal Service states that it will 

conduct a reevaluation of its barcoding strategies due to the shrinking cost avoidance of 

basic IMb barcoding relative to Full Service Intelligent Mail.47

The Public Representative agrees that this excessive passthrough is justified pursuant to 39 

U.S.C § 3622(e)(2)(D). PR Comments at 50. PostCom states that encouraging the Postal 

Service to reduce this discount would discourage mailers from using IMbs, thereby 

reducing the operational efficiency of the Postal Service. PostCom Comments at 5-6.

The Commission finds that the excessive discount for Automation Mixed AADC Letters was 

adequately justified pursuant to 39 U.S.C. § 3622(e)(2)(D) in FY 2017. However, the 

Commission finds that the Postal Service is not making any progress towards reducing this 

passthrough, which is 1200 percentage points above 100 percent. The Postal Service must 

provide a plan to move the passthrough toward 100 percent, within 90 days of the issuance of 

this ACD. In addition, the Commission directs the Postal Service to provide a status report that 

details the outcome of its reevaluation of barcoding strategies, and the impact of any 

improvements on the Automation Mixed AADC Letters discount, within 90 days of the issuance 

of this ACD.

(2) Automation AADC Letters

In FY 2017, Automation AADC Letters had a passthrough of 121.4 percent. FY 2017 ACR

at 16. The Postal Service notes this passthrough drops significantly using the discount from 

Docket No. R2018-1. Id. In Docket No. R2018-1, the Postal Service reduced the Automation 

AADC Letters discount to 1.3 cents. Id. The Postal Service asserts that using Docket No. 

R2018-1 prices the passthrough drops to 92.9 percent, warranting no further action. Id. at 

16-17.

The Public Representative asserts that this excessive passthrough was out of compliance 

with Section 3622(e)(2) based on discounts and avoided costs filed in the FY 2017 ACR. PR 

Comments at 51. However, she agrees with the Postal Service that this passthrough 

complies with Section 3622(e)(2) using Docket No. R2018-1 discounts. Id. PostCom 

acknowledges there has been volatility in cost avoidance for this rate category in FY 2015, 

FY 2016, and FY 2017, and questions the efficiency of the discount, but does not address 

compliance. PostCom Comments at 4. 

The Commission finds that this discount was not in compliance in FY 2017. Due to the 

discount approved in Docket No. R2018-1, the Commission finds that no further action is 

required for the Automation AADC Letters discount.

 

46 See Docket No. ACR2016, Annual Compliance Report, December 29, 2016, at 39 (FY 2016 ACR); Docket No. R2018-1, Order on Price 

Adjustments for First-Class Mail, USPS Marketing Mail, Periodicals, Package Services, and Special Services Products and Related Mail 

Classification Changes, November 9, 2017, at 43 (Order No. 4215).

47 Responses of the United States Postal Service to Questions 1-15 of Chairman’s Information Request No. 3, January 19, 2018, question 2 

(Responses to CHIR No. 3).
Docket No. ACR2017 - 27 -

(3) Non-automation AADC Machinable Letters

In FY 2017, Non-automation AADC Machinable Letters had a passthrough of 106.3 percent. 

FY 2017 ACR at 17. The Postal Service explains this passthrough has decreased to below 

100 percent using prices from Docket No. R2018-1. Id. In Docket No. R2018-1, the Postal 

Service reduced the Non-automation AADC Machinable Letters discount from 1.7 cents to 

1.3 cents. Id. The Postal Service states that the passthrough drops to 81.3 percent using 

Docket No. R2018-1 prices, warranting no further action. Id. at 17.

The Public Representative asserts that this excessive passthrough was out of compliance 

with Section 3622(e)(2). PR Comments at 51. Id. However, she agrees with the Postal 

Service that this passthrough complies with Section 3622(e)(2) using the Docket No. 

R2018-1 discount. Id. PostCom acknowledges cost avoidance for this discount has 

fluctuated and states that it is not clear that reducing the discount in Docket No. R2018-1 

has resulted in more efficient pricing. PostCom Comments at 4-5. 

The Commission finds that this discount was not in compliance in FY 2017. Due to the 

discount approved in Docket No. R2018-1, the Commission finds that no further action is 

required for the Non-automation AADC Machinable Letters discount.

(4) Non-automation 3-Digit Non-machinable Letters and 

Non-automation 5-Digit Non-machinable Letters

The discounts for Non-automation 3-Digit Non-machinable Letters and Non-automation 5-

Digit Non-machinable Letters had passthroughs of 113.6 percent and 127.9 percent, 

respectively in FY 2017. FY 2017 ACR at 17-18. In Docket No. R2018-1, the Postal Service 

reduced these discounts by 0.2 cents for Non-automation 3-digit Non-machinable Letters 

and 1.6 cents for Non-automation 5-Digit Non-machinable Letters. Id. In Docket No. R2018-

1, both discounts were set at or below 100 percent using FY 2016 avoided costs. Order No. 

4215 at 39. However, in FY 2017, unit avoided costs increased. Using Docket No. R2018-1 

prices and FY 2017 unit avoided costs, these passthroughs remain above 100 percent. The 

Postal Service states that it intends to align these discounts with avoided costs in the next 

Market Dominant price adjustment, or cite a statutory exception. FY 2017 ACR at 17-18.

The Public Representative asserts that these excessive passthroughs are not justified and 

recommends the excessive discounts be phased out in the next Market Dominant price 

adjustment. PR Comments at 53. 

The Commission finds that these discounts were not in compliance in FY 2017. The Postal 

Service must either align the Non-automation 3-Digit Non-machinable Letters and the Nonautomation 5-Digit Non-machinable Letters discounts with avoided costs during the next 

general Market Dominant price adjustment, or provide support for an applicable statutory 

exception.

(5) DNDC and DSCF Dropship Letters

In FY 2017, the passthroughs for DNDC dropship and DSCF dropship were 152.9 percent 

and 161.9 percent, respectively. FY 2017 ACR at 16. The Postal Service justifies these 
Docket No. ACR2017 - 28 -

excessive discounts pursuant to 39 U.S.C. § 3622(e)(2)(B). Id. In Docket No. R2018-1, the 

Postal Service reduced both of these passthroughs by at least 10 percentage points. Order 

No. 4215 at 40. The Postal Service states that it intends to reduce these passthroughs by at 

least 10 percentage points in the next Market Dominant price adjustment. FY 2017 ACR at 

16.

The Public Representative agrees that these excessive passthroughs are justified by 39 

U.S.C. § 3622(e)(2)(B). PR Comments at 50. She states that the Postal Service has fulfilled 

its promise to reduce these passthroughs as directed by the Commission in FY 2016 ACD. 

Id.

The Commission concludes that a substantial one-time reduction in the passthrough 

percentages would likely adversely affect users, and that the Postal Service took adequate 

steps in Docket No. R2018-1 to continue to phase out these excessive passthroughs. Thus, the 

Commission finds that these discounts were adequately justified pursuant to 39 U.S.C. 

§ 3622(e)(2)(B) in FY 2017. The Commission expects the Postal Service to align these 

discounts with avoided costs consistent with its plan. If the Postal Service deviates from its 

plan, it must provide a detailed analysis and explanation in support of that deviation.

b. USPS Marketing Mail Flats

One workshare discount for USPS Marketing Mail Flats exceeded avoided costs in FY 2017:

 Automation Mixed ADC Flats

All remaining discounts offered for USPS Marketing Mail Flats were less than or equal to 

avoided costs and thus were consistent with 39 U.S.C. § 3622(e). Table II-6 shows the 

discounts for the USPS Marketing Mail Flats product for FY 2017.
Docket No. ACR2017 - 29 -

Table II-6

USPS Marketing Mail Flats (Commercial and Nonprofit)48

Workshare Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

USPS Marketing Mail Automation Flats: Barcoding (Cents/Piece)

Automation Mixed ADC Flats (Non-automation Mixed AADC Flats) 3.8 2.0 190.0%

USPS Marketing Mail Automation Flats: Presorting (Cents/Piece)

Automation ADC Flats (Automation Mixed ADC Flats) 1.7 5.4 31.5%

Automation 3-Digit Flats (Automation ADC Flats) 5.5 7.6 72.4%

Automation 5-Digit Flats (Automation 3-Digit Flats) 9.1 13.0 70.0%

USPS Marketing Mail Non-automation Flats: Presorting (Cents/Piece)

Non-automation ADC Flats (Non-automation Mixed ADC Flats) 3.3 4.1 80.5%

Non-automation 3-Digit Flats (Non-automation ADC Flats) 5.1 5.6 91.1%

Non-automation 5-Digit Flats (Non-automation 3-Digit Flats) 6.9 10.1 68.3%

USPS Marketing Mail Flats: Dropship49 (Cents/Pound)

DNDC Flats (Origin Flats) 11.3 8.2 72.1%

DSCF Flats (Origin Flats) 13.2 10.9 83.0%

Source: Library Reference PRC–LR–ACR2017/4.

Automation Mixed ADC Flats. The passthrough for Automation Mixed ADC Flats was 190.0 

percent in FY 2017, down from 241.2 percent in FY 2016. FY 2017 ACR at 19. The Postal 

Service justifies this excessive passthrough pursuant to 39 U.S.C. § 3622(e)(2)(D). Id. The 

Postal Service explains that the discount encourages mailers to place IMbs on mailpieces, 

which improves operational efficiency. Id. Using the Docket No. R2018-1 discount, the 

passthrough is 180.0 percent. Id. The Postal Service states that it plans to conduct a 

fundamental reevaluation of its barcoding strategies. Id.

The Public Representative agrees that this excessive passthrough was justified under 39 

U.S.C. § 3622(e)(2)(D). PR Comments at 50. She states that the Postal Service has fulfilled 

 

48 In FY 2017, all USPS Marketing Mail Flats commercial and nonprofit discounts were equal.

49 Passthroughs for these discounts use unit discounts and unit avoided costs. Consistent with Order No. 4227, the passthroughs are calculated 

using the total avoided costs divided by total pounds and the total discounts given divided by total pounds. See Docket No. RM2017-11, Order 

on Analytical Principles Used in Periodic Reporting (Proposal Seven), November 20, 2017 (Order No. 4227).
Docket No. ACR2017 - 30 -

its promise to reduce these passthroughs as directed by the Commission in FY 2016 ACD. 

Id.

The Commission finds that the Automation Mixed ADC Flats discount was adequately justified 

pursuant to 39 U.S.C. § 3622(e)(2)(D) in FY 2017. The Postal Service should continue its FY 

2016 commitment to align the discount with avoided cost. In addition, the Commission directs 

the Postal Service to provide a status report that details the outcome of its reevaluation of 

barcoding strategies, and the impact of any improvements on the Automation Mixed ADC 

Flats discount, within 90 days of the issuance of this ACD.

c. Parcels

Three workshare discounts for Parcels exceeded avoided costs in FY 2017:

 Mixed NDC Machinable Barcoded Parcels

 Mixed NDC Irregular Barcoded Parcels

 Mixed NDC Barcoded Marketing Parcels

Each is discussed below. All remaining discounts offered for Parcels were less than avoided 

costs and thus were consistent with 39 U.S.C. § 3622(e). Table II-7 and Table II-8 show the 

discounts for the Parcels product for FY 2017.
Docket No. ACR2017 - 31 -

Table II-7

USPS Marketing Mail Parcels (Commercial and Nonprofit)50

Presort and Barcode Workshare Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

Nonprofit USPS Marketing Mail Parcels: Presorting (Cents/Piece)

NDC Machinable Parcels (Mixed NDC Machinable Parcels) 39.6 44.8 88.4%

5-Digit Machinable Parcels (NDC Machinable Parcels) 28.6 69.3 41.3%

NDC Irregular Parcels (Mixed NDC Irregular Parcels) 26.3 27.1 97.0%

SCF Irregular Parcels (NDC Irregular Parcels) 38.1 58.1 65.6%

5-Digit Irregular Parcels (SCF Irregular Parcels) 14.9 75.8 19.7%

Nonprofit USPS Marketing Mail Parcels: Barcoding (Cents/Piece) a

Mixed NDC Machinable Barcoded Parcels

(Mixed NDC Machinable Non-barcoded Parcels) 6.2 3.9 159.0%

Mixed NDC Irregular Barcoded Parcels

(Mixed NDC Irregular Non-barcoded Parcels) 6.2 3.9 159.0%

USPS Marketing Mail Parcels: Presorting (Cents/Piece)

NDC Marketing Parcels (Mixed NDC Marketing Parcels) 33.4 34.1 97.9%

SCF Marketing Parcels (NDC Marketing Parcels) 31.4 41.4 75.8%

5-Digit Marketing Parcels (SCF Marketing Parcels) 9.3 72.9 12.8%

USPS Marketing Mail Parcels: Barcoding (Cents/Piece)a

Mixed NDC Barcoded Marketing Parcels

(Mixed NDC Non-barcoded Marketing Parcels) 6.2 3.9 159.0%

a The Postal Service charges a surcharge for non-barcoded pieces.

Source: Library Reference PRC–LR–ACR2017/4.

 

50 In FY 2017, all commercial and nonprofit discounts for USPS Marketing Mail Marketing Parcels were equal. Machinable and Irregular USPS 

Marketing Mail Parcel prices are only offered to nonprofit mailers and do not have corresponding commercial prices.
Docket No. ACR2017 - 32 -

Table II-8

USPS Marketing Mail Parcels (Commercial and Nonprofit)

Dropship Workshare Discounts and Benchmarks51

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

Nonprofit USPS Marketing Mail Machinable Parcels: Dropship (Cents/Pound)

DNDC Machinable Parcels (Origin Machinable Parcels) 84.2 24.5 29.1%

DSCF Machinable Parcels (Origin Machinable Parcels) 100.6 49.3 49.0%

DDU Machinable Parcels (Origin Machinable Parcels) 117.1 70.6 60.3%

USPS Marketing Mail Marketing Parcels: Dropship (Cents/Pound)

DNDC Marketing Parcels (Origin Marketing Parcels) 84.2 25.6 30.4%

DSCF Marketing Parcels (Origin Marketing Parcels) 100.6 52.0 51.4%

DDU Marketing Parcels (Origin Marketing Parcels) 117.1 75.0 64.0%

Nonprofit USPS Marketing Mail Irregular Parcels: Dropship (Cents/Pound)

DNDC Irregular Parcels (Origin Irregular Parcels) 84.2 24.5 29.1%

DSCF Irregular Parcels (Origin Irregular Parcels) 100.6 49.3 49.0%

DDU Irregular Parcels (Origin Irregular Parcels) 117.1 70.6 60.3%

Source: Library Reference PRC–LR–ACR2017/4.

Mixed NDC Machinable Parcels, Mixed NDC Irregular Barcoded Parcels, and Mixed NDC 

Barcoded Marketing Parcels. Mixed NDC Machinable Barcoded Parcels, Mixed NDC Irregular 

Barcoded Parcels, and Mixed NDC Barcoded Marketing Parcels each had a passthrough of 

159.0 percent in FY 2017. FY 2017 ACR at 19. The Postal Service justifies these excessive 

passthroughs pursuant to 39 U.S.C. § 3622(e)(2)(D), stating that these discounts encourage 

mailers to pre-barcode, thereby increasing operational efficiency. Id. In Docket No. R2018-

1, the Postal Service reduced these passthroughs by at least 10 percentage points. Order 

No. 4215 at 43. The Postal Service states that it intends to continue to reduce these 

passthroughs by 10 percentage points in future Market Dominant price adjustments. FY 

2017 ACR at 20. The Postal Service also plans to reevaluate its barcoding strategies. Id. 

The Public Representative asserts that these excessive passthroughs were justified under 

39 U.S.C. § 3622(e)(2)(D). PR Comments at 50. She states that the Postal Service has 

 

51 Passthroughs for discounts in this table use unit discounts and unit avoided costs. Consistent with Order No. 4227, the passthroughs are 

calculated using the total avoided costs divided by total pounds and the total discounts given divided by total pounds. 
Docket No. ACR2017 - 33 -

fulfilled its promise to reduce these passthroughs as directed by the Commission in the FY 

2016 ACD. Id.

The Commission finds that these three discounts were adequately justified pursuant to 

39 U.S.C. § 3622(e)(2)(D) in FY 2017. The Commission expects the Postal Service to follow its 

plan to reduce passthroughs by at least 10 percentage points in future Market Dominant price 

adjustments. In addition, the Commission directs the Postal Service to provide a status report 

that details the outcome of its reevaluation of barcoding strategies, and the impact of any 

improvements on the Mixed NDC Machinable Barcoded Parcels, Mixed NDC Irregular 

Barcoded Parcels, and Mixed NDC Barcoded Marketing Parcels discounts, within 90 days of 

the issuance of this ACD.

d. Carrier Route

Seven workshare discounts for Carrier Route Letters and Flats exceeded avoided costs in 

FY 2017:

 DNDC dropship Letters

 DSCF dropship Letters

 Flat pieces on 5-Digit Carrier Route Pallets entered at origin

 Flat pieces on 5-Digit Carrier Route Pallets entered at DNDC

 Flat pieces on 5-Digit Carrier Route Pallets entered at DSCF

 Flat pieces on 5-Digit Carrier Route Pallets entered at DDU

 Commercial and Nonprofit Basic Carrier Route Flats dropshipped at DDU 

Each is discussed below. All remaining discounts offered for Carrier Route were less than 

avoided costs and thus were in compliance with 39 U.S.C. § 3622(e). Table II-9 shows the 

discounts for the Carrier Route product for FY 2017.
Docket No. ACR2017 - 34 -

Table II-9

USPS Marketing Mail Carrier Route (Commercial and Nonprofit)52

Dropship and Presort Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

USPS Marketing Mail Carrier Route Letters: Dropship (cents/piece)

DNDC Letters (Origin Letters) 3.0 1.7 176.5%

DSCF Letters (Origin Letters) 3.8 2.1 181.0%

USPS Marketing Mail Carrier Route Flats: Dropship (cents/pound)53

DNDC Flats (Origin Flats) 28.2 15.8 55.9%

DSCF Flats (Origin Flats) 31.1 20.1 64.7%

DDU Flats (Origin Flats) 35.4 37.9 107.2%

USPS Marketing Mail Carrier Route Flats: Presorting (cents/piece)

Origin Flats on 5-Digit Pallets (Other Origin Flats) 2.0 1.8 111.1%

DNDC Flats on 5-Digit Pallets (Other DNDC Flats) 2.0 1.8 111.1%

DSCF Flats on 5-Digit Pallets (Other DSCF Flats) 2.0 1.8 111.1%

DDU Flats on 5-Digit Pallets (Other DDU Flats) 2.0 1.8 111.1%

USPS Marketing Mail Carrier Route Flats: Dropship (cents/pound)54

DNDC Flats on 5-Digit Pallets (Origin Flats) 28.2 14.6 51.7%

DSCF Flats on 5-Digit Pallets (Origin Flats) 31.1 18.2 58.7%

DDU Flats on 5-Digit Pallets (Origin Flats) 35.4 23.3 65.8%

Source: Library Reference PRC–LR–ACR2017/4.

(1) Carrier Route Dropship DNDC and DSCF Letters

In FY 2017, passthroughs for Carrier Route Dropship DNDC and DSCF Letters were 176.5 

and 181.0 percent respectively. FY 2017 ACR at 20. The Postal Service justifies these 

excessive passthroughs pursuant to 39 U.S.C. § 3622(e)(2)(B). Id. at 21. In Docket No. 

R2018-1, the Postal Service reduced these passthroughs by at least 10 percentage points. 

Order No. 4215 at 43. The Postal Service states that it plans to reduce these passthroughs 

by at least 10 percentage points in the next Market Dominant price adjustment. FY 2017 

ACR at 21.

 

52 In FY 2017, all commercial and nonprofit discounts for USPS Marketing Mail Carrier Route products were equal.

53 Passthroughs for these discounts use unit discounts and unit avoided costs. Consistent with Order No. 4227, the passthroughs are calculated 

using the total avoided costs divided by total pounds and the total discounts given divided by total pounds. 

54 Passthroughs for these discounts use unit discounts and unit avoided costs. Consistent with Order No. 4227, the passthroughs are calculated 

using the total avoided costs divided by total pounds and the total discounts given divided by total pounds.
Docket No. ACR2017 - 35 -

The Public Representative asserts that these excessive passthroughs were justified under 

39 U.S.C. § 3622(e)(2)(D). PR Comments at 50. She states that the Postal Service has 

fulfilled its promise to reduce these passthroughs as directed by the Commission in the FY 

2016 ACD. Id.

The Commission finds that a substantial one-time reduction in the passthroughs would likely 

adversely affect users and that the Postal Service took adequate steps in Docket No. R2018-1 

to phase out these excessive passthroughs. Thus, the Commission finds that these discounts 

were adequately justified pursuant to 39 U.S.C. § 3622(e)(2)(B) in FY 2017. The Commission 

expects the Postal Service to align these discounts with avoided costs consistent with its plan.

If the Postal Service deviates from its plan, it must provide a detailed analysis and explanation 

in support of that deviation.

(2) Flat Pieces on 5-Digit Carrier Route Pallets Entered at 

Origin, DNDC, DSCF, and DDU

In FY 2017, the passthroughs for Carrier Route flats on 5-Digit pallets were 111.1 percent 

at each entry point. FY 2017 ACR at 21. In Docket No. R2018-1, the Postal Service reduced 

these discounts to result in passthroughs below 100 percent. Order No. 4215 at 43.

However, due to a reduction in the avoided costs in FY 2017, the Docket No. R2018-1 

discounts will result in passthroughs over 100 percent. Id. The Postal Service states that it 

intends to align these discounts with the latest cost avoidances in the next Market 

Dominant price adjustment. Id.

The Public Representative asserts that these passthroughs were not in compliance in FY 

2017. PR Comments at 52. She recommends the Postal Service realign these discounts with 

avoided costs or cite an appropriate statutory exception. Id. 

The Commission finds that these discounts were not in compliance in FY 2017. The Postal 

Service must either align the discounts for Carrier Route flats on 5-digit pallets entered at 

Origin, DNDC, DSCF, and DDU with their avoided costs during the next general Market 

Dominant price adjustment, or provide support for an applicable statutory exception.

(3) Commercial and Nonprofit Basic Carrier Route Flats 

Entered at DDU

In FY 2017, the passthrough for Commercial and Nonprofit Basic Carrier Route Flats was 

107.2 percent. FY 2017 ACR at 21. These passthroughs were calculated using the new 

methodology approved in Order No. 4227, taking into account both pound and piece rated 

discounts. Id. at 21-22. The previous methodology only included the pound-rated discount. 

Id. The Postal Service states that it intends to align these discounts with avoided costs in 

the next Market Dominant price adjustment. Id. at 22.

The Public Representative asserts that these passthroughs were not in compliance in FY 

2017. PR Comments at 52. She acknowledges that the new methodology approved in Order 

No. 4227 now factors in pound-rated per pound discounts and piece-rated per-piece 
Docket No. ACR2017 - 36 -

discounts. Id. at 52-53. She recommends the Postal Service realign these discounts with 

avoided costs or cite an appropriate statutory exception. Id. 

The Commission finds that this discount was not in compliance in FY 2017. The Postal Service 

must either align the discount for Commercial and Nonprofit Basic Carrier Route Flats 

Entered at DDU with its avoided costs during the next general Market Dominant price 

adjustment, or provide support for an applicable statutory exception.

e. High Density and Saturation Letters

Two workshare discounts for High Density and Saturation Letters exceeded avoided costs 

in FY 2017:

 DNDC dropship Letters

 DSCF dropship Letters

Each is discussed below. All remaining discounts offered for High Density and Saturation 

Letters were less than avoided costs and thus were consistent with 39 U.S.C. § 3622(e). 

Table II-10 shows the discounts for the High Density and Saturation Letters product for 

FY 2017.

Table II-10

USPS Marketing Mail High Density and Saturation Letters (Commercial and Nonprofit)55

Dropship and Presort Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

USPS Marketing Mail High Density Letters: Presort (cents/piece)

High Density Letters (Carrier Route) 9.1 41.8 21.8%

USPS Marketing Mail High Density Letters: Dropship (cents/piece)

DNDC Letters (Origin Letters) 2.4 1.7 141.2%

DSCF Letters (Origin Letters) 3.1 2.1 147.6%

Source: Library Reference PRC–LR–ACR2017/4.

In FY 2017, passthroughs for DNDC dropship Letters and DSCF dropship Letters were 

141.2 percent and 147.6 percent, respectively. FY 2017 ACR at 22. The Postal Service 

justifies these excessive passthroughs pursuant to 39 U.S.C. § 3622(e)(2)(B). Id. at 22-23. In 

Docket No. R2018-1, the Postal Service reduced these passthroughs by at least 10 

percentage points. Order No. 4215 at 43. The Postal Service states that it intends to reduce 

 

55 In FY 2017, all USPS Marketing Mail High Density and Saturation Letters commercial and nonprofit discounts were equal.
Docket No. ACR2017 - 37 -

these passthroughs by at least 10 percentage points in the next Market Dominant price 

adjustment. FY 2017 ACR at 23. 

The Public Representative agrees that these excessive passthroughs are properly justified 

under 39 U.S.C. § 3622(e)(2)(B). PR Comments at 49-50. She finds the Postal Service has 

fulfilled its promise to reduce these passthroughs as directed by the Commission in the FY 

2016 ACD. Id.

The Commission finds that a substantial one-time reduction in the passthroughs would likely 

adversely affect users and that the Postal Service took adequate steps in Docket No. R2018-1 

to phase out these excessive passthroughs. Thus, the Commission finds that these discounts 

were adequately justified pursuant to 39 U.S.C. § 3622(e)(2)(B) in FY 2017. The Commission 

expects the Postal Service to align discounts with avoided costs consistent with its plan. If the 

Postal Service deviates from its plan, it must provide a detailed analysis and explanation in 

support of that deviation.

f. High Density and Saturation Flats

Two workshare discounts for High Density and Saturation Flats exceeded avoided costs in 

FY 2017:

 DNDC High Density, High Density Plus, and Saturation Flats

 DSCF High Density, High Density Plus, and Saturation Flats

Each is discussed below. All remaining discounts offered for High Density and Saturation 

Flats were less than avoided costs and thus were consistent with 39 U.S.C. § 3622(e). Table 

II-11 shows the discounts for the High Density and Saturation Flats product for FY 2017.
Docket No. ACR2017 - 38 -

Table II-11

USPS Marketing Mail High Density and Saturation Flats (Commercial and Nonprofit)

Dropship and Presort Discounts and Benchmarks

Type of Worksharing

(Benchmark)

FY 2017

Year-End 

Discount

(Cents)

Unit Cost 

Avoidance

(Cents)

Passthrough

USPS Marketing Mail High Density Flats: Presort (cents/piece)

High Density Flats (Carrier Route) 4.2 6.3 66.7%

USPS Marketing Mail High Density, High Density Plus, and Saturation Flats 56

DNDC Flats (Origin Flats) 28.2 32.2 114.0%

DSCF Flats (Origin Flats) 31.1 38.8 124.7%

DDU Flats (Origin Flats) 35.4 34.5 97.6%

Source: Library Reference PRC–LR–ACR2017/4.

Commercial and Nonprofit High Density and Saturation DNDC and DSCF Flats. In FY 2017, 

passthroughs for High Density and Saturation DNDC and DSCF flats were 114.0 percent and 

124.7 percent, respectively. FY 2017 ACR at 23. Both passthroughs increased beyond 100 

percent due to the methodology change described in Order No. 4227. Id. The Postal Service 

states that it intends to reduce these passthroughs to 100 percent in the next Market 

Dominant price adjustment. Id.

The Public Representative asserts that these passthroughs were not in compliance in FY 

2017. PR Comments at 52. She acknowledges that the new methodology approved in Order 

No. 4227 now factors in pound-rated per-pound discounts and piece-rated per-piece 

discounts. Id. at 52-53. She recommends the Postal Service realign these discounts with 

avoided costs or cite an appropriate statutory exception. Id. 

The Commission finds that these discounts were not in compliance in FY 2017. The Postal 

Service must either align the discounts for Commercial and Nonprofit High Density and 

Saturation DNDC and DSCF Flats with their avoided costs during the next general Market 

Dominant price adjustment, or provide support for an applicable statutory exception.

4. Package Services

Four Package Services workshare discounts exceeded the avoided costs of the 

corresponding mailer worksharing activity in FY 2017. These four workshare discounts are 

in the Bound Printed Matter (BPM) Flats and BPM Parcels products.

 

56 Passthroughs for these discounts use unit discounts and unit avoided costs. Consistent with Order No. 4227, the passthroughs are calculated 

using the total avoided costs divided by total pounds and the total discounts given divided by total pounds. 
Docket No. ACR2017 - 39 -

a. Media Mail/Library Mail

The discounts for Media and Library Mail Basic presorting decreased by 52 and 50 percent, 

respectively since FY 2016. See FY 2016 ACD at 40. The combination of this reduction in 

discount and a 64 percent increase in avoided costs resulted in a decrease in the 

passthroughs from FY 2016 of over 75 percentage points for both discounts. See id. The 

Basic presorting discount for Media Mail and Library Mail had been over 100 percent since 

FY 2012 and declined to under 33 percent in FY 2017.

All discounts offered for Media Mail/Library Mail were less than avoided costs and were 

thus consistent with 39 U.S.C. § 3622(e) in FY 2017.

Table II-11 shows the FY 2017 discounts, avoided costs, and passthroughs for this product.

Table II-11

Media Mail/Library Mail

Workshare Discounts and Benchmarks

Type of Worksharing

FY 2017

Year-End 

Discount 

(cents)

Unit Cost 

Avoidance 

(cents)

Passthrough

Media Mail: Presorting (Cents/Piece)

 Basic (Single-Piece) 12.0 36.5 32.9%

 5-Digit (Basic) 69.0 157.6 43.8%

Library Mail: Presorting (Cents/Piece)

 Basic (Single-Piece) 12.0 36.5 32.9%

 5-Digit (Basic) 65.0 157.6 41.2%

Source: Library Reference PRC-LR-ACR2017/6.

b. Bound Printed Matter Flats and Bound Printed Matter 

Parcels

Four workshare discounts for BPM Flats and BPM Parcels exceeded avoided costs in FY 

2017:

 BPM Flats DNDC dropship

 BPM Flats DSCF dropship

 BPM Parcels DNDC dropship

 BPM Parcels DSCF dropship

Each is discussed below. All remaining discounts offered for BPM Flats and BPM Parcels 

were less than avoided costs and were thus consistent with 39 U.S.C. § 3622(e) in FY 2017. 
Docket No. ACR2017 - 40 -

Table II-12 and Table II-13 show the FY 2017 discounts, avoided costs, and passthroughs 

for the BPM Flats and BPM Parcel products in FY 2017.

Table II-12

Bound Printed Matter Flats

Workshare Discounts and Benchmarks

Type of Worksharing

FY 2017

Year-End 

Discount 

(cents)

Unit Cost 

Avoidance 

(cents)

Passthrough

Presorting (Cents/Piece)a

Basic Flats (Single-Piece Flats) 38.6 See Note a N/A

Carrier Route Flats (Basic Flats) 14.2 14.5 97.9%

Presorting (Cents/Piece):aBasic, Carrier Route Flats (Single-Piece Flats)

Zones 1&2 2.2 See Note a N/A

Zone 3 3.1 See Note a N/A

Zone 4 1.8 See Note a N/A

Zone 5 2.3 See Note a N/A

Zone 6 3.1 See Note a N/A

Zone 7 2.8 See Note a N/A

Zone 8 2.0 See Note a N/A

Dropship (Cents/Piece)

Basic, Carrier Route DNDC Flats (Basic Origin Flats) 11.3 8.5 132.9%

Basic, Carrier Route DSCF Flats (Basic Origin Flats) 59.0 53.9 109.5%

Basic, Carrier Route DDU Flats (Basic Origin Flats) 75.0 81.8 91.7%

a

The BPM cost model does not estimate cost differences between single piece and presorted BPM. Single piece BPM is a residual category with 

low volume and adequate data are not available. Previously, rate differences between single piece and presorted BPM were based on an 

assumption that unit mail processing costs for single piece BPM were twice that of presorted BPM. See Docket No. R2006-1, Direct Testimony of 

Nina Yeh on Behalf of United States Postal Service, May 3, 2006, at 8 (Docket No. R2006-1, USPS-T-38).

Source: Library Reference PRC-LR-ACR2017/6.
Docket No. ACR2017 - 41 -

Table II-13

Bound Printed Matter Parcels

Workshare Discounts and Benchmarks

Type of Worksharing

FY 2017

Year-End 

Discount (cents)

Unit Cost 

Avoidance (cents) Passthrough

Presorting (Cents/Piece)a

Basic Parcels (Single-Piece Parcels) 63.5 See Note a N/A

Carrier Route Parcels (Basic Parcels) 12.6 14.5 86.9%

Presorting (Cents/Piece):aBasic, Carrier Route Flats (Single-Piece Flats)

Zones 1&2 5.5 See Note a N/A

Zone 3 5.9 See Note a N/A

Zone 4 5.1 See Note a N/A

Zone 5 4.8 See Note a N/A

Zone 6 5.3 See Note a N/A

Zone 7 3.1 See Note a N/A

Zone 8 2.7 See Note a N/A

Dropship (Cents/Piece)

Basic, Carrier Route DNDC Parcels (Basic Origin Parcels) 11.2 8.5 131.8%

Basic, Carrier Route DSCF Parcels (Basic Origin Parcels) 61.5 53.9 114.1%

Basic, Carrier Route DDU Parcels (Basic Origin Parcels) 78.5 81.8 96.0%

a

The BPM cost model does not estimate cost differences between single piece and presorted BPM. Single piece BPM is a residual category with low 

volume and adequate data are not available. Previously, rate differences between single piece and presorted BPM were based on an assumption that unit 

mail processing costs for single piece BPM were twice that of presorted BPM. See Docket No. R2006-1, USPS-T-38 at 8.

Source: Library Reference PRC-LR-ACR2017/6.

The DNDC and DSCF dropshipping discounts for BPM Flats and BPM Parcels exceeded the 

corresponding avoided costs. The DNDC dropship discount for BPM Flats had a 

passthrough of 132.9 percent, and the DNDC dropship discount for BPM Parcels was 131.8 

percent. FY 2017 ACR at 41. The DSCF dropship discounts for BPM Flats and BPM Parcels 

also exceeded avoided costs in FY 2017. The DSCF dropship passthroughs for BPM Flats 

and BPM Parcels were 109.5 percent and 114.1 percent, respectively. Id.

In Docket No. R2017-1, the Postal Service stated that it set the DNDC and DSCF dropship 

discounts for BPM Flats and BPM Parcels using FY 2015 avoided costs data. The Postal 

Service stated that the discounts were not set equal to FY 2015 avoided costs because 

aligning the discounts with avoided costs would have resulted in price increases greater 

than the average increases for the Package Services class.57 The Postal Service cited the 

 

57 Docket No. R2017-1, United States Postal Service Notice of Market Dominant Price Adjustment, October 12, 2016, at 52-56.
Docket No. ACR2017 - 42 -

rate shock exception in 39 U.S.C. § 3622(e) as justification for not aligning the discounts 

with the avoided costs. Id. The Commission approved this justification and the prices in 

Order No. 3610, with the caveat that the Postal Service must provide additional 

justification if the discounts were not aligned in the next Market Dominant price 

adjustment. Order No. 3610 at 54. In addition, the Commission requested better 

explanation in future proceedings utilizing the rate shock exemption, particularly “in cases 

where a price increase required to equalize the discount with avoided costs is minimal.” Id. 

at 54-55. 

In Docket No. R2018-1, the Postal Service set the DNDC and DSCF dropship discounts for 

BPM Flats and BPM Parcels equal to their respective FY 2016 avoided costs. The avoided 

costs decreased again in FY 2017. Using the prices filed in Docket No. R2018-1 and the 

updated FY 2017 avoided costs, the Postal Service calculates that the DNDC dropship 

passthroughs will be 120 percent and 101.1 percent, respectively. FY 2017 ACR at 41-42. 

The Postal Service states that it intends to align the discounts with avoided costs in the next 

market dominant price adjustment or cite an applicable statutory exception. Id. 

The Public Representative notes that the Postal Service does not offer a statutory exception 

to justify the BPM products with passthroughs greater than 100 percent and concludes that 

those passthroughs are out of compliance. PR Comments at 53.

The Commission finds that the BPM Flats DNDC dropship, BPM Flats DSCF dropship, BPM 

Parcels DNDC dropship, and BPM Parcels DSCF dropship discounts were not in compliance 

during FY 2017. The Postal Service must either align these discounts with avoided costs 

during the next general Market Dominant price adjustment or provide support for an 

applicable statutory exception.

D. Preferred Rate Requirements

39 U.S.C. § 3626 identifies preferred rate requirements applicable to Periodicals, USPS 

Marketing Mail, and Package Services prices.

Periodicals is a preferred class of mail and receives several statutory discounts in 39 U.S.C. 

§ 3626, such as a 5-percent discount for nonprofit and classroom publications. In Docket 

No. R2017-1, prices for Periodicals were set to be consistent with statutory preferences for 

mail in that class. Order No. 3610 at 48-49.

39 U.S.C. § 3626(a)(6) requires nonprofit prices in USPS Marketing Mail to be set in relation 

to their commercial counterparts. In Docket No. R2017-1, nonprofit prices were set to yield 

average per-piece revenues of 60.0 percent of commercial per-piece revenues at the class 

level. Order No. 3610 at 42. The Commission calculates that the actual per-piece revenues 

from USPS Marketing Mail nonprofit pieces were 58.9 percent of the per-piece revenues of 
Docket No. ACR2017 - 43 -

their commercial counterparts in FY 2017.58 As discussed in detail in Order No. 4400, 

changes in the mix of mail after price changes make it difficult to precisely attain the 60 

percent relationship required by law.59 The Commission finds that, in FY 2017, nonprofit 

average revenues per piece in USPS Marketing Mail were set as nearly practicable to 60 

percent of their commercial counterparts. 

One preferred rate requirement applies to Media Mail/Library Mail, a product in Package 

Services: Section 3626(a)(7) of Title 39 requires Library Mail prices to be set at 95 percent 

of Media Mail prices. Docket No. R2017-1 set these prices accordingly. Order No. 3610 at 

58.

The Commission finds that prices in FY 2017 were in compliance with all of the preferred rate 

requirements identified in 39 U.S.C. § 3626.

 

58 See Library Reference PRC–LR–ACR2017/1.

59 See Docket No. RM2017-12, Order on Analytical Principles used in Periodic Reporting (Proposal Eight), February 7, 2018 (Order No. 4400).
Docket No. ACR2017 - 44 -

CHAPTER 3: MARKET DOMINANT 

PRODUCTS: OTHER RATE AND FEE 

COMPLIANCE ISSUES

A. Introduction

Commenters raise other rate and fee compliance issues, most of which relate to the 

objectives and factors established by 39 U.S.C. § 3622 and to the policies of Title 39 of the 

United States Code. These issues include noncompensatory products and pricing issues 

related to differences in cost coverage.

This Chapter begins with an analysis of noncompensatory products organized by class. It 

also includes a discussion of matters relating to NSAs, and other pricing issues.

B. Noncompensatory Products

1. Periodicals

a. FY 2017 Financial Results

The cost coverage for Periodicals decreased from FY 2016 to FY 2017, from 73.7 percent to 

69.3 percent. As Table III-1 illustrates, Periodicals cost coverage has declined from 83.0 

percent in FY 2007, resulting in a cumulative negative contribution of more than $6 billion.
Docket No. ACR2017 - 45 -

Table III-1

Periodicals Cost Coverage, FY 2007–FY 2017 (Volume and $ in Millions)60

Fiscal Year Volume Revenue Attributable Cost Cost Coverage Contribution

2007 8,795 $2,188 $2,636 83.01% -$448

2008 8,605 $2,295 $2,732 84.00% -$437

2009 7,953 $2,038 $2,680 76.04% -$642

2010 7,269 $1,879 $2,490 75.46% -$611

2011 7,077 $1,821 $2,430 74.94% -$609

2012 6,741 $1,732 $2,402 72.10% -$670

2013 6,359 $1,658 $2,179 76.10% -$521

2014 6,045 $1,625 $2,134 76.16% -$509

2015 5,838 $1,589 $2,101 75.64% -$512

2016 5,586 $1,507 $2,043 73.73% -$537

2017 5,301 $1,375 $1,983 69.31% -$609

-$6,104

Source: Library Reference PRC–LR–ACR2017/5.

Unit revenue for the Periodicals class as a whole decreased from 27.0 cents in FY 2016 to 

25.9 cents in FY 2017. FY 2017 ACR at 38. However, unit cost increased from 36.6 cents to 

37.4 cents during the same period. Decreasing revenue coupled with increasing cost caused 

unit contribution to decline in FY 2017. Table III-2 details the unit cost, revenue, and 

contribution for Periodicals as a whole during the PAEA era.

 

60 In this Report, attributable cost means incremental cost. See Docket No. RM2016-2, Order Concerning United Parcel Service, Inc.’s Proposed 

Changes to Postal Service Costing Methodologies (UPS Proposals One, Two, and Three), September 9, 2016, at 125 (Order No. 3506). The 

attributable cost for years before FY 2016 reflect the accepted methodology for those years and has not been recalculated.
Docket No. ACR2017 - 46 -

Table III-2

Periodicals Unit Cost, Revenue, and Contribution, FY 2007–FY 2017

Fiscal Year Unit Attributable Cost Unit Revenue Unit Contribution

2007 $0.2997 $0.2488 -$0.0509

2008 $0.3175 $0.2667 -$0.0508

2009 $0.3370 $0.2563 -$0.0807

2010 $0.3425 $0.2585 -$0.0841

2011 $0.3434 $0.2573 -$0.0860

2012 $0.3562 $0.2568 -$0.0994

2013 $0.3427 $0.2608 -$0.0819

2014 $0.3531 $0.2689 -$0.0842

2015 $0.3599 $0.2722 -$0.0877

2016 $0.3658 $0.2697 -$0.0961

2017 $0.3742 $0.2593 -$0.1148

Source: Library Reference PRC–LR–ACR2017/5.

b. Commission Analysis of FY 2017 Financial Results

Since FY 2007, Periodicals volume declined 39.7 percent, revenue declined 37.2 percent, 

cost declined 24.7 percent, and the Periodicals class accumulated negative contribution of 

more than $6 billion. Increasing unit cost contributed to Periodicals’ inability to cover its 

attributable cost. The exigent surcharge, which went into effect on January 26, 2014,61

improved the revenue generated during part of FY 2014, all of FY 2015, and part of FY 

2016. The exigent surcharge expired on April 10, 2016, and was not in effect for any of FY 

2017.62 The expiration of the exigent surcharge contributed to the revenue decline in FY 

2017. The unit revenue for Periodicals in FY 2017 is lower than the unit revenue for 

Periodicals in FY 2013. The increase in average unit cost, combined with the decrease in 

average unit revenue, resulted in a lower average unit contribution.

Decreases in both the average weight and advertising content of Periodicals mailings also 

affected Periodicals revenue in FY 2017. Periodicals prices are tied, in part, to the weight of 

the piece, and minor weight changes have a greater effect on the price paid by the mailers 

than on the cost incurred by the Postal Service. As the Postal Service explains, minor weight 

increases do not significantly affect cost within the weight range of typical mailpieces (3 to 

 

61 See Docket No. R2013-11, Order Granting Exigent Price Increase, December 24, 2013, at 193 (Order No. 1926).

62 See Docket No. R2013-11, Notice of the United States Postal Service of Removal of the Exigent Surcharge, February 25, 2016, at 1.
Docket No. ACR2017 - 47 -

16 ounces) or the productivity of mail processing equipment.63 However, minor weight 

changes can have significant effects on revenue because roughly 22 percent of Periodicals 

revenue is from the weight price element. Average weight for Outside County Periodicals 

decreased from 6.04 ounces per piece in FY 2016 to 5.96 ounces per piece in FY 2017.64

Furthermore, advertising pounds, which pay higher prices, decreased from 38.4 percent of 

total Outside County Periodicals pounds in FY 2016 to 37.5 percent in FY 2017.65 Id.

In Chapter 2, supra, the Commission provides a discussion of Periodicals worksharing 

incentives and the importance of sending efficient pricing signals to mailers.

c. Commission Analysis of Outside County Periodicals Unit 

Cost

The Periodicals class is comprised of two products: In-County66 and Outside County. In 

FY 2017, Outside County constituted 90.3 percent of Periodicals volume and 95.7 percent 

of Periodicals attributable cost.67 Because Outside County pieces incur most of the costs for 

the Periodicals class, operational initiatives focused on Outside County Periodicals have 

greater potential for cost savings for the Periodicals class as a whole. Table III-3 shows that 

Outside County Periodicals unit attributable cost increased by 0.96 cents from FY 2016 to 

FY 2017.

 

63 See Docket No. ACR2015, Annual Compliance Report, December 29, 2015, at 46 (identifying the following equipment: the Automated Flats 

Sorting Machine 100 (AFSM 100), FSS, Automation Parcel and Bundle Sorter (APBS), or Automated Package Processing System (APPS)).

64 Library Reference PRC–LR–ACR2017/5.

65 In FY 2008, the average weight for Outside County Periodicals was 6.99 ounces per piece and advertising pounds were 41.7 percent of total 

Outside County Periodicals pounds.

66 The In-County product is typically used by smaller circulation weekly newspapers for distribution within the county of publication.

67 Library Reference PRC–LR–ACR2017/5.
Docket No. ACR2017 - 48 -

Table III-3

Change in Outside County Periodicals Unit Attributable Costs, FY 2008–FY 201768 (Cents)

Fiscal Year Mail Processing Delivery Transportation Other Total

2008 12.23 8.06 3.52 10.12 33.93

2009 12.94 9.29 3.18 10.89 36.30

2010 12.02 9.68 3.59 11.09 36.38

2011 12.07 9.50 3.41 11.51 36.49

2012 12.41 9.57 3.90 11.87 37.74

2013 11.69 9.38 3.89 11.39 36.35

2014 12.25 9.63 3.83 11.82 37.53

2015 11.89 10.29 4.31 11.72 38.21

2016 12.08 10.44 4.68 11.52 38.71

2017 12.72 10.93 3.60 12.42 39.67

Source: Library Reference PRC–LR–ACR2017/5.

In FY 2017, the unit attributable costs for mail processing, delivery, and other increased, 

and transportation unit cost decreased. The trend for mail processing unit attributable 

costs shows that the Postal Service has not realized cost savings from increased mailer 

preparation (worksharing) via presortation. 

Over the 10-year period beginning in FY 2008, mailer presortation of Outside County 

Periodicals has increased substantially. As Figure III-1 illustrates, 49.0 percent of mail 

volume was presorted to the Carrier Route level in FY 2008, whereas 62.3 percent of mail 

volume was presorted to the Carrier Route or FSS level in FY 2017.69

 

68 The figures in this table do not include piggybacks. A majority of the other costs are piggybacked onto mail processing, delivery, and 

transportation.

69 With the implementation of Docket No. R2015-4 prices, some mailpieces that were previously Carrier Route were required to be prepared at 

the FSS level between FY 2015 and FY 2017. Hence, the Carrier Route and FSS pieces are aggregated to demonstrate the degree to which 

mailers prepared Outside County Periodicals mailings in FY 2017. See section III. B. 2,infra.
Docket No. ACR2017 - 49 -

Figure III-1

Change in Outside County Periodicals Mail Mix, FY 2008–FY 2017

Source: Library Reference PRC–LR–ACR2017/5.

Mail processing unit costs are much lower for mailpieces presorted to the Carrier Route 

level than to the 5-Digit level. The Postal Service’s CRA does not report mail processing 

costs for Carrier Route presorted Periodicals separately from other presorted Periodicals, 

such as 5-Digit and 3-Digit, because they are not separate products. However, granular data 

from the Periodicals Pricing Report provide insight into the cost differentials for Carrier 

Route, 5-Digit, and 3-Digit.70

The data show that the mail processing and delivery costs for Carrier Route pieces are 

significantly lower than the mail processing and delivery costs for 5-Digit pieces. The mail 

processing cost for pieces processed on the FSS is higher than the mail processing cost for 

both 5-Digit and Carrier Route pieces. The delivery cost for pieces processed on the FSS is 

lower than the delivery cost for 5-Digit pieces. The total cost (mail processing plus 

delivery) for pieces processed on the FSS is lower than the total cost for 5-Digit, but 

significantly higher than the cost for Carrier Route pieces.

 

70 See Library Reference USPS–FY17–44, Excel file “ACD.Periodicals.Report Attach FY17.xlsx;” PRC–LR–ACR2017/5, Excel file “FY 2017 Periodicals 

Cost Coverage.xlsx.”
Docket No. ACR2017 - 50 -

Since FY 2008, mail processing unit costs for flat-shaped mail have increased.71 Declining 

mail processing productivity contributed to this increase. Table III-4 details changes in 

productivity for selected flats processing operations since FY 2008.

Table III-4

Change in Productivity for Selected Flats Processing Operations, FY 2008–FY 2017

Operation Productivity

Change

Automated Flats Sorting Machine 100 (AFSM 100) Incoming Secondary -29%

Small Parcel Bundle Sorter (SPBS)/Automated Parcel Bundle Sorter (APBS) Incoming -20%

Automated Package Processing System (APPS) Incoming -47%

Flats Sequencing System (FSS)72-11%

Source: Library Reference PRC–LR–ACR2017/5.

In FY 2010 and FY 2011, the Postal Service projected improved flats mail processing 

performance;73 however, the Postal Service has yet to achieve such productivity increases. 

Flats productivity has decreased since FY 2008. Although the changing Outside County 

Periodicals mail mix will likely result in less processing on the AFSM 100, SPBS/APBS, and 

APPS, Periodicals will continue to have cost coverage issues if the Postal Service does not 

address declining productivity.

Periodicals have consistently failed to cover cost, and the Commission has repeatedly 

encouraged the Postal Service to improve Periodicals cost coverage.74

In Chapter 6, the Commission explains its continued concerns with the Postal Service’s 

inability to quantify the cost savings of its initiatives to reduce costs for flats. The Commission 

describes an ongoing rulemaking intended to develop metrics to measure, track, and report 

on initiatives related to reducing the costs of flats. All of the recommendations pertaining to 

reducing flats costs in Chapter 6 apply to Periodicals.

 

71 For example, the piggybacked mail processing unit cost for USPS Marketing Mail Flats has increased from 22.89 cents in FY 2008 to 27.90

cents in FY 2017. Compare Docket No. ACR2008, Library Reference USPS–FY08–26, December 29, 2008, Excel file “shp08prc.xls,” tab “Flats (4),” 

cell BP25 with Library Reference USPS–FY17–26, December 29, 2017, Excel file “shp17prc.xlsx,” tab “Costs (All Shapes) W Final RF,” cell O73.

72 The FSS machine productivity is measured from its introduction in FY 2011.

73 See, e.g., Docket No. N2012-1, Direct Testimony of Frank Neri on Behalf of the United States Postal Service (USPS–T–4), December 5, 2011, at 

29-30 (projecting an increase in AFSM 100 productivity of 15 percent); Docket No. R2010-4, Responses of the United States Postal Service to 

Questions from the Bench at the Hearing for Mr. Neri, August 19, 2010, at 7 (“Expectations are for flats workhours to decline another 11 

percent in FY 2010.”); United States Postal Service Office of the Inspector General Report, Flats Sequencing System: Program Status and 

Projected Cash Flow, July 27, 2010, at 10 (Report Number DA-AR-10-007) (projecting that the lower bound or worst case scenario for the FSS 

would be a return on investment of 14.25 percent without transitional employees and 26.9 percent with transitional employees).

74 See FY 2009 ACD at 75; FY 2010 ACD at 94; FY 2011 ACD at 105-106; FY 2012 ACD at 95-97; FY 2013 ACD at 44-45; FY 2014 ACD at 40-41; FY 

2015 ACD at 50-51; FY 2016 ACD at 47-48.
Docket No. ACR2017 - 51 -

2. USPS Marketing Mail Flats

a. Introduction

In FY 2017, USPS Marketing Mail Flats had a cost coverage of 74.0 percent.75 As shown in 

Table III-5, cost coverage for USPS Marketing Mail Flats has steadily declined since FY 

2013, when the cost coverage was 85.1 percent. In FY 2017, USPS Marketing Mail Flats had 

the lowest reported cost coverage during the PAEA era. The total contribution for USPS 

Marketing Mail Flats in FY 2017 decreased $50.8 million from FY 2016 to an all-time low of 

-$668.9 million.

Table III-5

USPS Marketing Mail Flats Cost Coverage and Contribution, FY 2008–FY 2017

Fiscal Year Cost Coverage Contribution

(millions)

FY 2008 94.4% -$217.8

FY 2009 82.1% -$615.6

FY 2010 81.8% -$577.0

FY 2011 79.5% -$643.2

FY 2012 80.9% -$527.9

FY 2013 85.1% -$375.9

FY 2014 83.2% -$411.0

FY 2015 80.3% -$520.0

FY 2016 79.4% -$618.1

FY 2017 74.0% -$668.9

Total -$5,175.5

Source: Library Reference PRC–LR–ACR2017/4.

The Postal Service ascribes the decrease in cost coverage to an increase in attributable cost 

per piece of almost 10 percent since FY 2016, which overshadowed a 2.4 percent increase 

in revenue per piece. FY 2017 ACR at 15. The Postal Service explains that the increase in 

attributable cost per piece is due to the migration of approximately 1 billion USPS 

Marketing Mail Flats to the Carrier Route product.76 Id. at 33. This migration was a reversal 

of the migration of Carrier Route Flats to USPS Marketing Mail Flats that occurred after the 

introduction of FSS prices in FY 2016. FY 2016 ACD at 48. Figure III-2 illustrates the 

migration of Carrier Route Flats into and out of USPS Marketing Mail Flats that occurred 

 

75 The Commission’s cost coverage calculation differs from the Postal Service’s calculation (73.9) because, unlike the Postal Service, the 

Commission includes fees in the revenue for each product.

76 In FY 2016, there was a migration of Carrier Route Flats to the USPS Marketing Mail Flats product due to the implementation of FSS-specific 

prices. The existence of these prices contributed to more volume, a decreased unit cost per piece, and a decreased unit revenue per piece in FY 

2016. In FY 2017, the Postal Service proposed, and the Commission approved, the elimination of FSS prices. Therefore, the volume, unit cost, 

and unit revenue data for FY 2016 reflect a different mail mix than previous and future volume, cost, and revenue data.
Docket No. ACR2017 - 52 -

from FY 2015 to FY 2017. Prior to FY 2016, USPS Marketing Mail Flats represented less 

than 40 percent of combined Carrier Route and USPS Marketing Mail Flats volume, but in 

FY 2016, USPS Marketing Mail Flats represented nearly 50 percent of the combined 

volume. In FY 2017, USPS Marketing Mail Flats returned to representing approximately 40 

percent of combined Carrier Route and USPS Marketing Mail Flats volume.

Figure III-2

USPS Marketing Mail Flats and Carrier Route Volume, FY 2012–FY 2017

Source: Library Reference PRC–LR–ACR2017/4.

The unit contribution for USPS Marketing Mail Flats declined from -9.7 cents in FY 2016 to -

13.5 cents in FY 2017. FY 2017 ACR at 13. Despite a large decrease in volume, the Postal 

Service reports that total negative contribution increased to $-668.9 million. Id. at 35.

In its review of the financial performance of USPS Marketing Mail Flats for FY 2017, the 

Commission must consider whether the Postal Service complied with its FY 2010 ACD 

directive regarding USPS Marketing Mail Flats. Below, the Commission discusses the 

directive, as well as comments received concerning the financial performance of USPS 

Marketing Mail Flats for FY 2016. In Chapter 6 of this Report, the Commission discusses the 

status of the reporting required by Chapter 6 of the FY 2015 ACD and further action 

regarding USPS Marketing Mail Flats.
Docket No. ACR2017 - 53 -

b. FY 2010 ACD Directive for USPS Marketing Mail Flats

In the FY 2010 ACD, the Commission determined that USPS Marketing Mail Flats prices in 

effect in FY 2010 did not comply with 39 U.S.C. § 101(d) and directed the Postal Service to 

increase the product’s cost coverage through a combination of above-average price 

adjustments, consistent with the price cap requirements, and cost reductions, until such 

time that revenue exceeded attributable cost. FY 2010 ACD at 106. In addition, the 

Commission directed the Postal Service to provide the following information in each of its 

subsequent ACRs:

 A description of operational changes designed to reduce flats costs in the previous 

fiscal year and an estimation of the financial effect of such changes

 A description of all costing methodology or measurement improvements made in 

the previous fiscal year and the estimated financial effects of such changes

 A statement summarizing the historical and current fiscal year subsidy of the Flats 

product, and the estimated timeline for phasing out this subsidy

Id. at 107.

The Postal Service appealed the Commission’s FY 2010 ACD findings and directive.77 The 

court rejected the Postal Service’s contention that the Commission acted outside of the 

scope of its statutory authority by considering the general standards of 39 U.S.C. § 101(d) 

in an ACD “at least in extreme circumstances.” Id. at 1108. The court remanded the case to 

the Commission “for a definition of the circumstances that trigger [section] 101(d)’s failsafe 

protection, and for an explanation of why the particular remedy imposed here is 

appropriate to ameliorate that extremity....” Id. at 1109. In response, the Commission 

issued Order No. 1427, clarifying that its analysis of the circumstances that would trigger 

39 U.S.C. § 101(d) depended on the totality of circumstances.78

In its FY 2012, FY 2013, and FY 2014 ACDs, the Commission found that the Postal Service 

made progress towards addressing the issues raised in the FY 2010 ACD and concluded 

that no additional remedial actions beyond those prescribed in the FY 2010 directive were 

required. See FY 2012 ACD at 116; FY 2013 ACD at 54; FY 2014 ACD at 47.

In FY 2015, the Commission found that sufficient progress was no longer being made and 

required that the Postal Service develop a plan to measure, track, and report on cost and 

service issues related to flat-shaped products. FY 2015 ACD at 181. The response to that FY 

2015 directive is discussed in more detail in Chapter 6 of this Report. In FY 2016, the 

Commission found that no progress was being made toward addressing the FY 2010 ACD 

directive. FY 2016 ACD at 57.

 

77 USPS v. Postal Regulatory Comm’n, 676 F.3d 1105 (D.C. Cir. 2012).

78 Docket No. ACR2010-R, Order on Remand, August 9, 2012, at 4 (Order No. 1427).
Docket No. ACR2017 - 54 -

c. Response to FY 2010 ACD Directive

In its FY 2017 ACR, the Postal Service reports that it plans to increase USPS Marketing Mail 

Flats prices by at least the consumer price index multiplied by 1.05 in the next general 

Market Dominant price change. FY 2017 ACR at 24.

The Postal Service provides some of the information required by the Commission’s FY 2010 

ACD directive: a description of operational changes designed to reduce USPS Marketing 

Mail Flats costs; a description of all costing methodology changes made in FY 2016 that 

affect USPS Marketing Mail Flats costs; and the historical and current fiscal year subsidy of 

the USPS Marketing Mail Flats product. Id. at 23-35. The Postal Service avers it is not able to 

provide an estimated timeline for phasing out the subsidy.79

(1) Operational Changes Designed to Reduce Flats Cost

The Postal Service describes four ongoing operational steps taken during FY 2017 designed 

to make processing USPS Marketing Mail Flats more efficient: Bundle Operation; Service 

Performance Diagnostics Tool; Lean Mail Processing; and Reduce Bundle Breakage. FY 

2017 ACR at 25-31. In addition, in its Responses to CHIR No. 5, the Postal Service provided 

the FSS Scorecard. See Responses to CHIR No. 5, question 1.

The Postal Service maintains that these initiatives are expected to improve efficiencies and 

productivities, as well as reduce overall USPS Marketing Mail Flats cost. FY 2017 ACR at 25. 

However, the Postal Service is unable to quantify any specific cost reductions associated 

with these operational changes. Id. at 26.

(2) Costing Methodology Changes in FY 2016

The Postal Service describes three costing methodology changes that affected USPS 

Marketing Mail Flats costs in FY 2017. Id. at 31-32. First, in Docket No. RM2016-12, the 

Postal Service proposed, and the Commission approved, a change to the Capacity 

Variability for Purchased Highway Transportation Costs. Id. at 31. Second, in Docket No. 

RM2017-8, the Postal Service proposed a change to City Carrier Street Time Parcel 

Proportions. Id. The Postal Service estimates that the combined impact of these two 

changes was to decrease total attributable costs for USPS Marketing Mail Flats by $45 

million. Id. Finally, the Postal Service discusses the inclusion of inframarginal costs in 

attributable costs. Id. at 32. The Postal Service estimates that the inclusion of inframarginal 

costs increased attributable costs by $14 million. Id. 

In addition to the costing methodology changes, the Postal Service discusses the impact of 

the removal of FSS prices from the USPS Marketing Mail Flats product. FY 2017 ACR at 32-

34. The Postal Service explains that, from FY 2015 to FY 2016, Carrier Route pieces that 

migrated from the Carrier Route product to the Flats product likely reduced the unit cost of 

USPS Marketing Mail Flats in FY 2016. Id. at 33. The Postal Service further explains that this 

 

79 See Responses of the United States Postal Service to Questions 1-10 of Chairman’s Information Request No. 5, January 26, 2018, question 4 

(Responses to CHIR No. 5).
Docket No. ACR2017 - 55 -

migration was reversed in FY 2017, which likely resulted in an increase in unit attributable 

cost for USPS Marketing Mail Flats. Id. at 34.

(3) Historical and Current Fiscal Year Subsidies

The Postal Service provides the historical and current fiscal year subsidy of the USPS 

Marketing Mail Flats product. Id. at 34. However, the Postal Service does not provide a 

timeline for phasing out the subsidy and asserts that it is difficult to predict when the 

shortfall for the product will be phased out. Responses to CHIR No. 5, question 3. 

d. Comments on USPS Marketing Mail Flats

The Commission received comments from the American Catalog Mailers Association 

(ACMA),80 the Association for Postal Commerce (PostCom),81 and the Public 

Representative82 regarding the financial performance of USPS Marketing Mail Flats in FY 

2017. The Postal Service, PostCom, and Valpak83 filed reply comments related to USPS 

Marketing Mail Flats.84 The comments generally address USPS Marketing Mail Flats cost 

coverage and compliance with the Commission’s USPS Marketing Mail Flats FY 2010 ACD 

directive.

(1) USPS Marketing Mail Flats Cost Coverage

ACMA states that if the commercial portions of Carrier Route and USPS Marketing Mail 

Flats were combined, the resulting cost coverage would have been 100.7 percent in FY 

2017, down from 105.1 percent in FY 2016. ACMA Comments at 2. Using this metric, ACMA 

argues that catalogs cover their costs. Id. ACMA also asserts that USPS Marketing Mail Flats 

are a residual category for catalog mailers, and “[u]sing price-cap authority on volumes 

trending downward does not result in the revenues expected.” Id. at 8 (footnote omitted). 

Both the Postal Service and Valpak85 filed comments in Response to ACMA. The Postal 

Service states that it will consider ACMA’s applicable points on flat-shaped product 

similarities when setting its prices. Postal Service Reply Comments at 5. In its reply 

comments, Valpak asserts that the USPS Marketing Mail Flats product must be evaluated on 

its own. Valpak Reply Comments at 2. Valpak states that “there is no assurance and no basis 

to believe that any cost reduction efforts would be successful.” Id. at 8. Therefore, Valpak 

contends that the Commission has the tools to adjust USPS Marketing Mail Flats prices 

through the ACR. Id.

 

80 Initial Comments of the American Catalog Mailers Association, February 1, 2018 (ACMA Comments).

81 Comments of the Association for Postal Commerce, February 1, 2018 (PostCom Comments).

82 Public Representative Comments, February 1, 2018 (PR Comments).

83 The Valpak Franchise Association, Inc. Reply Comments on the United States Postal Service FY 2017 Annual Compliance Report, February 12, 

2018 (Valpak Reply Comments).

84 Postal Service Reply Comments; PostCom Reply Comments.

85 Valpak suggests that the Commission evaluate the reasonableness of USPS Marketing Mail Flats using the metric from Order No. 4257. Valpak 

Reply Comments at 3-6. The Commission discusses that suggestion in the “Other Issues” section of this Chapter.
Docket No. ACR2017 - 56 -

(2) Compliance with the Commission’s USPS Marketing 

Mail Flats FY 2010 ACD Directive and Flats Cost

The Public Representative, Postcom, and ACMA filed comments regarding the pricing and 

cost directives related to USPS Marketing Mail Flats. The Public Representative notes that 

the Postal Service’s scheduled rate increases “provide a necessary component of the Postal 

Service’s broader strategy to stabilize the cost coverage” of USPS Marketing Mail Flats. PR 

Comments at 34. Regarding the USPS Marketing Mail Flats costs, she states that she “cannot 

conclude that the Postal Service has not complied with Commission directives to report on 

the impact of its operational initiatives to reduce USPS Marketing Mail Flats cost.” Id. 

PostCom highlights the growth of the USPS Marketing Mail Flats revenue shortfall and 

reiterates its concern from FY 2016 about the Postal Service’s inability to determine the 

impact of operational decisions on costs. PostCom Comments at 7-8.

ACMA asserts that the Commission should not direct the Postal Service to increase USPS 

Marketing Mail Flats prices due to issues in costs related to mail mix changes, lost 

economies of scale, anomalies in delivery times, and increases in the costs for 

transportation, labor and equipment. ACMA Comments at 5-7, 9-15, 20. 

In its reply comments, Valpak contends that USPS Marketing Mail Flats remain 

noncompliant, and the annual negative contribution will continue if the FY 2010 ACD 

Directive is left unchanged. Valpak Reply Comments at 2-3. Valpak states that it would 

extend the application of analytical tools in Order No. 4257 to question the reasonableness 

of USPS Marketing Mail Flats rates. Id. at 3-4. Specifically, Valpak contends rates for USPS 

Marketing Mail Flats were not reasonable because they threatened the financial integrity of 

the Postal Service. Id. at 4. Valpak asserts that the Commission should address the 

reasonableness of USPS Marketing Mail Flats rates in this proceeding rather than waiting 

for the conclusion of the ongoing proceeding in Docket No. RM2017-3.86

The Postal Service replies to comments from ACMA and PostCom regarding issues related 

to Flats costs. The Postal Service contends that Docket No. RM2018-1 is the appropriate 

docket to address flats costs. Postal Service Reply Comments at 5-6. The Postal Service also 

asserts that it is not indifferent to the effect of operations on Flats costs. Id.

e. Commission Analysis

The cost coverage for USPS Marketing Mail Flats was 74.0 percent in FY 2017. The FY 2017 

cost coverage is now the lowest recorded cost coverage for USPS Marketing Mail Flats in 

the PAEA era. As shown in Table III-6, the significant increase in unit attributable cost 

resulted in a unit contribution of -13.5 cents in FY 2017, a 3.8 cent decline from FY 2016.

 

86 Id. Valpak is correct that the Commission found rates for USPS Marketing Mail Flats unreasonable in Order No. 4257. The Commission has 

proposed a holistic solution for all underwater products in Docket No. RM2017-3. To the extent Valpak raises issues with the solutions 

presented in the proposed rules related to rates for USPS Marketing Mail Flats, those issues are more appropriate for Docket No. RM2017-3.
Docket No. ACR2017 - 57 -

Table III-6

USPS Marketing Mail Flats Unit Contribution, FY 2008–FY 2017

Fiscal Year

Unit 

Revenue 

(cents)

Unit Attributable 

Cost 

(cents)

Unit 

Contribution 

(cents)

FY 2008 36.7 38.9 -2.2

FY 2009 36.9 44.8 -7.9

FY 2010 36.6 44.8 -8.2

FY 2011 36.8 46.3 -9.5

FY 2012 37.6 46.5 -8.9

FY 2013 38.4 45.2 -6.8

FY 2014 40.4 48.5 -8.1

FY 2015 40.2 50.1 -9.9

FY 2016 37.5 47.3 -9.7

FY 2017 38.5 52.0 -13.5

Source: Library Reference PRC–LR–ACR2017/4.

Two events affected both the unit revenue and unit cost in FY 2017. First, FY 2017 was the 

first full year without the exigent surcharge, which likely reduced unit revenue. Second, the 

migration of Carrier Route mail from the USPS Marketing Mail Flats product likely 

increased both unit revenue and unit attributable cost because the migrating pieces were 

the lowest price categories, which were also the least costly for the Postal Service to 

process. 

The migration of mail volume between Carrier Route and USPS Marketing Mail Flats that 

occurred in FYs 2016 and 2017 results in imperfect comparisons of FY 2016 data to FY 

2017 and other fiscal years. One way to normalize the data to better observe unit 

attributable cost, unit revenue, and unit contribution trends is to combine revenue, cost, 

and volume data for USPS Marketing Mail Flats and Carrier Route.87 Figure III-3 illustrates 

a better comparison of cost, revenue, contribution, and volume changes over time because 

the influence of the migration between Flats and Carrier Route is eliminated when the data 

from the two products are combined.

 

87 The Postal Service and commenters have asserted that these products share the same characteristics and the data could be combined for 

analysis. See, e.g., ACMA Comments at 4; Docket No. ACR2010, Annual Compliance Report, December 29, 2010, at 31 n.10.
Docket No. ACR2017 - 58 -

Figure III-3

Combined USPS Marketing Mail Flats and Carrier Route Unit Revenue, Unit Cost, and Unit 

Contribution, FY 2012–FY 2017

As shown in Figure III-3, the combined unit contribution from USPS Marketing Mail Flats 

and Carrier Route was negative for the second time in FY 2017. From FY 2016 to FY 2017 

combined unit revenue decreased 3.1 percent and combined unit cost increased 1.5 

percent. This analysis indicates that the Postal Service has been unsuccessful in its efforts 

to reduce cost and increase revenue in a way that improves cost coverage.

During FY 2017, the Postal Service continued to focus on and develop previous operational 

initiatives to make the processing of flats more efficient. FY 2017 ACR at 25-31; see also 

Responses to CHIR No. 5, question 6. The Postal Service continues to state that it is unable 

to estimate cost savings from any of its current or past operational initiatives. FY 2017 ACR 

at 26. Cost savings programs or initiatives generally target one or more specific activities to 

produce cost savings. As the Commission has stated in previous ACDs, the Postal Service’s 

cost saving initiatives should have specific and measurable targets by which the benefits of 

the program can be evaluated. See FY 2012 ACD at 116; FY 2013 ACD at 54; FY 2014 ACD at 

48; FY 2015 ACD at 64; FY 2016 ACD at 56, 171.

The Postal Service reports on metrics related to some operational initiatives. FY 2017 ACD 

at 25-31; Responses to CHIR No. 5, question 1. In FY 2017, some of these metrics improved 

while some deteriorated. Positive improvements include reducing the Work In Process 

cycle time for Flats from FY 2016 to FY 2017 and improving bundle breakage performance 

by 9.4 percent. FY 2017 ACR at 28, 30. 
Docket No. ACR2017 - 59 -

The metric associated with the FSS worsened in FY 2017. The FSS Scorecard shows that its 

three historic measures: (1) throughput per hour, (2) Delivery Point Sequence (DPS), and 

(3) Mail Pieces At-Risk, continued to worsen in FY 2017. In FY 2017, the Postal Service 

added an additional metric, “Leakage,” which the Postal Service will use to identify 

“mailpieces that were FSS candidate pieces, but were processed on other automation 

equipment or dispatched to the delivery unit as working volume.” Responses to CHIR No. 5, 

question 1. The Postal Service believes tracking “Leakage” will increase the DPS percent for 

FSS in future years. Id.

In FY 2017, the Postal Service also continued to evaluate its flats mail processing 

equipment and make changes to the equipment in its mail processing network. Specifically, 

it states that it adjusted the bundle sorting equipment by adding more bins to APBS and 

APPS machines88 and adding new Small Package Sorter System and Automated Parcel and 

Bundle Sorter machines. FY 2017 ACR at 27. The Postal Service explains that the additional 

bundle sorting machines reduce the need for secondary sortation, which reduces extra 

handling. Id. The Postal Service also states that it removed 50 Automated Flats Sorting 

Machines 100 from its mail processing network. Id. The Postal Service also explains that 

both the volume and the efficiency declined on the AFSM 100, which led to the Postal 

Service’s decision to remove 50 machines at specific facilities. Id. The Postal Service also 

continued its Lean Mail Processing (LMP) program to improve flats processing. Id. at 29. 

The Postal Service completed six LMP studies in FY 2017. Id. 

In FY 2017, the Postal Service proposed, and the Commission approved, a price increase of 

2.5 percent for USPS Marketing Mail Flats. See Order No. 3610 at 29. The cumulative 

shortfall in contribution for USPS Marketing Mail Flats from FY 2008 through FY 2017 has 

grown to $5.2 billion.

The Commission finds that, in FY 2017, no progress was made toward addressing the issues it 

raised in the FY 2010 ACD. Despite the Postal Service efforts to reduce flats costs through 

operational initiatives, unit costs increased substantially from FY 2016. The Commission 

understands that the migration of Carrier Route Flats played a significant role in the cost 

increase due to the migration of low cost pieces. However, even when Carrier Route and Flats 

data are combined, unit costs still increased and unit contribution decreased. The Postal 

Service must continue responding to the requirements of the FY 2010 ACD directive by 

proposing above-average price increases for USPS Marketing Mail Flats, striving to reduce 

USPS Marketing Mail Flats cost, and providing the required documentation of those efforts in 

future ACRs.

In Chapter 6, the Commission explains its continued concerns with the Postal Service’s 

inability to quantify the cost savings of its initiatives to reduce costs for flats. The Commission 

 

88 Despite the Postal Service’s assertion that adding more bins results in reduced costs, the Postal Service is unable to provide an estimate of 

the cost reduction resulting from fewer secondary sorts in FY 2017. Responses to CHIR No. 5, question 4.
Docket No. ACR2017 - 60 -

describes an ongoing rulemaking intended to develop metrics to measure, track, and report 

on initiatives related to reducing the costs of flats. 

3. USPS Marketing Mail Parcels

In FY 2017, USPS Marketing Mail Parcels had a cost coverage of 64.5 percent,89 down 0.1 

percentage points from FY 2016. In FY 2017, USPS Marketing Mail Parcels’ volume declined 

9.3 percent, continuing a decline which started in FY 2013. Unit revenue fell by 3.7 percent 

and unit attributable cost decreased by 3.6 percent from the previous fiscal year. This 

resulted in a 0.02 cent increase in unit contribution from FY 2016 to FY 2017. The total 

contribution of USPS Marketing Mail Parcels in FY 2017 was -$25.8 million. 

The Postal Service explains that the reductions in unit revenue and unit attributable cost 

are driven by a reduction in the average weight per piece from 6.1 ounces in FY 2016 to 5.6 

ounces in FY 2017. FY 2017 ACR at 14. 

a. Comments on USPS Marketing Mail Parcels

The Public Representative expresses concern about the cost coverage for USPS Marketing 

Mail Parcels. PR Comments at 28-29. The Public Representative avers that the Postal 

Service’s claim that the decline in average parcel weight as a driver of “decreasing cost 

coverage is inadequately substantiated.” Id. at 28. She recommends that the Commission 

require the Postal Service to provide a report that includes an analysis demonstrating the 

impact of Postal Service initiatives on USPS Marketing Mail Parcels cost decreases. Id. at 29. 

In its reply comments, the Postal Service asserts that it is not realistic to address issues for 

Parcels because the product only represents less than 1 percent of the volume of the USPS 

Marketing Mail Class. Postal Service Reply Comments at 7.

b. Commission Analysis

Table III-7 displays the unit revenue, unit attributable cost, unit contribution, volume, and 

average weight per piece for USPS Marketing Mail Parcels from FY 2013 to FY 2017. It 

shows that unit revenue and unit attributable cost decreased from FY 2016 to FY 2017. 

 

89 The Commission’s cost coverage calculation differs from the Postal Service’s calculation because the Commission includes fees in the revenue 

for each product and the Postal Service does not.
Docket No. ACR2017 - 61 -

Table III-7

USPS Marketing Mail Parcels Financial Comparison, FY 2013–FY 2017

FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Percent 

Change 

FY 2013 

to 

FY 2017

Percent 

Change 

FY 2016 

to 

FY 2017

Unit Revenue $1.034 $1.094 $1.086 $1.201 $1.156 11.8% -3.7%

Unit Attributable 

Cost $1.524 $1.557 $1.480 $1.860 $1.793 17.7% -3.6%

Unit Contribution -$0.489 -$0.464 -$0.393 -$0.659 -$0.637 -30.1% 3.4%

Volume 71,966,232 65,845,949 60,420,263 44,766,854 40,581,670 -43.6% -9.3%

Average Weight 

Per Piece 

(ounces)

5.10 5.60 5.62 6.13 5.63 10.4% -8.2%

Source: Library Reference PRC–LR–ACR2017/4.

Table III-7 also shows that in FY 2017 there was a decline in average weight per piece. 

From FY 2013 to FY 2016, there were consistent increases in average weight per piece. In 

FY 2017, this trend changed and there was an 8 percent decrease. Therefore, it is 

reasonable to conclude that average weight per piece was a driver of unit cost reductions 

and unit revenue reductions, which together resulted in a slight increase in unit 

contribution. However, the cost coverage for USPS Marketing Mail Parcels remains 

substantially below 100 percent.

The transfer of commercial parcels to competitive products in FY 2012 has been a factor in 

the cost coverage for the USPS Marketing Mail products since FY 2013. Table III-8 displays 

the distribution of commercial and nonprofit volumes for USPS Marketing Mail Parcels 

from FY 2012 and FY 2017. The proportion of nonprofit mail is 5.5 times greater in FY 

2017 than FY 2012.

Table III-8

USPS Marketing Mail Parcels Commercial to Nonprofit Volume Distributions, FY 2012 and FY 

2017

FY 2012 FY 2012

Distribution FY 2017 FY 2017Distribution

Commercial Volume 285,925,057 94.2% 27,529,681 67.8%

Nonprofit Volume 17,633,585 5.8% 13,051,989 32.2%

Total Volume 303,558,642 100.0% 40,581,670 100.0%

Source: Library Reference PRC–LR–ACR2017/4.
Docket No. ACR2017 - 62 -

Table III-9 displays the unit costs, revenue, and contribution for commercial and nonprofit 

USPS Marketing Mail Parcels. It shows unit cost of nonprofit mail is much higher than 

commercial mail ($2.41 compared to $1.50). Therefore, a higher proportion of nonprofit 

pieces leads to higher costs and lower revenues for the USPS Marketing Mail Parcels 

product.

Table III-9

USPS Marketing Mail Parcels Commercial to Nonprofit FY 2017 Unit Cost Comparison

Volume Revenue Unit 

Revenue

Attributable 

Cost Unit Cost Unit Contribution

Commercial Parcels 27,530 27,046 $0.98 41,374 $1.50 ($0.52)

Nonprofit Parcels 13,052 19,877 $1.52 31,391 $2.41 ($0.88)

Parcels 40,582 46,923 $1.1563 72,765 $1.79 ($0.64)

Source: Library Reference PRC–LR–ACR2017/4.

In FY 2012, the Commission approved the reclassification of some USPS Marketing Mail 

Parcels to the competitive product list.90 Together, Tables III-8 and III-9 illustrate the effect 

of reclassification on the financial performance of USPS Marketing Mail Parcels since FY 

2012.

To improve USPS Marketing Mail Parcels’ cost coverage, the Postal Service states that it will 

continue proposing above-average price increases. FY 2017 ACR at 14. Most recently, in 

Docket No. R2018-1, the Commission approved a price increase for USPS Marketing Mail 

Parcels of 2.768 percent, 0.832 percentage points higher than the average price increase 

for USPS Marketing Mail of 1.936 percent. See Order No. 4215 at 37.

In the FY 2016 ACD, the Commission stated “the Postal Service should explore and 

implement opportunities to further reduce the unit cost of Standard Mail Parcels and 

report on those opportunities and results in the FY 2017 Annual Compliance Report.” FY 

2016 ACD at 59. The Postal Service did not undertake any specific efforts in FY 2017 to 

reduce USPS Marketing Mail Parcels costs. Responses to CHIR No. 5, question 5. The Postal 

Service explained that it has limited opportunities to achieve substantial cost 

improvements because of the product’s small volume. Id. 

 

90 On March 2, 2011, the Commission conditionally approved the Postal Service’s request to transfer commercial USPS Marketing Mail Parcels 

to the competitive product list. See Docket No. MC2010-36, Order Conditionally Granting Request to Transfer Commercial USPS Marketing Mail

Parcels to the Competitive Product List, March 2, 2011 (Order No. 689). However, the Commission required a price adjustment as a condition of 

transfer. See Docket No. CP2012-2, Order Approving Changes in Rates of General Applicability for Competitive Products, December 21, 2011

(Order No. 1062). Because the new rates took effect on January 22, 2012, the data does not fully reflect the reclassification until FY 2013. Id. at 

1.
Docket No. ACR2017 - 63 -

The Commission finds that FY 2017 revenue for USPS Marketing Mail Parcels was not 

sufficient to cover attributable cost. The Postal Service’s approach to improve cost coverage 

through above-average price increases in future Market Dominant price adjustments is 

appropriate. In addition to above-average price increases, the Postal Service should expend a 

reasonable amount of resources given the size of the product to explore and implement 

opportunities to further reduce the unit cost of USPS Marketing Mail Parcels and report on 

those opportunities and results in the FY 2018 ACR.

4. Stamp Fulfillment Services

The Stamp Fulfillment Services (SFS) product provides for the fulfillment of stamp orders 

placed by mail, phone, fax, or online to the SFS Center in Kansas City, Missouri. It was added 

to the Mail Classification Schedule as a Market Dominant product in FY 2010. Cost has 

exceeded revenue and, consequently, cost coverage has been below 100 percent each year 

since its introduction. However, cost coverage has shown steady improvement each year. 

See Table III-10. 

Table III-10

SFS Cost Coverage, FY 2013–FY 2017

Fiscal Year

Revenue 

(in Millions)

Attributable Cost 

(in Millions) Cost Coverage

FY 2013 $4.1 $5.1 80.8%

FY 2014 $3.5 $4.3 82.3%

FY 2015 $3.9 $4.6 85.1%

FY 2016 $3.7 $4.3 87.3%

FY 2017 $3.9 $4.0 97.2%

Source: Library Reference PRC–LR–ACR2017/7..

SFS continues its upward trend towards 100 percent cost coverage, with FY 2017 

representing the highest cost coverage for this product since its inception. The Postal 

Service states that it continues to agree with the FY 2012 ACD, which stated that SFS 

“promotes the objectives of reducing costs and increasing efficiency.” FY 2017 ACR at 45 

(quoting FY 2012 ACD at 142). 

The Commission finds that FY 2017 revenue for SFS was not sufficient to cover attributable 

cost. However, the financial performance of SFS does not entirely capture the value that the 

Services Center adds to the Postal Service and to other Postal Service products. Although SFS 

does not cover its attributable cost, by providing a mechanism for the centralized ordering of 

stamps, it reduces the costs associated with the retail purchases of stamps. The Commission 

recognizes the continued progress of the Postal Service in reducing the cost of SFS and urges 

the Postal Service to continue its efforts.
Docket No. ACR2017 - 64 -

5. Money Orders

The Money Orders product provides the customer with an instrument for payment of a 

specified sum of money, with a maximum value of $1,000. In FY 2017, Money Orders had a 

cost coverage of 97.4 percent, up from 91.1 percent in FY 2016. See Table III-11.

Table III-11

Money Orders Cost Coverage, FY 2013–FY2017

Fiscal Year

Revenue 

(in Millions)

Attributable Cost 

(in Millions) Cost Coverage

FY 2013 $156.1 $103.3 151.2%

FY 2014 $165.3 $99.7 165.8%

FY 2015 $160.7 $105.1 152.9%

FY 2016 $156.4 $171.7 91.1%

FY 2017 $152.3 $156.4 97.4%

Source: Library Reference PRC–LR–ACR2017/7.

In the FY 2016 ACD, the Commission directed the Postal Service to investigate the accuracy 

of the incremental costing method with respect to mail processing costs attributed to 

Money Orders. FY 2016 ACD at 61. The Postal Service’s investigation “determined that 

incremental costs had been overstated” and that “Money Orders would have covered its 

costs in FY 2017, except for another costing adjustment” that attributed debit card fees to 

Money Orders. FY 2017 ACR at 45. 

Consequently, the Postal Service reports that it has begun reviewing its methodology for 

attributing debit card fees.91 The Postal Service has developed a preliminary alternative 

distribution procedure, which it states is a “possible worthwhile candidate” for a 

permanent methodological change.92 The Postal Service concludes that its revised 

approach “more accurately assigns debit card expenses to Money Orders than the method 

used in the 2017 ACR filing.” Id. Nevertheless, the Postal Service’s preliminary alternative 

procedure is not an approved methodology for attributing debit card fees.

The Commission finds that FY 2017 revenue for Money Orders was not sufficient to cover 

attributable cost. The Commission directs the Postal Service to continue its investigation into 

debit card fee attribution and update the Commission on its progress and any potential 

corresponding methodological changes within 90 days of the issuance of this ACD.

 

91 Responses of the United States Postal Service to Questions 1-19 of Chairman’s Information Request No. 2, January 17, 2018, question 1 

(Responses to CHIR No. 2).

92 Supplemental Response of the United States Postal Service to Question 1.b of Chairman’s Information Request No. 2, February 23, 2018, at 6.
Docket No. ACR2017 - 65 -

6. Market Dominant International Mail

Market Dominant international mail is comprised of nine products: Inbound Letter Post, 

Outbound Single-Piece First-Class Mail International, International Ancillary Services, 

International Reply Coupon Service, International Business Reply Mail Service, Inbound 

Market Dominant Multi-Service Agreements with Foreign Postal Operators 1, Inbound 

Market Dominant Exprès Service Agreement 1, Inbound Market Dominant Registered 

Service Agreement 1, and Inbound Market Dominant PRIME Tracked Service Agreement.

In FY 2017, Inbound Letter Post, International Ancillary Services, Inbound Market 

Dominant PRIME Tracked Service Agreement, and one agreement within the Inbound 

Market Dominant Multi-Service Agreements with Foreign Postal Operators 1 product did 

not cover their attributable costs. 

a. Inbound Letter Post

(1) Background

Inbound Letter Post consists of international mail that originates in foreign countries and is 

delivered in the United States.93 Foreign postal operators reimburse the Postal Service for 

delivering Inbound Letter Post items at prices, called terminal dues, which are set by the 

Universal Postal Union (UPU).94

(2) FY 2017 Financial Results

In FY 2017, revenue for Inbound Letter Post did not cover attributable cost. Cost coverage 

decreased from 66.4 percent in FY 2016 to 63.3 percent in FY 2017. FY 2016 ACD at 65; FY 

2017 ACR at 8; Library Reference PRC–LR–ACR2017/NP2. Negative contribution increased 

from $134.5 million in FY 2016 to $170.0 million in FY 2017. FY 2016 ACD at 65; FY 2017 

ACR at 8; Library Reference PRC–LR–ACR2017/NP2.

As it has in past years, the Postal Service states that it “does not independently determine 

the prices [paid by foreign postal operators] for delivering foreign origin mail” in the 

United States. FY 2017 ACR at 9. The Postal Service explains that these prices are set 

according to a UPU terminal dues formula established in the Universal Postal Convention. 

Id. According to the Postal Service, “[b]ased on outcomes at the UPU Istanbul Congress, the 

Postal Service expects significant increases in Inbound Letter Post terminal dues revenues 

based on the new Convention cycle effective in January 2018.” Id. The Postal Service also 

points out that in Docket No. R2018-1, the Commission found that the prices for Inbound 

Letter Post would increase by 16.732 percent effective January 21, 2018. Id. The Postal 

 

93 Mail Classification Schedule, Section 1130.1a. “Inbound Letter Post” refers to international mail that is not classified as Parcel Post or express 

mail (EMS and Global Express Guaranteed). It consists of mail items similar to domestic First-Class Mail, Periodicals, Standard Mail, BPM 

Flats/Parcels, and Media Mail/Library Mail, weighing up to 4.4 pounds (2 kilograms).

94 The UPU is a United Nations specialized agency comprising 192 member countries, including the United States. Member countries negotiate 

international agreements governing the exchange of international mail, including applicable rates for the delivery of international mail. 

Terminal dues are also referred to as default UPU default rates, because they apply in the absence of an agreement between or among postal 

operators establishing other rates.
Docket No. ACR2017 - 66 -

Service states that these upcoming price increases should substantially improve the cost 

coverage for Inbound Letter Post Id.

The decrease in cost coverage and increase in negative contribution for Inbound Letter 

Post in FY 2017 was, in large part, due to increases in mail processing, delivery, and “other” 

costs. The Postal Service identifies and discusses the factors that increased mail processing, 

delivery, and other costs for Inbound Letter Post in FY 2017 in response to CHIR No. 10, 

question 6. The Postal Service states that “[mail] processing, delivery and other costs are 

higher for Packets than for Letters and Flats. Between FY 2016 and FY 2017, Packet volume 

and weight increased by a material amount, while Letters and Flats volume and weight 

decreased.”95 Therefore, according to the Postal Service, the volume growth of higher cost 

small packets accounts for some of the increases in the mail processing, delivery, and other 

costs of Inbound Letter Post. Id.

The Postal Service further asserts that part of the increase in processing costs for Inbound 

Letter Post is likely due to the improved use of barcodes in the In-Office Cost System (IOCS) 

to assign costs to a specific product, which led to increased costs for mail preparation and 

platform and sack sorting operations. Id.

The Postal Service has improved the collection of accurate shaped-based data in recent 

years, and has begun developing costing models using this shape-based data.96 However, 

the Postal Service states that the shape-based costs cannot be incorporated into the 

International Cost and Revenue Analysis (ICRA) without additional development, 

particularly in disaggregating indirect costs. See id. The Postal Service explains that it is 

currently investigating a shape-based approach to calculating and reporting Inbound Letter 

Post costs and plans to submit a rulemaking proposal to implement this approach during 

FY 2018. Id.

(3) Comments on Inbound Letter Post

The Small Business & Entrepreneurship Council (SBE Council) and the Public 

Representative commented on Inbound Letter Post. The SBE Council expresses concern 

regarding the “unbalanced consumer market” in which “foreign companies” are charged 

much lower rates than U.S. businesses by the Postal Service for deliveries within the United 

States. SBE Comments at 1. The SBE Council states that although terminal dues increased in 

January 2018, this price increase does little to correct the pricing imbalance between 

foreign and domestic mailers in light of increasing domestic shipping rates. Id. at 1-2. The 

SBE Council notes that the cost to ship a parcel from China to the east coast would be 

substantially less than shipping a similar parcel domestically using a Priority Mail Flat Rate 

box. Id. at 1.

 

95 Responses of the United States Postal Service to Questions 1-7 of Chairman’s Information Request No. 10, February 2, 2018, question 6 

(Responses to CHIR No. 10).

96 Responses of the United States Postal Service to Questions 1-2 of Chairman’s Information Request No. 18, February 20, 2018, question 1a., c 

(Responses to CHIR No. 18).
Docket No. ACR2017 - 67 -

The Public Representative points out that Inbound Letter Post cost coverage has been 

declining each year since FY 2015 and is currently at its lowest level since before FY 2010. 

PR Comments at 23-24. She also notes that, although the product’s volumes and revenue 

per piece increased in FY 2017 by 2.2 percent and 9.9 percent, respectively, the cost per 

piece increased by 15.5 percent. Id. at 24. 

The Public Representative “does not believe that a 16.732 percent increase in prices will be 

sufficient in itself to bring Inbound Letter Post cost coverage to over 100 percent.” Id. at 26. 

She agrees with the concern that the Commission expressed in the FY 2016 ACD that the 

current pricing regime for Inbound Letter Post, which is based on the UPU formula, 

continues to result in noncompensatory terminal dues and leads to the subsidization of 

foreign mailers by domestic mailers. Id. However, she concludes that Inbound Letter Post is 

not out of compliance with chapter 36 of Title 39 due to the Postal Service’s limited ability 

to raise Inbound Letter Post prices sufficiently to cover costs. Id.

The Postal Service contends that the Public Representative also should have considered the 

volume and revenue for supplemental UPU remuneration for signature confirmation and 

tracking on registered items as well as for bilateral market dominant NSAs and the PRIME 

multilateral market dominant NSAs in her analysis of the Inbound Letter Post product. 

Postal Service Reply Comments on Inbound Letter Post at 2. This would be in addition to 

volume and revenues reported in the Inbound Single-Piece First-Class Mail International 

category of the Cost and Revenue Analysis (CRA) report,97 which represents one subset of 

data related to inbound single-piece mail.98 The Postal Service asserts that by limiting her 

analysis to the volume and revenue for the Inbound Letter Post product, the Public 

Representative’s evaluation is incomplete.99

The Postal Service also states that the Commission should consider Outbound Single-Piece 

First-Class Mail International volume and revenue when reviewing compliance of the 

Inbound Letter Post product. Id. at 4-5. It asserts that the Commission should consider the 

benefits of U.S. participation in the UPU to domestic consumers and businesses, including 

benefits associated with the ability to send mail internationally and from investment in the 

United States postal system as a whole with the revenue earned from the Outbound SinglePiece First-Class Mail International product. Id. at 4-6.

 

97 In the CRA report, “Inbound Single-Piece First-Class Mail International” refers to the Inbound Letter Post product.

98 Id. “Inbound single-piece mail” refers to mailpieces sent under the Inbound Letter Post product and the Inbound Market Dominant MultiService Agreements with Foreign Postal Operators 1 product, as well as mailpieces received under the Inbound Market Dominant Exprès 

Service Agreement 1, Inbound Market Dominant Registered Service Agreement 1, and Inbound Market Dominant PRIME Tracked Service 

Agreement products.

99 Id. at 3. The Postal Service states that, presumably, the Commission considers each negotiated service agreement as a “product” to prevent 

the Postal Service from entering into financially unfavorable agreements. Id. The Postal Service argues, however, that this rationale does not 

”work well for” negotiated service agreements for inbound single-piece mail because, up until CY 2018, bilateral agreements were used for 

increased prices in exchange for supplemental services, and not for price discounting. Id.
Docket No. ACR2017 - 68 -

The Postal Service contends that the SBE Council’s comparison of Inbound Letter Post 

terminal dues with Priority Mail Flat Rate Box pricing represents a “misunderstanding of 

postal operations and services and a lack of awareness regarding differences in the 

features and shipping conditions for international and domestic products and services.” Id.

at 6. The Postal Service notes that domestic products include more features than 

international products and require more processing and handling by the Postal Service, 

which results in higher costs for the Postal Service. Id. 

(4) Commission Analysis

The Postal Service argues that analysis of the Inbound Letter Post product should include a 

review of supplemental UPU remuneration and NSA volume and revenue associated with 

the Inbound Letter Post product. Postal Service Reply Comments on Inbound Letter Post at 

2-4. 

The Commission has consistently evaluated compliance at the product level because 

products, by definition, reflect distinct cost or market characteristics to which a rate or 

rates are applied. 39 U.S.C. § 102(6). To the extent the Postal Service believes products 

should be classified differently, the Commission notes that an ACD proceeding is not the 

appropriate venue for such requests.

In reviewing the Inbound Letter Post product, the Commission acknowledges that the UPU 

terminal dues that took effect in January 2018 were price increases. However, resulting 

improvements in negative contribution and cost coverage in FY 2018 will depend on 

several factors. These factors include changes in volume, costs, the proportion of small 

packets to letters and flats in each country-specific mail flow, and the Special Drawing 

Right (SDR)/U.S. dollar exchange rate.100

The Commission reiterates its concern that the UPU pricing regime for the Inbound Letter 

Post product continues to result in noncompensatory terminal dues. As a result, domestic 

mailers are subsidizing the entry of Inbound Letter Post by foreign postal operators who 

use the same postal infrastructure but bear none of the burden of contributing to its 

institutional costs. Because UPU terminal dues are not equivalent to domestic postage rates 

in the destination country, the Commission considers them discriminatory. Copenhagen 

Economics quantified the impact of the UPU terminal dues negotiated at the 2016 UPU 

Congress that took effect in January 2018.101 It concluded that these rates would result in a 

 

100 A SDR is a reserve asset that the International Monetary Fund (IMF) created to serve as a unit of account for the IMF and some international 

organizations, including the UPU. Its value is based on a basket of five major currencies: the U.S. dollar, the Euro, the Chinese renminbi, the 

Japanese yen, and the British pound sterling. On March 8, 2018, the IMF exchange rate for one SDR was $1.4529 U.S. dollars. See 

http://www.imf.org/external/np/fin/data/rms_five.aspx.

101 See Copenhagen Economics, Terminal Dues: Impact on financial transfers among designated postal operators of the Universal Postal Union 

2018-2021 cycle agreements, September 22, 2017 (available at: 

https://www.prc.gov/sites/default/files/reports/Terminal%20Dues_Impact%20on%20financial%20transfers_FINAL%2022%20September%2020

17.pdf).
Docket No. ACR2017 - 69 -

global net financial transfer among designated postal operators that ranges from 2.1 billion 

to 2.4 billion SDR in 2018 to 2.8 billion to 4 billion SDR in 2021.102

The Commission finds that FY 2017 revenue for Inbound Letter Post was not sufficient to 

cover attributable cost. The Commission directs the Postal Service, within 90 days, to submit 

an update on its collection of accurate shaped-based data, and development of costing models 

for Inbound Letter Post using this shape-based data if it has not yet filed a rulemaking 

proposal to implement shape-based costing for Inbound Letter Post in the Domestic 

Processing Model and the ICRA. 

The Commission recommends that the Postal Service identify and implement operational 

strategies to lower costs for Inbound Letter Post in FY 2018, particularly the costs for small 

packets. The Commission also recommends that the Postal Service continue to pursue 

compensatory terminal dues in the UPU and to pursue bilateral agreements that contain rates 

for UPU letter post mail that are more compensatory than UPU terminal dues.

b. Quality of Service Link to UPU Terminal Dues

(1) Background

The Postal Service did not maximize revenue for Inbound Letter Post in FY 2017. Under the 

UPU Quality Link Measurement System (QLMS), terminal dues can be adjusted downward 

if service performance does not achieve the UPU-established annual service performance 

target; they can also be adjusted upward if the Postal Service achieves or exceeds the 

target. In FY 2017, the Postal Service did not achieve the annual target.103 The Postal 

Service also reported the amount of its forfeited revenue due to not meeting the UPU 

service performance target. Id., question 4.

In Calendar Year (CY) 2017, the Postal Service’s service performance for Inbound Letter 

Post under QLMS decreased from CY 2016. Because service performance declined and 

volumes increased, the amount of forfeited revenue increased as compared to CY 2016. Id.

However, in the FY 2017 ACR, the Postal Service reports that its service performance for 

Inbound Letter Post improved from 81.4 percent in FY 2016 to 85.5 percent in FY 2017. FY 

2017 ACR at 52. The service performance results that the Postal Service cites in the FY 

2017 ACR reflect the results of its International Mail Monitoring System (IMMS), not QLMS. 

The Postal Service explains that IMMS and QLMS differ with respect to the third party 

conducting the sampling, the mail flow measured, the measurement period, the 

geographical area measured, the means of measurement, and the calculation of 

performance. Responses to CHIR No. 5, question 8. 

 

102 A global net financial transfer is the difference between the actual compensation that designated postal operators receive from delivering 

inbound cross-border letter mail at UPU terminal dues and the compensation that they would require in a situation without the UPU terminal 

dues system in place (i.e., domestic postage rates).

103 Responses of the United States Postal Service to Questions 1-16 of Chairman’s Information Request No. 1, January 12, 2018, question 4 

(Responses to CHIR No. 1); see id., questions 2 and 3.
Docket No. ACR2017 - 70 -

The Postal Service notes that even though CY 2017 (year-to-date104) service performance 

for Inbound Letter Post measured in QLMS decreased from CY 2016, it improved compared 

to CY 2015. Responses to CHIR No. 5, question 7.

The Postal Service explains that the CY 2017 performance results could have been affected 

by miscommunication that resulted in the Postal Service prematurely ending its 

relationship with the International Post Corporation (IPC) as provider for QLMS 

measurement at the start of 2017 without arranging for an alternative provider to begin 

sampling. Id. The Postal Service states that, although there was “no provider or valid 

sample size information from January through the first week of March 2017, the 

International Post Corporation had some results for January and February.”105 The Postal 

Service further explains that because the number of samples increased during the 

remainder of the calendar year, the annual total was based on a statistically valid sample 

size. Id.

In addition to the change in service provider, the Postal Service cites the following reasons 

for the decline in service performance:

 high volume of Inbound Letter Post letters and flats comingled with small packets 

negatively affected mail processing flows because small packets are processed in 

separate facilities;

 reallocation of mail processing equipment from an International Service Center to a 

domestic processing facility; and 

 natural disasters such as hurricanes and wildfires impacted operations from late

August to the end of October. 

Responses to CHIR No. 5, question 7. 

(2) Commission Analysis

In the FY 2016 ACD, the Commission directed the Postal Service to provide a report on 

Inbound Letter Post service performance as part of the FY 2017 ACR. FY 2016 ACD at 68. 

This report was to include monthly service performance reports for Inbound Letter Post, 

aggregations of weekly failure reports, an analysis of the failures, and steps being taken to 

improve service performance. The Postal Service provided this information for IMMS under 

seal in the FY 2017 ACR. See Library Reference USPS–FY17–NP30.

The Commission notes that the QLMS results, not the IMMS results, determine whether the 

Postal Service will receive lower or higher terminal dues based on its service performance. 

 

104 The Commission notes that due to time lags in data reporting, the Postal Service was only able to provide data from January 2017 through 

November 2017 in the FY 2017 ACR.

105 Responses of the United States Postal Service to Questions 1-4 of Chairman’s Information Request No. 14, February 12, 2018, question 1 

(Responses to CHIR No. 14).
Docket No. ACR2017 - 71 -

Therefore, citing improvements in IMMS results and not the decline in QLMS results does 

not address the concerns that the Commission expressed in past ACDs regarding forfeited 

revenue for Inbound Letter Post. See FY 2016 ACD at 67-68.

Additionally, the Commission is concerned about the reliability of the CY 2017 service 

performance results reported in QLMS. The Postal Service indicates that the results for 

January and February were not statistically valid. Responses to CHIR No. 14, question 1.

Because the annual total is statistically valid, however, the overall performance results and 

resulting penalties are likely to be reliable and accurate.

The Commission concludes that the Postal Service’s service performance for Inbound 

Letter Post declined in FY 2017. As a result of decreased service performance and 

increased Inbound Letter Post volume in FY 2017, the Postal Service forfeited more 

revenue than in FY 2016 for not meeting the UPU service performance target. 

The Commission directs the Postal Service to provide both IMMS and QLMS CY 2017 and CY 

2018 performance reports for Inbound Letter Post, aggregations of weekly failure reports, 

and an analysis of the failures and steps being taken to improve service performance in the FY 

2018 ACR.

c. International Ancillary Services

(1) Background

International Ancillary Services consists of International Certificate of Mailing, 

International Registered Mail, International Return Receipt, and Customs Clearance and 

Delivery Fee. Mail Classification Schedule, Section 1510. In FY 2017, International Ancillary 

Services had a cost coverage of 86.2 percent, and, therefore, did not cover its attributable 

cost. FY 2017 ACR at 43. This failure to cover cost, which resulted in a negative 

contribution of $5.7 million, was due to the negative contribution from International 

Registered Mail. FY 2017 ACR at 43-44. International Ancillary Services covered its 

attributable cost as a whole in FY 2016 even though International Registered Mail did not. 

FY 2016 ACD at 70.

The Postal Service states that “International Ancillary Services would have covered its 

attributable costs in FY 2017 but for a loss on Inbound Registered Mail.” FY 2017 ACR at 

44. The rate for International Registered Mail is set by the UPU. The Postal Service notes 

that the additional payment per item for International Registered Mail increased from 0.69 

SDR in CY 2017 to 1.1 SDR in CY 2018, which should help to improve cost coverage.106

The Postal Service further states that it participates in the voluntary supplementary 

remuneration for inbound registered items, which should also lead to additional revenue. 

FY 2017 ACR at 44. In addition, the Postal Service indicates that more foreign postal 

 

106 Id. While the Postal Service indicates that the CY 2017 rate for registered items is 0.69 SDR, it is 0.67 SDR. Universal Postal Convention, 

Article 29.8, effective CY 2014 to CY 2017.
Docket No. ACR2017 - 72 -

operators became parties to the Inbound Market Dominant Registered Service Agreement 

1, which creates a separate revenue source associated with registered mail from postal 

operators that exchange mailpieces under this agreement.107 The Postal Service notes that 

it began reporting the revenue from the Inbound Market Dominant Registered Service 

Agreement 1 separately from International Registered Mail, which may explain the 

decrease in unit revenue for International Registered Mail. Response to CHIR No. 3, 

question 3.

The Postal Service provides two reasons why unit cost increased for International 

Registered Mail. First, the Postal Service states that cost decreased less than volume 

decreased and one reason for this is because “most of the costs are in Delivery which has 

less than 100 percent volume variability.” Id. Second, the Postal Service suggests that a 

costing methodology change could have contributed to the increased unit cost. Id. The 

Postal Service also states that due to the small IOCS sample size, the coefficient of variation 

for International Registered Mail is 13 percent, meaning “the cost coverage would range 

from 13 percentage points below the current point estimate to 21 percentage points 

higher.” Id., question 4.

(2) Comments on International Registered Mail

The Public Representative points out that the Postal Service provided the same rationale 

for the failure of International Registered Mail to cover its attributable cost in the FY 2016 

ACR. PR Comments at 44; see FY 2016 ACR at 62-63. The Public Representative 

recommends that the Commission ask the Postal Service to report on why its strategy does 

not appear to be working. PR Comments at 44.

The Postal Service notes that the increase in the additional payment per item for 

International Registered Mail between CY 2017 and CY 2018, from 0.69 SDR to 1.1 SDR, is 

significantly greater than the increase that occurred between CY 2016 and CY 2017. Postal 

Service Reply Comments at 10.

The Postal Service also notes that it already provided the additional information requested 

by the Public Representative. Id. Specifically, the Postal Service states that it provided 

information concerning factors that contributed to the decrease in unit revenue cost and 

the increase in unit cost for International Registered Mail from FY 2016 to FY 2017. Id.

(3) Commission Analysis

The Commission finds that the 64.2 percent price increase in the UPU registered mail rate 

in CY 2018 should result in compensatory cost coverage for International Registered Mail 

 

107 Id. In the FY 2016 ACD, the Commission urged the Postal Service to promote greater participation by foreign postal operators in the Inbound 

Market Dominant Registered Service Agreement, noting that it provides more compensatory prices for registered mail from participating 

foreign postal operators. FY 2016 ACD at 70.
Docket No. ACR2017 - 73 -

and International Ancillary Services in FY 2018.108 This 64.2 percent price increase is far 

greater than the 2.8 percent price increase in the UPU registered mail rate in CY 2017.109

The Commission finds that in FY 2017, International Ancillary Services did not cover its 

attributable cost due to the failure of International Registered Mail to cover its attributable 

cost. The Commission urges the Postal Service to continue to promote greater participation by 

foreign postal operators in the Inbound Market Dominant Registered Service Agreement 1, 

which provides more compensatory remuneration for registered mail from participating 

foreign postal operators. The Commission also recommends that the Postal Service identify 

and implement ways to reduce costs for International Registered Mail.

7. Market Dominant International Products 

Consisting of NSAs

a. Background

As an alternative to default UPU rates, the Postal Service may enter into bilateral NSAs with 

foreign postal operators that include negotiated rates for some or all Inbound Letter Post 

items. See Mail Classification Schedule, Section 1602. These negotiated rates are generally 

higher than the default UPU terminal dues.

The Postal Service reports financial results for four inbound international products that 

consist of NSAs: Inbound Market Dominant Multi-Service Agreements with Foreign Postal 

Operators 1, Inbound Market Dominant Exprès Service Agreement 1, Inbound Market 

Dominant Registered Service Agreement 1, and Inbound Market Dominant PRIME Tracked 

Service Agreement. All are included on the market dominant product list.

The statutory test for compliance of Market Dominant NSAs is found in 39 U.S.C. §§ 

3622(c)(10)(A)(i) and (ii), and requires that the Commission determine whether such 

NSAs improve the net financial position of the Postal Service or enhance operational 

performance. The Commission compares the cost coverage for each NSA at negotiated rates 

with the cost coverage at UPU terminal dues to make the determination of net financial 

benefit.

During FY 2017, the Inbound Market Dominant Multi-Service Agreements with Foreign 

Postal Operators 1 product was comprised of nine bilateral agreements with six foreign 

postal operators: the Australian Postal Corporation (Australia Post), Canada Post 

Corporation (Canada Post), China Post Group, Hongkong Post, Korea Post, and Royal 

PostNL.110 For FY 2017, the Postal Service reports that these NSAs, collectively, maintained 

 

108 This assumes that there is no significant change in volume or attributable cost and no significant change in cost coverage for other subproducts within the International Ancillary Services product.

109 The rate for Inbound Registered Mail in CY 2016 was 0.652 SDR, as compared to 0.670 SDR in CY 2017. Universal Postal Convention, Article 

29.8, effective CY 2014 to CY 2017.

110 Royal PostNL is the postal operator of the Netherlands.
Docket No. ACR2017 - 74 -

a cost coverage above 100 percent; however, the NSA with Royal PostNL failed to cover its 

attributable cost. FY 2017 ACR at 48. This agreement expired on December 31, 2016. Id.

In the FY 2016 ACD, the Commission requested that in future ACR filings the Postal Service 

provide financial documentation demonstrating that noncompensatory bilateral 

agreements improve the net financial position of the Postal Service over UPU default 

terminal dues. FY 2016 ACD at 69. The financial results show that cost coverage at the 

negotiated rates for all nine agreements, including the agreement with Royal PostNL that 

did not cover its attributable cost, exceeded cost coverage at UPU default rates. These 

results confirm that all NSAs within the Inbound Market Dominant Multi-Service 

Agreements with Foreign Postal Operators 1 product improved the Postal Service’s net 

financial position. In FY 2017, the Inbound Market Dominant Exprès Service Agreement 1 

and the Inbound Market Dominant Registered Service Agreement 1 products covered their 

attributable costs and improved the Postal Service’s net financial position.

(1) Comments on International Market Dominant NSAs

No participants filed comments on Market Dominant international products consisting of 

NSAs.

(2) Commission Analysis

The FY 2017 financial results for the Inbound Market Dominant Multi-Service Agreements 

with Foreign Postal Operators 1 product appear to advance the Postal Service’s strategy, 

discussed in previous ACRs, of negotiating bilateral NSAs with some of the larger foreign 

postal operators that exchange inbound international mail items with the Postal Service.111

These bilateral NSAs within the Inbound Market Dominant Multi-Service Agreements with 

Foreign Postal Operators 1 product benefit the Postal Service because the rates negotiated 

in the agreements are higher than the default UPU terminal dues.

In FY 2017, the Inbound Market Dominant PRIME Tracked Service Agreement product 

neither covered its attributable cost nor improved the Postal Service’s net financial 

position. Under the Inbound Market Dominant PRIME Tracked Service Agreement, the 

Postal Service can receive supplementary remuneration from other participating foreign 

postal operators, in addition to UPU terminal dues, for meeting specified service 

performance criteria for tracked letter post items. In the FY 2017 ACR, the Postal Service 

failed to report that the Inbound Market Dominant PRIME Tracked Service Agreement 

product did not cover its attributable cost or improve the Postal Service’s net financial 

position or operational performance. See FY 2017 ACR at 48. 

The Postal Service confirmed the accuracy of the volume and revenue of the Inbound 

Market Dominant PRIME Tracked Service Agreement product that it provided under seal. 

Responses to CHIR No. 1, question 5. The Postal Service also explained why actual volume 

and revenue differed from the volume and revenue estimates that the Postal Service 

 

111 Docket No. ACR2012, Annual Compliance Report, December 28, 2012, at 17 (FY 2012 ACR).
Docket No. ACR2017 - 75 -

provided in Docket No. R2017-3. Id. The Postal Service provided its response under seal. 

Id.; Library Reference USPS–FY17–NP31, Preface. 

The Postal Service filed revised financial workpapers for the Inbound Market Dominant 

PRIME Tracked Service Agreement to reflect the actual FY 2017 volume, revenue, and cost 

data from participating countries. Responses to CHIR No. 5, question 9. The Postal Service 

provided details regarding the expected improvements to its net financial position to 

reflect actual data. Id. The Postal Service’s responses indicate that Inbound Market 

Dominant PRIME Tracked Service Agreement product did not cover cost or improve the net 

financial service position or operations of the Postal Service. See Responses to CHIR No. 5, 

question 9.

The Commission finds that the Inbound Market Dominant Multi-Service Agreements with 

Foreign Postal Operators 1, Inbound Market Dominant Exprès Service Agreement 1, and 

Inbound Market Dominant Registered Service Agreement 1 products satisfy 39 U.S.C. § 

3622(c)(10). The Commission finds that the Inbound Market Dominant PRIME Tracked 

Service Agreement product did not meet the criteria of 39 U.S.C. § 3622(c)(10). The 

Commission directs the Postal Service to encourage more countries to participate in the 

Inbound Market Dominant PRIME Tracked Service Agreement, as more volume exchanged 

within this agreement should improve cost coverage. In addition, in 90 days, the Postal Service 

shall file revised financial workpapers in Docket. No. R2017-3 to reflect actual year-to-date 

volume, revenue, and cost in FY 2018.

8. Media Mail/Library Mail

In FY 2017, Media Mail/Library Mail had a cost coverage of 75.7 percent, a 0.5 percent 

increase compared with FY 2016.112 Unit contribution increased 4.9 cents per piece from 

FY 2016 to FY 2017. Id. FY 2017 was the eleventh consecutive year that Media Mail/Library 

Mail did not generate sufficient revenues to cover attributable costs. Docket No. R2018-1 

included an above-average price increase for Media Mail/Library Mail. FY 2017 ACR at 40. 

The Postal Service states that it intends to continue to improve the cost coverage of Media 

Mail/Library Mail through above-average price increases. Id. at 40-41. Table III-12 shows 

the history of price increases for Media Mail/Library Mail under the PAEA.

Table III-12

Media Mail/Library Mail

Price Adjustment vs. Price Adjustment Authority

Docket No. Media Mail/Library Mail 

Price Adjustment

Price Adjustment Authority 

(Price Cap)

R2008-1 4.538% 2.900%

R2009-2 7.468% 3.800%

 

112 See Library Reference PRC–LR–ACR2016/1, Excel file “Summary_LR1.xlsx.”
Docket No. ACR2017 - 76 -

R2011-2 1.964% 1.741%

R2012-3 2.581% 2.133%

R2013-1 3.469% 2.570%

R2013-10 2.061% 1.696%

R2015-4 2.197% 1.966%

R2017-1 1.135% 0.871%

Source: Library Reference PRC–LR–ACR2017/6.

The Public Representative notes the small increase in cost coverage for Media Mail/Library 

Mail in FY 2017 compared with FY 2016. PR Comments at 38. She points to the decrease in 

cost-per-piece of 12.5 cents and the decrease of 6.5 cents in revenue-per-piece as relative 

improvements over FY 2016, when the improvements were 7.0 and 11.0 cents, 

respectively. Id. She notes the Postal Service’s intent to continue improving the cost 

coverage over time through above-average price increases, and suggests the educational, 

cultural, scientific, or informational value exception to the cost coverage requirement 

applies in this proceeding, as it did in previous years. ld.

Media Mail/Library Mail did not cover its attributable cost or make a contribution to 

institutional costs in FY 2017. The Commission has previously recognized that Media 

Mail/Library Mail has educational, cultural, scientific, or informational value to the 

recipient of the mail matter. See, e.g., FY 2016 ACD at 71; FY 2015 ACD at 67.

The Commission finds that FY 2017 revenue for Media Mail/Library Mail was not sufficient to 

cover attributable cost. However, the Postal Service’s approach to improve cost coverage 

through above-average price increases in future Market Dominant price adjustments is 

appropriate. The Commission also encourages the Postal Service to explore opportunities to 

further reduce the unit cost of Media Mail/Library Mail.

9. Domestic Market Dominant NSAs

Domestic Market Dominant NSAs must comply with 39 U.S.C. § 3622(c)(10). That section 

requires that such agreements either “improve the net financial position of the Postal 

Service” or “enhance the performance of mail preparation, processing, transportation, or 

other functions” and that they “not cause unreasonable harm to the marketplace.” 39 U.S.C. 

§ 3622(c)(10).

After approving a Market Dominant NSA, the Commission evaluates it for compliance with 

39 U.S.C. § 3622(c)(10). The Commission reviews the NSA’s performance during “contract 

years,” 12-month periods measured from the time the contract was implemented. The 

Commission reviews the contract year that ended during the fiscal year covered by the 

ACD.
Docket No. ACR2017 - 77 -

For domestic Market Dominant NSAs, the current accepted analytical principle for 

estimating volume changes due to the Postal Service’s pricing incentive programs uses 

price elasticity to estimate the new volume generated.113 This principle provides for 

consideration of “the financial impact of price incentives to increase mail volume or to shift 

mail volume between products should be based on the Postal Service’s best estimate of the 

price elasticity of the discounted product.” Order No. 738 at 3.

In FY 2017, one domestic Market Dominant NSA was in effect: the PHI Acquisitions, Inc. 

(PHI) NSA.114 The Commission evaluates the PHI NSA based on its performance during 

Contract Year 3 (July 1, 2016 through June 30, 2017), which ended in FY 2017.

PHI qualified for $123,000 in discounts in Contract Year 3. Using the elasticity-based 

accepted analytical principle, the Postal Service estimates that the PHI NSA resulted in a net 

contribution of negative $123,000.115 The Postal Service states that due to operational 

challenges faced by PHI, annual volume was less than the baseline, thus there were no 

incremental pieces to generate additional contribution. Id. at 46-47. 

For Contract Year 4 Quarters 3 and 4 (January 1, 2018 through June 30, 2018), PHI and the 

Postal Service agreed to suspend the Postal Service’s obligation to pay rebates.116 The 

Postal Service acknowledges that the PHI NSA did not comply with 39 U.S.C. 

§ 3622(c)(10)(A) in FY 2017, but contends that the recent notice of contract suspension 

should militate against any additional corrective action at this time. Id. at 47. 

Contract Year 4, Quarters 1 and 2 are complete. Due to the suspension of the contract for 

Contract Year 4 Quarters 3 and 4, it is unlikely that PHI will meet the annual baseline 

volume for Contract Year 4. If the Postal Service pays any rebate in Contract Year 4 

Quarters 1 and 2 and there is no volume in Quarters 3 and 4, the entire rebate will be 

negative financial contribution.

The PHI NSA is a 5-year NSA approved by the Commission in Docket Nos. MC2014-21 and 

R2014-6. In Contract Year 1, the PHI NSA made a net financial contribution of $112,000. In 

Contract Year 2, the PHI NSA made a net financial contribution of negative $1,047,000. In 

Contract Year 3, the PHI NSA made a net financial contribution of negative $123,000. To 

date, the PHI NSA made a net financial contribution of negative $1,058,000. In Contract 

Year 4, the PHI NSA will likely make zero or negative financial contribution. When 

amending the contract, the Postal Service and PHI should create prices and terms that 

 

113 Docket No. RM2010-9, Order Terminating Proceeding, May 27, 2011, at 1 (Order No. 738) (quoting Docket No. RM2008-4, Order No. 104, 

Notice of Proposed Rulemaking Prescribing Form and Content of Periodic Reports, August 22, 2008, at 9).

114 FY 2017 ACR at 46. International Market Dominant NSAs are discussed in section B.8.d., supra.

115 FY 2017 ACR at 46.

116See Docket Nos. MC2014-21 and R2014-6, Notice of the United States Postal Service of Temporary Suspension of Contract, December 8, 

2017.
Docket No. ACR2017 - 78 -

maximize positive contribution in order to offset the negative contribution from Years 2, 3, 

and potentially 4.

The Commission is concerned that the Postal Service’s actions regarding the PHI NSA 

indicate a continuing lack of institutional oversight. The Commission reminded the Postal 

Service in its FY 2016 ACD that it is responsible for negotiating and overseeing NSAs and 

ensuring that any Market Dominant NSA it enters into continues to improve the net 

financial position of the Postal Service. See 39 U.S.C. § 3622(c)(10)(A). The fact that the 

Postal Service decided only in Contract Year 4 to temporarily suspend the contract is 

troubling, given that it had ample opportunity to either terminate the contract or negotiate 

an amendment to the contract sooner. 

The Commission finds that the PHI NSA did not meet the criteria of 39 U.S.C. § 3622(c)(10)(A) 

in Contract Year 3. If the Postal Service provides the Commission with the amended contract 

for review, the filing shall include a volume forecast for the remainder of the PHI NSA and an 

estimate of the total contract net financial contribution. If an amended contract is not in 

effect by June 30, 2018, the PHI NSA will remain suspended.

C. Other Issues

1. First-Class Mail Product Cost Coverage Disparity 

The Major Mailers Association, National Association of Presort Mailers, and National Postal 

Policy Council (First-Class Business Mailers) contend that the Commission should apply its 

just analysis from Order No. 4257 in this proceeding. Specifically, the First-Class Business 

Mailers contend that First-Class Mail Presorted Letters/Postcards rates are unjust. The 

Postal Service provided reply comments regarding the use of Order No. 4257 in the instant 

proceeding.

The First-Class Business Mailers assert that the high cost coverage of First-Class Mail 

Presorted Letters/Postcards, particularly when compared to other classes and products, 

demonstrates that these rates are unjust. First-Class Business Mailers Comments at 2-3. 

These mailers also observe that this cost coverage is high despite this product having a 

relatively low price elasticity of demand. Id. at 3. These mailers apply the analytical tools 

developed in Order No. 4257 to evaluate the justness of First-Class Mail Presorted 

Letters/Postcards rates in FY 2017 and conclude that these rates were unjust in FY 2017. 

Id. at 4-5. The First-Class Business Mailers acknowledge that a decrease in First-Class Mail 

Presorted Letters/Postcards rates in Docket No. R2017-1 and a revised definition of 

attributable cost slightly reduced cost coverage for First-Class Mail Presorted 

Letters/Postcards but urge the Commission to find First-Class Mail Presorted 

Letters/Postcards rates unjust. Id. at 5. 

As in previous ACR proceedings, Pitney Bowes acknowledges a disparity in cost coverage 

between First-Class Mail Single-Piece Letters/Cards and First-Class Mail Presorted 

Letters/Postcards, and suggests rebalancing cost coverage and contributions among First-
Docket No. ACR2017 - 79 -

Class Mail products. Pitney Bowes Comments at 3. Frontiers of Freedom, the National 

Taxpayers Union, and the American Consumer Institute Center for Citizen Research (ACI) 

also express concern with continued price increases for already-profitable First-Class Mail 

Single-Piece Letters/Cards, and warn that this volume may be inappropriately subsidizing 

other products.117

In its reply comments, the Postal Service urges the Commission not to stray beyond the 

scope of the section 3653 review by applying the conclusions of Order No. 4257 to this 

proceeding. Postal Service Reply Comments at 2-3. The Postal Service notes that the price 

cap is applied at the class level, affording the Postal Service the flexibility to apply nonuniform price adjustments within a class. Id. at 9. The Postal Service states that the cost 

coverage for First-Class Presorted Letters/Postcards has been higher than the cost 

coverage of other products throughout the PAEA period without a finding of 

noncompliance, and that no basis exists to render a different decision. Id. at 4. The Postal 

Service also states that it is complying with Commission directives regarding underwater 

products. Id. GCA also submits that the basis for the First-Class Business Mailers’ 

submission is their longstanding disagreement with the definition of compensable 

worksharing, not anything new from Order No. 4257. GCA Reply Comments at 1.

To the extent that the First-Class Business Mailers take issue with the metrics and 

determination reached in Order No. 4257, these issues are more appropriate for Docket No. 

RM2017-3. However, the Commission notes that the First-Class Business Mailers rely on the 

supplementary analysis used in Order No. 4257 in presenting their comments in this ACD. 

Under the Commission’s determinative metric for just rates in Order No. 4257, the Commission 

concluded that the system maintained just rates during the PAEA era because price increases 

were not excessive to mailers.

The Commission has previously noted that the Postal Service’s pricing flexibility, subject to the 

inflation-based cap, can be used to apply non-uniform price adjustments within a class.118

With respect to First-Class Mail cost coverage disparities, the Commission continues to 

encourage the Postal Service to balance its own needs with those of its customers.

2. First-Class Mail Volume Decline

The First-Class Business Mailers observe that First-Class Mail volume fell 4.1 percent in FY 

2017, and note that the Postal Service does not discuss in detail the cause of this decline. 

First-Class Business Mailers Comments at 7-8. These mailers also express concern with the 

Postal Service’s volume forecasts relying heavily on intervention variables and time trends 

without economic rationale or a narrative discussion of the decline. Id. at 8-9. These 

mailers assert that the pricing of First-Class Mail, coupled with the rate shock of the exigent 

 

117 Comments of Frontiers of Freedom, February 1, 2018, at 1-2 (Frontiers of Freedom Comments); Comments Pete Sepp, President, National 

Taxpayers Union, February 1, 2018, at 1-3 (NTU Comments); Comments of American Consumer Institute Center for Citizen Research, January 

30, 2018, at 1-2 (ACI Comments).

118 See supra, at page 5 n.2.
Docket No. ACR2017 - 80 -

surcharge, caused the electronic diversion that the Postal Service asserts is responsible for 

this volume decline. Id. at 9-10. The First-Class Business Mailers encourage the Commission 

to direct the Postal Service to address why volume is falling, why its demand models did 

not forecast this decline, and how it plans to slow or reverse the decline. Id. at 10.

In its reply comments, the Postal Service urges the Commission not to stray beyond the 

scope of the annual compliance review by accepting the First-Class Business Mailers’ 

recommendation, which these mailers expressly state are not required by the 

Commission’s rules. Postal Service Reply Comments at 2-3.

The Commission’s rules do not explicitly direct the Postal Service to discuss significant volume 

declines or require the Postal Service to address plans to stem or reverse such losses. The 

Commission declines to direct the Postal Service to provide the requested information.

3. First-Class Mail Cost Avoidance Models

The First-Class Business Mailers note that First-Class Mail Presorted Letters/Postcards

have an exceptionally high cost coverage despite a 98.3 percent passthrough for 5-Digit 

Automation Letters. These mailers assert that this reflects certain cost characteristics, such 

as local entry, traying and facing, entry near the destination, and a lower cost sales channel, 

not being included in the workshare calculations for Presorted Letters/Postcards. FirstClass Business Mailers Comments at 5-6. They observe that workshare discounts only 

explain 8.7 cents of the 17.8 cent difference in costs per piece between First-Class Mail 

Presorted Letters/Postcards and First-Class Mail Single-Piece Letters/Cards. Id. at 6. They 

assert that the remainder of the cost differential arises from low-cost characteristics not 

included in worksharing calculations, and thus not recognized in First-Class Mail Presorted 

Letters/Postcards prices. Id.

In its reply comments, GCA observes that the argument the First-Class Business Mailers has 

raised is not new, and that the characteristics raised by the First-Class Business Mailers do 

not dispense with a function the Postal Service would otherwise have to perform or 

potentiate the worksharing effect. GCA Reply Comments at 1-2. In addition, in its reply 

comments, the Postal Service states that the mail characteristics cited by the First-Class 

Business Mailers do not constitute “workshare activity.” Postal Service Reply Comments at 

4. Both GCA and the Postal Service maintain that the analytical principles applied in 

creating workshare cost avoidance models have been subject to separate proceedings, and 

GCA contends that proposal to expand the definition of worksharing is not a matter for 

consideration in an annual compliance review. Id. at 4; GCA Reply Comments at 2.

The Commission declines to reconsider whether the mail characteristics identified by the 

First-Class Business Mailers constitute workshare activity within the meaning of section 

3622(e).
Docket No. ACR2017 - 81 -

CHAPTER 4: COMPETITIVE PRODUCTS

A. Introduction

In this chapter, the Commission reviews Competitive products to determine whether any 

rates or fees in effect during FY 2017 were not in compliance with 39 U.S.C. § 3633, which:

 Prohibits subsidization of Competitive products by Market Dominant products: 

39 U.S.C. § 3633(a)(1)

 Requires that each Competitive product cover its attributable cost: 39 U.S.C. 

§ 3633(a)(2)

 Requires that, collectively, Competitive products cover an appropriate share of the 

Postal Service’s institutional costs: 39 U.S.C. § 3633(a)(3)

The principal FY 2017 findings for Competitive products are:

 Revenues, as a whole, exceeded incremental costs. Competitive products were not 

subsidized by Market Dominant products during FY 2017, thereby satisfying 

39 U.S.C. § 3633(a)(1).

 Revenues for seven Competitive products did not cover attributable costs and 

therefore did not comply with 39 U.S.C. § 3633(a)(2). The Competitive products that 

did not cover attributable costs are: four domestic NSAs, International Money 

Transfer Service—Outbound (IMTS—Outbound), International Money Transfer 

Service—Inbound (IMTS—Inbound), and International Ancillary Services.

 Collectively, Competitive products satisfied the requirement that they provide a 

minimum contribution of 5.5 percent of institutional costs. See 39 C.F.R. § 3015.7(c). 

As a result, Competitive products satisfied 39 U.S.C. § 3633(a)(3) during FY 2017.

B. Cross-Subsidy Provision: 39 U.S.C. 

§ 3633(a)(1)

39 U.S.C. § 3633(a)(1) requires that Competitive products not be subsidized by marketdominant products. To determine compliance, the Commission uses the incremental cost 

test, which calculates the costs incurred by Competitive products collectively, and 

compares those costs to the revenue generated by Competitive products collectively. As 

long as the revenue from Competitive products exceeds those products’ incremental cost, 

the Commission can conclude that no cross-subsidization has occurred.119

 

119 See Docket No. RM2007-1, Order Proposing Regulations to Establish a System of Ratemaking, August 15, 2007, at 65 (Order No. 26).
Docket No. ACR2017 - 82 -

Because the collective incremental costs of Competitive products are greater than the sum 

of the attributable cost of each product, using collective incremental costs raises the 

Competitive product cost floor when testing for cross-subsidies.120 Therefore, the 

incremental cost model provides a more rigorous test for determining compliance with 39 

U.S.C. § 3633(a)(1) than the attributable cost coverage requirement of 39 U.S.C.§ 

3633(a)(2).

In Order No. 399, the Commission approved a hybrid incremental cost methodology, 

wherein the incremental costs are calculated for domestic Competitive products, but 

volume-variable costs and product-specific costs are used for Competitive international 

mail as a proxy for incremental costs, due to the lack of disaggregated international data. 

Order No. 399 at 4-5. 

In FY 2017, the Postal Service was able to disaggregate the international mail cost pools 

between Market Dominant and Competitive products. FY 2017 ACR at 67-68. This allows 

for the calculation of incremental costs for Competitive international mail and, by 

extension, the calculation of incremental costs for Competitive mail collectively. Id. 

The Public Representative identifies this calculation of incremental costs as a new measure, 

but concludes that Market Dominant products did not subsidize Competitive products in FY 

2017. PR Comments at 56-57.

Using the new methodology provided by the Postal Service, in FY 2017 the incremental 

costs of Competitive products were $13.884 billion and the total revenues of Competitive 

products were $20.689 billion. FY 2017 ACR at 68. Accordingly, in FY 2017 revenues from 

Competitive products exceeded incremental costs. 

For purposes of this ACD, the Commission accepts the Postal Service’s estimates of Competitive 

product incremental costs and finds Competitive products satisfied 39 U.S.C. § 3633(a)(1) in 

FY 2017. The Commission concludes, however, that this is a change in analytical principles 

that the Commission has not approved, and directs the Postal Service to file a petition for the 

initiation of a proceeding to consider this proposed change in analytical principles within 90 

days of issuance of this ACD. 

C. Product Cost Coverage Provision: 39 U.S.C. 

§ 3633(a)(2)

39 U.S.C. § 3633(a)(2) requires the revenue for each Competitive product to cover its 

attributable cost. Below, the Commission discusses the FY 2017 financial performance for 

five separate Competitive product groupings:

 

120 Docket No. RM2010-4, Order Accepting Analytical Principles Used in Periodic Reporting (Proposals Twenty-Two through Twenty-Five), 

January 27, 2010, at 4-5 (Order No. 399).
Docket No. ACR2017 - 83 -

 Competitive domestic products with rates of general applicability

 Competitive domestic products consisting of NSAs121

 Competitive international products with rates of general applicability

 Competitive international products consisting of NSAs

 Competitive nonpostal services

1. Competitive Domestic Products with Rates of 

General Applicability

In FY 2017, there were 12 Competitive domestic products with rates of general 

applicability: Priority Mail Express; Priority Mail; Parcel Select; Parcel Return Service; 

First-Class Package Service; Retail Ground; Address Enhancement Services; Greeting Cards, 

Gift Cards, and Stationery; Competitive Ancillary Services;122 Premium Forwarding Service;

Post Office Box Service; and Shipping and Mailing Supplies.

In FY 2017, every Competitive domestic product with rates of general applicability covered its 

attributable cost and thereby satisfied the statutory requirements of 39 U.S.C. § 3633(a)(2). 

2. Competitive Domestic Products Consisting of 

NSAs

As shown in Table IV-1, in FY 2017, there were 846 Competitive domestic products 

consisting of NSAs.

 

121 As discussed in Chapter 3, an NSA is a written contract between the Postal Service and a mailer, to be in effect for a defined period, which 

provides for customer-specific rates or fees and/or terms of service in accordance with the terms and conditions of the contract. See 39 C.F.R. 

§ 3001.5(r).

122 The Competitive Ancillary Services product consists of the following services: Adult Signature and Package Intercept Service. See Mail 

Classification Schedule, Section 2645.
Docket No. ACR2017 - 84 -

Table IV-1

Competitive Domestic NSA Products in Effect During FY 2017

Competitive Domestic NSA Product Groupings Number of Productsa

First-Class Package Service Contracts 53

Parcel Return Service Contracts 8

Parcel Select & Parcel Return Service Contracts 3

Parcel Select Contracts 20

Priority Mail—Non-Published Ratesb Contracts 316

Priority Mail & First-Class Package Service Contracts 46

Priority Mail Contracts 319

Priority Mail Express & Priority Mail Contracts 32

Priority Mail Express Contracts 29

Priority Mail Express, Priority Mail & First-Class Package Service Contracts 18

Priority Mail & Parcel Select Contracts 2

Total 846

a With the exception of NSAs entered into under the Priority Mail—Non-Published Rates (NPR) product, each Competitive domestic NSA is a 

separate product.

b The Priority Mail—NPR product allows the Postal Service to enter into Priority Mail NSAs without filing the agreements with the Commission 

for pre-implementation review.

Source: Library Reference USPS–FY17–NP27, December 29, 2017 (revised January 5, 2018).

a. Attributable Cost Coverage

39 U.S.C. § 3633(a)(2) requires each Competitive domestic NSA product to cover its 

attributable cost. The Commission finds that all but four Competitive domestic NSAs 

covered their attributable costs and complied with this statutory requirement. The 

Competitive domestic NSAs that did not cover their attributable costs were Priority Mail 

Contract 123, Priority Mail Contract 183, Priority Mail Contract 214, and Priority Mail 

Contract 228.123

The Postal Service states that three of these contracts either expired or were terminated.124

The fourth, Priority Mail Contract 123, fell minimally below 100 percent and is being 

monitored pending reevaluation. Id. The Postal Service states that this contract’s failure to 

cover costs was due to a shift to lighter weight packages. Id. It notes that the contract 

involves return packages, which incur lower unit delivery costs due to bulk delivery, and 

states that it is reviewing the underlying cost model and will renegotiate pricing if 

necessary. Id. at 70. 

The Public Representative notes that a total of four domestic NSAs failing to cover their 

costs represents a significant improvement over the previous fiscal year.125 The Public 

 

123 Library Reference USPS–FY17–NP27, December 29, 2017.

124 FY 2017 ACR at 69.

125 PR Comments at 62.
Docket No. ACR2017 - 85 -

Representative appreciates the Postal Service’s progress in monitoring cost coverage for 

domestic NSAs. Id.

The Commission finds that Priority Mail Contract 123, Priority Mail Contract 183, Priority 

Mail Contract 214, and Priority Mail Contract 228 were not in compliance with 39 U.S.C. § 

3633(a)(2) in FY 2017. Because Priority Mail Contract 183, Priority Mail Contract 214, and 

Priority Mail Contract 228 are no longer active, no further action is required. The Commission 

directs the Postal Service to report within 30 days of issuance of this ACD on the result of its 

review of the cost model underlying Priority Mail Contract 123 and on any additional steps it 

plans to take to improve cost coverage. 

The Commission acknowledges the Postal Service’s improvements in its monitoring and 

reporting practices for domestic NSAs.

b. Reliance on Estimated Customer Profiles to Calculate 

Cost Coverage

The Postal Service identified nine Priority Mail NSAs for which the data collected are 

insufficiently detailed to determine the weight and zone of the customer’s pieces.126 The 

collected data for these contracts are less granular than the cost model for Priority Mail 

NSAs, making the collected data unsuitable for calculating the cost coverage using that 

model.127 For two of these NSAs, the Postal Service instead relies on sampled data to 

calculate cost coverage. NP45 Preface at 2. For the remaining seven NSAs, the Postal 

Service relies on the forward-looking customer weight and zone profile estimates 

submitted as part of the initial review process. Id. The Commission has reviewed the data 

used to calculate cost coverage for these agreements. The data represent the best 

information available to assess compliance of the relevant NSAs.

Therefore, the Commission finds the identified contracts to be in compliance. Going forward, 

the Commission will increase its scrutiny of estimated customer profiles that will be relied 

upon for cost coverage calculations. The Commission will continue to evaluate on an ongoing 

basis whether the data provided by the Postal Service are sufficient to assess compliance.

3. Competitive International Products with Rates of 

General Applicability

Ten Competitive international mail products have rates and fees of general applicability: 

Outbound International Expedited Services; Outbound Priority Mail International; Inbound 

Parcel Post (at UPU rates); Outbound Single-Piece First-Class Package International 

Service; International Surface Airlift; International Priority Airmail; International Direct 

 

126 Preface to Library Reference USPS–FY17–NP45, March 6, 2018, at 2 (NP45 Preface). 

127 See id.; Preface to Library Reference USPS–FY–NP38, February 2, 2018, at 6.
Docket No. ACR2017 - 86 -

Sacks—M-Bags; IMTS—Outbound; IMTS—Inbound;128 and International Ancillary 

Services.129

The Commission finds that three products, IMTS—Outbound, IMTS—Inbound, and 

International Ancillary Services did not satisfy 39 U.S.C. § 3633(a)(2). 

a. International Money Transfer Service

Revenues for both the IMTS—Outbound and IMTS—Inbound products were less than 

attributable costs in FY 2017. By comparison, in FY 2016, revenue for IMTS—Outbound 

exceeded attributable cost, while revenue for IMTS—Inbound did not.

The Postal Service observes that the volumes for the IMTS—Outbound and IMTS—Inbound 

products continue to be small and that “it is difficult to obtain enough IOCS tallies through 

sampling to reliably estimate attributable cost for IMTS, resulting in relatively volatile unit 

costs.”130 FY 2017 ACR at 70. The Postal Service reports that only seven IOCS tallies were 

recorded for both the IMTS—Inbound and IMTS—Outbound products combined. Id. The 

Postal Service’s data systems produced a 95 percent confidence interval range extending 

from 34 percent below to 127 percent above the reported FY 2017 cost coverage. 

Responses to CHIR No. 1, question 11.

The Postal Service states that prices for IMTS—Outbound increased substantially in 

January 2017, and that the product almost covered its attributable cost in FY 2017. FY 2017 

ACR at 70-71. The Postal Service also states that prices will increase further in January 

2018. Id. at 71. 

The Public Representative notes that the cost volatility has declined slightly from previous 

fiscal years, and that the January 2018 price increase should allow the IMTS—Outbound 

product to cover its cost in FY 2018. PR Comments at 57-58. The Postal Service states that 

it has provided additional information about IMTS—Outbound in its Responses to CHIR No. 

1, questions 11 to 13, which should aid the Commission in its evaluation of the product. 

Postal Service Reply Comments at 22. 

In the FY 2015 ACD, the Commission directed the Postal Service to report on the obstacles 

to exiting or renegotiating the agreements that comprise IMTS—Inbound. FY 2015 ACD at 

85. The Postal Service reported that terminating or renegotiating these agreements 

requires a delegation of authority from the Department of State under the Circular 175 

 

128 IMTS—Inbound consists of bilateral and multilateral agreements with foreign postal operators.

129 International Ancillary Services consists of Certificates of Mailing, Registered Mail, Return Receipt, Restricted Delivery, Insurance, and 

Customs Clearance and Delivery Fees.

130 The In-Office Costing System (IOCS) collects data on the proportion of time spent by an employee performing various functions for different 

mail products or services. These proportions of time are used to estimate the costs of such products or services (e.g., the time city carriers 

spend in a delivery office sorting mail). “Tally takers” collect the time data, so “tallies” are used as the source of the data.
Docket No. ACR2017 - 87 -

process.131 In the FY 2016 ACD, the Commission recommended that the Postal Service 

request a delegation of authority from the Department of State under the Circular 175 

process to terminate or renegotiate the agreements that comprise the IMTS—Inbound 

product. FY 2016 ACD at 84. The Postal Service reports that it did not undertake a request 

for this authority due to the number of pending priorities this year. Responses to CHIR No. 

1, question 13. 

The Public Representative observes that this is the fourth year in which IMTS—Inbound 

has failed to cover cost, and strongly recommends that the Postal Service follow the 

Commission’s recommendation and request the authority necessary to terminate or 

renegotiate the agreements in IMTS—Inbound. PR Comments at 58-59. The Postal Service 

states that it has provided additional information about IMTS—Inbound in its Responses to 

CHIR No. 1, questions 11 to 13, which should aid the Commission in its evaluation of the 

product. Postal Service Reply Comments at 22.

The Commission finds that IMTS—Outbound and IMTS—Inbound were not in compliance 

with 39 U.S.C. § 3633(a)(2) in FY 2017. Given the recurring volatility in unit costs, the Postal 

Service has not provided sufficient evidence that the FY 2018 price increases will result in full 

cost coverage. Therefore, the Commission directs the Postal Service to increase the prices for 

IMTS—Outbound in order to bring the product into compliance in its next request for a rate 

adjustment for Competitive rates of general applicability. The Commission expects the Postal 

Service to request a delegation of authority from the Department of State under the Circular 

175 process to terminate or renegotiate the agreements that comprise the IMTS—Inbound 

product, and to provide an update on the status of this process within 120 days of issuance of 

this ACD. If the Postal Service identifies competing priorities as a reason for it not being able 

to comply fully with the Commission’s directive, it should fully describe those competing 

priorities and provide a clear justification for why the Commission’s directive was not 

followed.

b. International Ancillary Services

Revenue for International Ancillary Services was less than attributable cost in FY 2017 

because Outbound International Insurance did not cover its attributable cost. The Postal 

Service observes that claims for Priority Mail International (PMI) pieces are assigned to 

Outbound International Insurance, rather than to the PMI product. FY 2017 ACR at 71.132

The Postal Service indicates that it will continue to explore this issue to determine if a 

change in the reporting of the claims costs is in order, and notes that it increased prices for 

Priority Mail Express International (PMEI) insurance and PMI insurance in FY 2017 and 

will increase prices again in FY 2018. Id.

The Postal Service also reports that only six IOCS tallies were recorded for Outbound 

 

131 See Docket No. ACR2015, Second Response of the United States Postal Service to Commission Requests for Additional Information in the FY 

2015 Annual Compliance Determination, June 27, 2016, question 2.

132 All PMI pieces include up to $200 in insurance in the price of postage without an additional fee.
Docket No. ACR2017 - 88 -

International Insurance, leading to a cost coverage that ranged from 25 percentage points 

below to 329 percentage points above the reported figure. Responses to CHIR No. 3, 

question 7. 

The Public Representative suggests that the low cost coverage could be related to the 

relatively high volatility of IOCS-based unit cost estimates. PR Comments at 60. Therefore, 

she is unable to conclude that the cost coverage is fully reliable. Id. The Public 

Representative agrees with the Postal Service’s proposal to explore the reporting of PMI 

claims, and suggests investigating methods to improve the precision of the cost coverage 

estimate. Id. In its reply comments, the Postal Service restates that it is continuing to 

explore changes in cost reporting and has provided information on IOCS tallies in response 

to CHIR No. 1, question 7 in this docket. Postal Service Reply Comments at 23-24.

The Commission agrees that the FY 2018 price increases for Outbound International 

Insurance may help improve cost coverage. The Commission notes that the Postal Service 

has discussed cost reporting issues for Outbound International Insurance in prior 

proceedings.133 Given the continued cost coverage challenges for Outbound International 

Insurance, the Commission finds that further information on its cost reporting is 

warranted. This information may provide insight into ways to reduce the volatility of the 

cost coverage for Outbound International Insurance, and thereby improve the cost 

coverage of the International Ancillary Services product. 

The Commission finds that International Ancillary Services was not in compliance with 39 

U.S.C. § 3633(a)(2) in FY 2017. The Commission directs the Postal Service to report within 90 

days of issuance of this ACD on its evaluation of Outbound International Insurance cost

reporting and whether a change in analytical principles is warranted. If the Postal Service 

does not determine that a change in analytical principles is warranted, the Commission 

directs the Postal Service to increase the prices for Outbound International Insurance in order 

to bring the product into compliance.

4. Competitive International Products Consisting of 

NSAs

Competitive international mail also includes products with rates and fees not of general 

applicability that are established pursuant to one or more NSAs. These agreements often 

require a minimum volume and/or revenue commitment by mailers or foreign postal 

operators in exchange for reduced rates from the Postal Service.

At the request of the Postal Service, and to address administrative concerns involving 

product reporting and classification on the competitive product list, the Commission 

permitted the grouping of functionally equivalent international NSAs with the express 

 

133 See Docket No. ACR2016, Responses of the United States Postal Service to Questions 1-8 of Chairman’s Information Request No. 8, February 

6, 2017, question 2.
Docket No. ACR2017 - 89 -

understanding that each NSA within a product must cover its attributable cost.134

Functionally equivalent international NSAs are also collectively evaluated as a product for 

compliance with 39 U.S.C. § 3633(a)(2).

The Postal Service reports volume, revenue, and cost data on each Competitive 

international NSA. For FY 2017, the Postal Service provides this data for 730 international 

NSAs, 718 of which include negotiated rates for outbound mail and 12 of which include 

negotiated rates for inbound mail.135 The financial results for Competitive outbound and 

inbound international products consisting of NSAs are discussed below.

a. Competitive Outbound International Products Consisting 

of NSAs

Competitive outbound international products with negotiated rates are classified on the 

competitive product list. Table IV-2 shows the FY 2017 product category for each of these 

products for which the Postal Service reports FY 2017 financial results.136

Table IV-2

Competitive Outbound International Products by Category (FY 2017)137

Product Category Product Name

GEPS Contracts

GEPS 3

GEPS 5

GEPS 6

GEPS 7

Global Expedited Package Services (GEPS)—

Non-Published Rates

Global Expedited Package Services (GEPS)—NPR 7

Global Expedited Package Services (GEPS)—NPR 8

Global Expedited Package Services (GEPS)—NPR 9

Global Expedited Package Services (GEPS)—NPR 10

Global Expedited Package Services (GEPS)—NPR 11

Global Expedited Package Services (GEPS)—NPR 12

Global Plus Contracts Global Plus 1D

Global Plus 3

Global Reseller Expedited Package Contracts Global Reseller Expedited Package Services 2

Global Reseller Expedited Package Services 4

Source: Library Reference PRC–LR–ACR2017/NP2.

 

134 See, e.g., Docket Nos. CP2011-34, CP2011-35, CP2011-36, CP2011-37, CP2011-38, Order Approving Five Additional Global Expedited Package 

Services 3 Negotiated Service Agreements, December 1, 2010, at 5 (Order No. 601).

135 Library Reference USPS–FY17–NP2, Excel file “NSA Summary (Unified).xlsx.”

136 The Postal Service does not report FY 2017 financial results for the following Competitive outbound international products: Global Direct 

Contracts 1, Global Bulk Economy Contracts, Global Plus 2C, GREPS 1, GREPS 3, GEPS—NPR 2, GEPS—NPR 3, GEPS—NPR 4, GEPS—NPR 5, 

GEPS—NPR 6, Priority Mail International Regional Rate Boxes—NPR, Priority Mail International Regional Rate Boxes 1, and Alternative Delivery 

Provider (ADP) Contracts 1. There was no volume for these products in FY 2017 and, in many instances, the Postal Service replaced them with

products of a similar nature. 

137 This table presents outbound international products by product category as they appear in the Mail Classification Schedule.
Docket No. ACR2017 - 90 -

The Postal Service also reports financial results for each outbound international NSA 

within these products. For FY 2017, these results show that all but 6 of the 718 outbound 

international NSAs generated sufficient revenues to cover their attributable costs.138

However, none of these six NSAs were standalone products, and each was grouped with 

other functionally equivalent NSAs to form the products. In each case, the relevant 

products covered their attributable costs.

The Postal Service states that these NSAs all had little volume. FY 2017 ACR at 71-72; 

Responses to CHIR No. 3, question 9 (filed under seal). Of these six agreements, three 

expired and were not renewed, and the Postal Service is monitoring the other three to 

determine what remedial actions may be necessary. Id. The Public Representative states 

that these actions are appropriate. PR Comments at 61.

The Commission concludes that Competitive outbound international products consisting of 

NSAs satisfied 39 U.S.C. § 3633(a)(2) because revenue exceeded attributable cost for each 

product. The Commission recommends that the Postal Service take remedial actions on the 

three unexpired NSAs for which revenue did not cover their attributable costs.

b. Competitive Inbound International Products Consisting of 

NSAs

As with Competitive outbound international products, Competitive inbound international 

products with negotiated rates are classified on the competitive product list. Table IV-3 

shows the Competitive inbound international products for which the Postal Service 

reported FY 2017 financial results.139

Table IV-3

Competitive Inbound International Products by Category (FY 2017)140

Product Category Product Name

International Business Reply Service 

Competitive Contracts

International Business Reply Service

Competitive Contracts 3

Inbound EMS Inbound EMS 2

Inbound Air Parcel Post (at non-UPU rates) Royal Mail Group Inbound Air Parcel Post Agreement

Inbound Competitive Multi-Service Agreements 

with Foreign Postal Operators 1

Inbound Competitive Multi-Service Agreements 

with Foreign Postal Operators 1

Source: Library Reference PRC–LR–ACR2017/NP2.

 

138 Library Reference PRC–LR–ACR2017/NP2.

139 The Postal Service does not report FY 2017 financial results for four Competitive inbound international products: International Business 

Reply Service Competitive Contract 1, Inbound Direct Entry Contracts with Customers, Inbound Direct Entry Contracts with Foreign Postal 

Administrations, and Inbound Direct Entry Contacts with Foreign Postal Administrations 1. There was no volume for these products in FY 2017,

and in several instances, the Postal Service replaced them with products of a similar nature.

140 This table presents outbound international products by product category. In the case of Inbound Competitive Multi-Service Agreements with 

Foreign Postal Operators 1, the product name is the same name as the product category.
Docket No. ACR2017 - 91 -

The Postal Service also reports financial results for each inbound international Competitive 

NSA. Negotiated rates for 9 of the 12 NSAs generated sufficient revenues to cover their 

attributable costs in FY 2017. FY 2017 ACR at 72. The three noncompensatory NSAs were 

part of the Inbound Competitive Multi-Service Agreements with Foreign Postal Operators 1 

product. Id.

The Inbound Competitive Multi-Service Agreements with Foreign Postal Operators 1 

product consists of six bilateral NSAs with foreign postal operators for the entry of Inbound 

EMS and Inbound Parcel Post. For FY 2017, the Postal Service reports that revenues for all 

but three NSAs within this product covered their attributable costs. One NSA was with 

Royal Post NL;141 two were with China Post Group. Id. The Postal Service notes that the 

Royal Post NL NSA and one of the China Post NSAs expired, and states that it intends to 

monitor the current noncompensatory NSA with China Post Group, which expires on June 

30, 2018, in developing any new proposal for a successor agreement. Id.

The Public Representative observes that the cost coverage of two other NSAs within the 

Inbound Competitive Multi-Service Agreements with Foreign Postal Operators 1 product is 

only slightly above 100 percent. PR Comments at 59. She further notes that should any of 

the remaining agreements fail to cover costs, the entire product risks falling out of 

compliance. Id. The Public Representative recommends that the Postal Service carefully 

monitor the cost coverage of the remaining agreements within the product and, if 

necessary, modify rates to ensure adequate cost coverage. Id. In its reply comments, the 

Postal Service states that the Commission recently reviewed one of the remaining three 

agreements, which is with Canada Post. Postal Service Reply Comments at 22. In addition, 

the Postal Service states that the other two agreements expire on June 30, 2018, and that 

the Postal Service will pay particular attention to the cost coverage of these agreements 

during the negotiation of possible successor agreements. Id. at 22-23.

The Commission concludes that Competitive inbound international products consisting of 

NSAs satisfied 39 U.S.C. § 3633(a)(2) because revenues exceeded attributable costs for each 

product. The Commission recommends that the Postal Service carefully monitor the cost 

coverage of the Inbound Competitive Multi-Service Agreements with Foreign Postal Operators 

1 product, specifically the inbound portion of the NSA with China Post Group, in developing 

any new proposal to renew the agreement following its expiration on June 30, 2018. The 

Commission also recommends that the Postal Service carefully monitor the cost coverage of 

remaining agreements within the product before negotiating possible successor agreements.

 

141 Royal PostNL is the postal operator of the Netherlands.
Docket No. ACR2017 - 92 -

5. Competitive Nonpostal Services

In FY 2017, Competitive nonpostal services142 generated $149.7 million in revenue and 

incurred $35.5 million in expenses, which resulted in a net revenue of $113.8 million.143

This figure represents a 16 percent increase compared to FY 2016.

D. Appropriate Contribution Provision: 

39 U.S.C. § 3633(a)(3)

39 U.S.C. § 3633(a)(3) requires the Commission to ensure that all Competitive products 

collectively cover an appropriate share of the Postal Service’s institutional costs. In 

implementing this section after the PAEA was enacted, the Commission determined that if 

Competitive products contribute at least 5.5 percent toward the Postal Service’s total 

institutional costs, then, as a whole, they will cover an appropriate share of the Postal 

Service’s total institutional costs. See 39 C.F.R. § 3015.7(c).144

In FY 2017, the total institutional costs of the Postal Service were $29.700 billion.145 To 

comply with 39 U.S.C. § 3633(a)(3) for FY 2017, Competitive products must have 

contributed at least $1.634 billion toward the Postal Service’s institutional costs. Id. In FY 

2017, the total Competitive products contribution was $6.806 billion (approximately 23

percent), which exceeds the minimum contribution requirement. Id. The Public 

Representative concludes that the Postal Service complied with 39 U.S.C. § 3633(a)(3) in FY 

2017. PR Comments at 65.

The Commission finds that in FY 2017 Competitive products satisfied 39 U.S.C. § 3633(a)(3) by 

covering an appropriate share of the Postal Service’s institutional costs.

In FY 2017, the Postal Service transferred $2.599 billion from the Competitive Products 

Fund to the Postal Service Fund, which the Postal Service represented was “a prepayment 

 

142 The seven Competitive products are: (1) Licensing of Intellectual Property Other Than Officially Licensed Retail Products; (2) Mail Services 

Promotion; (3) Officially Licensed Retail Products (OLRP); (4) Passport Photo Service; (5) Photocopying Service; (6) Rental, Leasing, Licensing or 

Other Non-Sale Disposition of Tangible Property; and (7) Training Facilities and Related Services. Docket No. MC2010-24, Order Approving Mail 

Classification Schedule Descriptions and Prices for Nonpostal Service Products, December 11. 2012, at 4 (Order No. 1575). The Postal Service 

did not report volume for Licensing of Intellectual Property Other Than Officially Licensed Retail Products or Training Facilities and Related 

Services in FY 2017. See Library Reference USPS–FY17–NP27, Preface. The Postal Service should remove products that will not be used in the 

future from the product lists.

143 Library Reference USPS–FY17–NP27, Preface.

144 See Docket No. RM2007-1, Order Establishing Ratemaking Regulations for Market Dominant and Competitive Products, October 29, 2007, at 

90-92 (Order No. 43). In Order No. 1449, the Commission maintained the appropriate share at 5.5 percent, subject to future revision, if 

necessary. See Docket No. RM2012-3, Order Reviewing Competitive Products’ Appropriate Share Contribution to Institutional Costs, August 23, 

2012, at 24-25 (Order No. 1449). On February 8, 2018, the Commission issued a notice of proposed rulemaking proposing to replace the static 

5.5 percent appropriate share with a dynamic requirement which would be recalculated annually using a formula-based approach. See Docket 

No. RM2017-1, Notice of Proposed Rulemaking to Evaluate the Institutional Cost Contribution Requirement for Competitive Products, February 

8, 2018 (Order No. 4402). This rulemaking proceeding is currently pending before the Commission.

145 Library Reference PRC–FY17–LR1, tab “Appendix A (Incremental Costs).”
Docket No. ACR2017 - 93 -

of current and future year’s institutional costs.”146 As the Commission found in Order Nos. 

1449 and 2329, the Postal Service is not permitted to prepay future years’ institutional 

costs.147 The Commission also previously held that “the Postal Service is permitted by 39 

C.F.R. § 3015.7(c) to pay greater than the 5.5 percent appropriate share set by the rule” to

access funds in the Competitive Products Fund; however, “any transfers categorized by the 

Postal Service as prepayments of future years’ institutional costs cannot be used to offset 

the requirement that competitive products cover the appropriate share of institutional 

costs each year.” Order No. 2329 at 5-6. As a result, to comply with 39 U.S.C. § 3633(a)(3) in 

future years, the revenues from competitive products rates must, in each fiscal year, satisfy 

the requirements of 39 U.S.C. § 3633(a)(3). Order No. 1449 at 26; Order No. 2329 at 5.

E. Other Issues

1. Other Issues Raised By Commenters

A number of commenters raise methodological issues relating to cross-subsidization of 

Competitive products by Market Dominant products, and to the allocation of costs to 

Competitive products.

Frontiers of Freedom (FoF) identifies what it characterizes as “a high threat of crosssubsidization” evidenced by revenue exceeding costs for market-dominant products and 

the Postal Service’s continuous debt.148 FoF additionally urges increased transparency in 

cost allocations for each service. Frontiers of Freedom Reply Comments at 2.

National Taxpayer’s Union (NTU) urges the Commission to propose “a more effective 

system to transparently allocate the costs of each service.”149

United Parcel Service, Inc. (UPS) identifies numerous specific examples of what it 

characterizes as “troubling costing issues that appear to result in inappropriately low cost 

attribution to competitive products.”150 UPS additionally identifies two Office of the 

Inspector General (OIG) reports and two costing issues relating to city carrier routes that it 

characterizes as unresolved. UPS Comments at 15-19. UPS urges the Commission to use the 

current docket “to put in motion plans to address these issues” and also to initiate further 

proceedings. See id. at 4, 19.

In its reply comments, Amazon Services, Inc. (ASI) characterizes UPS’s comments as 

speculation that current methodology may understate costs attributed to Competitive 

 

146 Library Reference USPS–FY17–39, Competitive Products Fund Report at 4.

147 Order No. 1449 at 26; Docket No. PI2013-1, Final Order on Competitive Products Fund Inquiry, January 23, 2015, at 5-6 (Order No. 2329).

148 Reply Comments by Frontiers of Freedom Regarding Docket No. ACR2017, February 1, 2018, at 1-2 (Frontiers of Freedom Reply Comments).

149 Comments of National Taxpayers Union, February 1, 2018, at 3.

150 See Initial Comments of United Parcel Service, Inc. on United States Postal Service’s Annual Compliance Report for Fiscal Year 2017, February 

1, 2018, at 4-14 (UPS Comments).
Docket No. ACR2017 - 94 -

products.151 ASI notes that “UPS, however, does not ask the Commission to reach the merits 

of these issues.” ASI Comments at 1. ASI describes the issue before the Commission in the 

current docket as limited to whether prices in effect in the fiscal year under review were in 

compliance with applicable statutes and regulations. Id. at 3.

The Parcel Shippers Association (PSA) and the American Catalog Mailers Association 

(ACMA) filed reply comments rebutting the claim that more transparency in cost 

allocations is required to verify that Competitive products are not being subsidized.152 PSA 

and ACMA point out that under Commission-approved costing methods, Competitive 

product revenues exceed Competitive product costs. PSA & ACMA Comments at 2. PSA and 

ACMA additionally claim that the $7 billion contribution from Competitive profits is large 

enough that no plausible adjustment to cost methods could materially affect the Postal 

Service’s compliance with the prohibition against cross-subsidies. Id. at 3.

The Postal Service filed reply comments noting that UPS does not challenge the cost models 

directly, but instead “offers various discrete observations that, in [UPS’s] view, cast doubt 

on the models.” Postal Service Reply Comments at 24. The Postal Service characterizes 

UPS’s comments as beyond the scope of the Commission’s ACR review. See id.

The scope of the Commission’s ACR review is limited to determining the Postal Service’s 

compliance with rates and services in FY 2017. 39 U.S.C. § 3653(b). During the statutorilylimited time allotted for the Commission to review the Postal Service's ACR and issue its 

ACD, there are not sufficient resources to explore, in any meaningful depth, issues relating 

to methods of cost attribution and allocation. Several commenters, such as FoF and NTU, 

make broad statements about the adequacy of the cost models used in the ACR and ACD, 

without any suggestion for improvement.

Such broad-based criticisms are not actionable; further, the cost models at issue have been 

developed under robust litigated proceedings and continually improved and updated over 

the ensuing decades. Should any party have actionable improvements for costing models 

and methodologies, the Commission stands ready to evaluate and work to improve the 

models. See Docket No. RM2016-13, Order Adopting Final Rules on Changes Concerning 

Attributable Costing, December 1, 2016 (Order No. 3641).

Likewise, UPS brings specific criticisms of costing issues and urges the Commission to take 

action, but recognizes that such issues will not be resolved in the ACD. Instead, it asks the 

Commission to prioritize addressing those issues in further proceedings. All of these issues 

raised by commenters relating to the costing methodology and cost attribution for 

Competitive products are more appropriately addressed in a separate proceeding. The 

Commission will continue to work with stakeholders and the Postal Service to improve 

 

151 Reply Comments of Amazon.com Services, Inc., February 12, 2018, at 1 (ASI Reply Comments).

152 Reply Comments of Parcel Shippers Association and American Catalog Mailers Association, Inc., February 12, 2018, at 1 (PSA & ACMA Reply 

Comments).
Docket No. ACR2017 - 95 -

costing models and methodologies in the most efficient and practicable ways. Where there 

are potential issues, but no identified improvements at hand, the Commission will continue 

to explore the issues to identify solutions. See Docket No. PI2017-1, Notice and Order 

Establishing Docket Concerning City Carrier Special Purpose and Letter Route Costs and to 

Seek Public Comment, May 31, 2017 (Order No. 3926).

2. Palletized Priority Mail Open and Distribute

In Order No. 4390, the Commission noted that the Public Representative in Docket Nos. 

MC2018-117 and CP2018-159 had specific concerns relating to the cost coverage 

calculations for Priority Mail contracts that include prices for Palletized Priority Mail Open 

and Distribute.153 The Commission deferred review to this docket. Order No. 4390 at 5. The 

Commission reviewed the Public Representative’s concerns and finds the contracts in 

compliance with statutory requirements. See section 4.C.2, supra.

 

153 Docket Nos. MC2018-117 and CP2018-159, Order Adding Priority Mail Contract 419 to the Competitive Product List, January 19, 2018, at 3, 5

(Order No. 4390).
Docket No. ACR2017 - 96 -

CHAPTER 5: SERVICE PERFORMANCE

A. Service Performance Results

1. Introduction

Each year, the Postal Service must report154 on each Market Dominant product’s “level of 

service (described in terms of speed of delivery and reliability).” 39 U.S.C. 

§ 3652(a)(2)(B)(i). Speed of delivery is evaluated based on the mailpiece reaching its 

destination within a given service standard. FY 2016 ACD at 90. The Postal Service defines 

service standards as “[s]tated delivery performance goals for each mail class and product 

that are usually measured by days for the period of time taken by [the Postal Service] to 

handle the mail from end-to-end (that is, from the point of entry into the mailstream to 

delivery to the final destination).”155 Reliability refers to consistency of delivery.

To evaluate annual service performance for each Market Dominant product, the 

Commission compares the percentage of mailpieces that achieve the stated service 

standard against targets established by the Postal Service.156

The products listed in Table V-1 met or exceeded their annual service performance targets 

for FY 2017.

 

154 “For each product that does not meet a service standard, [the Postal Service’s report must include] an explanation of why the service 

standard is not met, and a plan describing the steps that have or will be taken to ensure that the product meets or exceeds the service standard 

in the future.” 39 C.F.R. § 3055.2(h); see also 39 U.S.C. § 3652(d), (e).

155 United States Postal Service Publication 32, Glossary of Postal Terms, July 2013 (available at: 

http://about.usps.com/publications/pub32/pub32_terms.htm). “Established service standards also include destination entry standards for mail 

entered by the mailer at or near a postal destination facility. A separate set of standards is established for noncontiguous states such as Alaska 

and Hawaii and territories such as American Samoa and Guam.” Id.

156 FY 2016 ACD at 90. On an annual basis, the Commission compares a product’s on-time delivery with the delivery target established by the 

Postal Service. For Special Services, the Commission evaluates performance data from metrics developed by the Postal Service applicable to 

each product. Id. at 90 n.148. In this ACD, as in past years, the Commission uses the Postal Service’s targets because they are a reasonable basis 

for assessing performance.
Docket No. ACR2017 - 97 -

Table V-1

Market Dominant Products That Met Annual Service Performance Targets, FY 2017

Class Product

USPS Marketing Mail

 High Density and Saturation Letters

 Carrier Route

 Letters

 Parcels

Package Services  Bound Printed Matter Parcels

 Media Mail/Library Mail 

Special Services

 Ancillary Services

 International Ancillary Services

 Money Orders

 Stamp Fulfillment Services

The products listed in Table V-2 did not meet their targets for FY 2017.

Table V-2

Market Dominant Products That Failed to Meet Annual Service Performance Targets, FY 2017

Class Product

First-Class Mail

 Single-Piece Letters/Postcards (2-Day; 3-5-Day)

 Presorted Letters/Postcards (Overnight; 2-Day; 3-5-

Day)

 Flats (Overnight; 2-Day; 3-5-Day)

 Parcels (2-Day; 3-5-Day)

 Outbound Single-Piece First-Class Mail International 

(Combined)

 Inbound Single-Piece First-Class Mail International 

(Combined)

USPS Marketing Mail

 High Density and Saturation Flats/Parcels

 Flats

 Every Door Direct Mail – Retail

Periodicals  In-County

 Outside County

Package Services  Bound Printed Matter Flats

Special Services  Post Office Box Service

In this chapter, after a summary of the systems the Postal Service uses to measure service 

performance, the Commission discusses the Postal Service’s responses to the FY 2016 

directives related to First-Class Mail Single-Piece Letters/Postcards. The Commission then 

analyzes the Postal Service’s FY 2017 service performance results by class of mail.

2. Measurement Systems

The Postal Service uses a variety of measurement systems to measure service performance 

for Market Dominant products. The Postal Service began reporting service performance 

results for most Market Dominant products in the third quarter of FY 2011.
Docket No. ACR2017 - 98 -

Table V-3 identifies each system used to measure those products reported in the Postal 

Service’s Annual Service Performance Report. In Table V-3, and the discussion that follows, 

the Commission uses the following acronyms and abbreviations: EXFC for “External FirstClass Measurement,” iMAPS for “Intelligent Mail Accuracy and Performance System,” IMb

for “Intelligent Mail barcode,” IMMS for “International Mail Measurement System,” PTR for 

“Product Tracking and Reporting System,” and SASP for “Seamless Acceptance and Service 

Performance.”

Table V-3

Service Performance Measurement Systems

Single-Piece Presorted

Letters Flats Parcels Letters Flats Parcels

First-Class Mail EXFC EXFC PTR iMAPS iMAPS N/A

Periodicals N/A iMAPS iMAPS N/A

USPS Marketing 

Mail N/A iMAPS iMAPS PTR

Package

Services N/A PTR N/A iMAPS PTR

International Mail IMMS EXFC as 

proxy*

PTR as 

proxy** N/A

Special Services Custom-designed internally based measurement systems

*The EXFC measurement for domestic First-Class Mail Single-Piece flats serves as a proxy for Single-Piece First-Class Mail International flats due 

to the small volume in the latter category. After clearing customs, Single-Piece First-Class Mail International flats enter the domestic 

mainstream and are handled with domestic First-Class Mail Single-Piece flats. Docket No. PI2015-1, Library Reference USPS–LR–PI2015–1/8, 

February 23, 2017, file “Internal SPM Plan blackline.pdf,” at 11 n.5 (Third Revision to the USPS Service Performance Measurement Plan).

**The Postal Service uses the measurement for domestic First-Class Mail parcels as a proxy for Inbound Letter Post parcels. Id. at 11 n.6.

Note: In FY 2013, PTR replaced the legacy measurement system, which was referred to as the Product Tracking System. See FY 2016 ACD at 93-

94.

Source: Third Revision to the USPS Service Performance Measurement Plan at 11; Library Reference USPS–FY17–29, December 29, 2017, file 

“FY17-29 Methodologies Report.pdf” (FY 2017 Methodologies Report).

N/A – Not applicable

a. External First-Class Measurement System (EXFC)

EXFC is a sampling system managed by an independent contractor. Delivery performance is 

measured from the street collection box to the delivery mailbox.157 When evaluating 

delivery performance, test mailers record the time they place First-Class Mail in the 

collection box. The pieces are deposited before the last collection-time for the collection 

box. Those test mailpieces are sent to a nationwide panel of receivers who record when 

each is delivered. Actual transit time is then compared against First-Class Mail service 

standards. EXFC provides quarterly service performance measurement scores at the area 

and district levels.

 

157 FY 2009 ACD at 49.
Docket No. ACR2017 - 99 -

b. Intelligent Mail Accuracy and Performance System 

(iMAPS)

iMAPS provides an end-to-end service performance measurement by using documented 

mail arrival time at a designated postal facility to start a measurement clock and an IMb 

scan by an external, third-party reporter to stop the clock. The measurement involves two 

distinct steps. The Postal Service obtains processing times based on IMb scans reported 

through the SASP system. SASP uses data provided by commercial mailers with Full-Service 

Intelligent Mail, such as acceptance time, payment, and verification, to enable the Postal 

Service to monitor service delivery and overall performance.158 Information collected also 

helps to determine address accuracy, verify the quality of mail preparation, and track 

individual pieces as they move through the mail system.

Throughout FY 2017, SASP captured data from all Full-Service Intelligent Mail.159 This is 

combined with a last mile factor that is developed through scans by third-party reporters 

upon receipt of the mail. Service performance is measured by comparing the overall transit 

time to the service standards to determine the percentage of mail delivered on-time.

Section 3055.5 of Title 39 of the Code of Federal Regulations requires the Postal Service to 

“file notice with the Commission describing all changes to measurement systems, service 

standards, service goals or reporting methodologies, including the use of proxies for 

reporting service performance, 30 days prior to planned implementation.”

During Quarter 1 of FY 2017 (November 2016), without providing the required notice to 

the Commission, the Postal Service changed the methodology for estimating performance 

for First-Class Mail Presorted Letters/Postcards, the presort portion of First-Class Mail 

Flats, USPS Marketing Mail, Periodicals, and Bound Printed Matter Flats.160 This change was 

first identified in the narratives accompanying each affected product’s service performance 

scores for Quarter 1 of FY 2017, which were filed on February 9, 2017.161

This is not the first time that the Postal Service failed to notify the Commission of a change 

prior to implementation. During the FY 2016 ACD proceeding, the Commission became 

aware that the Postal Service had changed the system used to measure service 

performance for parcels three years prior to disclosing this change to the Commission. See 

FY 2016 ACD at 93-94. The Postal Service indicates that the failure to provide advance 

notice of the change to the iMAPS methodology occurred because the personnel 

 

158 United States Postal Service, Guide to Seamless Acceptance, Version 2.1, June 2015 _(available at: http://postalpro.usps.com/storages/2016-

12/657_GuidetoSeamlessAcceptance.pdf).

159 Library Reference USPS–FY17–29, file “FY17-29 Service Perf Report.pdf,” at 2 (FY 2017 Service Performance Report).

160 FY 2017 Service Performance Report at 8, 14, 17-18, 22; Responses of the United States Postal Service to Questions 1-2 of Chairman’s 

Information Request No. 4, question 1.b. (Responses to CHIR No. 4).

161 See, e.g., United States Postal Service Quarterly Service Performance Reports for Quarter 1 of FY 2017, February 9, 2017, Excel file “FC Flats 

171 Scores Report.xlsx,” tab “FC Flats Narrative.”
Docket No. ACR2017 - 100 -

implementing the methodological change were unaware of the advance notice requirement 

when the change was made during Quarter 1 of FY 2017.162 The Postal Service further 

indicates that this failure is a legacy remnant of a process flaw that the Postal Service 

subsequently identified and corrected in February 2017. See id. The Postal Service 

maintains that since February 2017, it has ensured that its Enterprise Analytics 

organization is aware of the need to confer with its Law Department concerning this 

requirement. Id., question 2.

In light of the Postal Service’s representations, the Commission expects that the necessary 

internal coordination is occurring and will continue to occur. The Commission reiterates 

that the Postal Service must file advance notice of changes in compliance with 39 C.F.R. 

§ 3055.5.

In this instance, “[t]he application of the last mile profile was changed from stratification by 

the type of final processing operation which occurred to stratification by the number of 

days remaining to meet service standard after final processing occurred.” FY 2017 Service 

Performance Report at 8, 14, 17-18, 22. The Postal Service states that “[t]his methodology 

change was made to improve the accuracy of the performance estimates as the new 

methodology better accounts for the relationship between time spent in last mile and time 

spent in processing.” Id. at 8, 18, 22. CHIR No. 4, question 1 was issued to explore this 

change.

The Postal Service’s prior methodology grouped mailpieces into one of three types of last 

processing operations (LPO).163 The Postal Service explains that this methodology assumed 

that “time spent in last mile is independent of the time a piece spent in processing, for the 

given processing and last mile group or ‘stratum.’” Responses to CHIR No. 4, question 1.c. 

The Postal Service asserts that this assumption was undermined over time because of 

changes to processing operating windows and service standards, additional operating 

events, more mail in measurement, and an increased focus on operations, which led to 

changes in mail transit times. Id. The Postal Service concluded that stratification by LPO 

Type was no longer the best stratification method because the methodology was 

consistently producing results that underestimated on-time performance compared to the 

data received from external reporters—particularly for flat-shaped pieces. Id. The Postal 

Service asserts that its data analysis showed that the time in last mile for flats significantly 

differed when a piece was processed early, compared to when the piece was processed 

nearer to the service standard date. Id.

 

162 Responses of the United States Postal Service to Questions 1-3 of Chairman’s Information Request No. 12, February 5, 2018, questions 1 and

3 (Responses to CHIR No. 12).

163 Responses to CHIR No. 4, question 1.a. LPO Type 1 was used to classify a piece that underwent final processing at the expected plant and

received the finest depth of sort (e.g., Second Pass delivery point sequence (DPS) for letter-shaped pieces; Flats Sequencing System (FSS) or 

carrier route sorting for flat-shaped pieces). Id. LPO Type 2 was used to classify any other piece that underwent final processing at the expected 

plant. Id. LPO Type 3 was used to classify any pieces that underwent final processing at an unexpected plant. Id.
Docket No. ACR2017 - 101 -

Alternative methods were developed and evaluated, and the Postal Service determined that 

stratification based on the number of days left in processing to meet the service standard 

would be more accurate. Id. The Postal Service quantifies the bias observed at the national 

level during Quarter 2 of FY 2015 and Quarter 4 of FY 2016 using both the prior and the 

new methodology for First-Class Mail Presorted Letters/Postcards, the presort portion of 

First-Class Mail Flats, USPS Marketing Mail Flats, USPS Marketing Mail Letters, and 

Periodicals. Id. Based on a review of the Postal Service’s detailed explanation, the 

Commission accepts the methodological change to the application of the last mile profile 

used in iMAPS.

c. Product Tracking and Reporting System (PTR)

The Postal Service measures service performance for parcels using PTR, a system that 

“measures transit time from the time of mailing until the time of delivery for parcels for 

which a customer requested USPS Tracking Service.” FY 2017 Service Performance Report 

at 2. PTR is based on over-the-counter and delivery confirmation scans of retail products, 

as well as barcode scans of parcels that utilize the Postal Service’s tracking service. Id. at 2-

3. PTR uses the scan data to track a package from acceptance (start-the-clock) through 

delivery (stop-the-clock).164

d. International Mail Measurement System (IMMS)

Based on a system similar to EXFC, IMMS measures the domestic leg of transit time for 

international mail. FY 2017 Service Performance Report at 3. It measures the time between 

the domestic collection point and the outbound international service center for outbound 

letters and between the inbound international service center and the domestic delivery 

point for inbound letters.

e. Intelligent Mail Barcode (IMb)

In Quarter 3 of FY 2011, the Postal Service began using IMbs to measure service 

performance for USPS Marketing Mail, Periodicals, Bound Printed Matter (BPM) Flats, and 

some First-Class Mail products. The Postal Service currently offers two barcode options for 

mailers: Basic and Full-Service. The Basic option allows mailers to utilize IMbs for their 

mailpieces without the added benefit of accounting for each unique piece.165

The Full-Service feature allows the mailer to identify unique mailpieces throughout the 

mailstream, receive start-the-clock notifications, discounts, and automated address 

corrections. Id. Only the Full-Service feature provides the data needed to measure service 

performance. Mailers are required to prepare mail with IMbs and submit electronic mailing 

information listing IMbs used. Mail is verified to ensure it meets mail preparation criteria. 

 

164 Docket No. ACR2016, Responses of the United States Postal Service to Questions 2-4 and 7-13 of Chairman’s Information Request No. 16, 

February 17, 2017, question 3.

165 United States Postal Service, Overview to Intelligent Mail - Basic Service, August 2012 (available at: 

http://ribbs.usps.gov/intelligentmail_guides/documents/tech_guides/OverviewIntelligentMailBasicService.pdf).
Docket No. ACR2017 - 102 -

Mail that does not meet mail preparation requirements is excluded from service 

performance measurement. Id.

Over time, the percentage of mailpieces measured by IMb increased for most mail classes. 

Figure V-1 illustrates this trend, showing the percentage of First-Class Mail, USPS 

Marketing Mail, Periodicals, and Package Services166 volume measured by IMb since FY 

2014.

Figure V-1

Nationwide Market Dominant Mail Measured by Full-Service IMb,

by Percentage, by Quarter, FY 2014–FY 2017

Source: FY 2014-FY 2017 United States Postal Service Quarterly Service Performance Reports, First-Class Mail, USPS Marketing Mail, 

Periodicals, and Package Service Scores Reports are available at http://www.prc.gov/documents/quarterly-performance; Library 

Reference USPS–FY17–42, December 29, 2017; Docket No. ACR2016, Library Reference USPS–FY16–42, December 29, 2016; Docket No. 

ACR2015, Library Reference USPS–FY15–42, December 29, 2015; Docket No. ACR2014, Library Reference USPS–FY14–42, December 29, 

2014.

District-level measurement. The Postal Service measures service performance at the district 

level. These data are aggregated to the area level and then aggregated again to report 

nationwide service performance results.167 In order to be representative of the nation as a 

whole, the nationwide service performance results for each product should include data 

from all districts. Prior concerns expressed by the Commission with regard to the lack of 

 

166 BPM Flats is the only Package Services product measured using IMb. The remaining Package Services products are measured using PTR. FY 

2016 ACD at 95 n.155.

167 See United States Postal Service Quarterly Service Performance Reports Quarters 1-4 of FY 2017 (available at: 

https://www.prc.gov/dockets/quarterly-performance).
Docket No. ACR2017 - 103 -

reporting data from all districts168 appear to have been addressed, with the vast majority of 

districts now reporting statistically meaningful results for all products and service 

standard levels.

Pieces excluded from measurement. The Commission continues to monitor the issue of 

mailpieces excluded from measurement. See, e.g., FY 2015 ACD at 99-102; FY 2016 ACD at 

96. During FY 2016, the Commission issued an order enhancing the reporting of service 

performance measurement data.169 Among other things, this order required the Postal 

Service to begin providing regular, detailed information concerning mailpieces included 

and excluded from measurement, as well as the reasons mailpieces are excluded from 

measurement. Order No. 3490 at 28-35.

In general, the more mail that is measured, the more representative, accurate, and reliable 

such measurements will be. Table V-4 contains Postal Service data regarding the 

percentage of mail in measurement, the percentage of mail entered as Full-Service IMb and 

included in measurement, and the percentage of mail entered as Full-Service IMb and 

excluded from measurement.170 Table V-4 also shows that the percentage of mail in 

measurement increased for all measured products. Except for First-Class Mail Flats and 

BPM Flats, this increase corresponds to a decrease in the percentage of Full-Service IMb 

mail excluded from measurement.

 

168 See, e.g., FY 2015 ACD at 98-99.

169 See Docket No. PI2016-1, Order Enhancing Service Performance Reporting Requirements and Closing Docket, August 26, 2016 (Order No. 

3490).

170 The formula for the percentage of mail in measurement is mail that is measured / total mail. The formula for the percentage of mail 

processed at Full-Service IMb prices and included in measurement is Full-Service IMb mail measured / total Full-Service IMb mail. The formula 

for the percentage of mail entered as Full-Service IMb mail and excluded from measurement is Full-Service IMb mail excluded from 

measurement / total Full-Service IMb mail.
Docket No. ACR2017 - 104 -

Table V-4

Mail in Measurement and Excluded from Measurement,

by Percentage, FY 2015–FY 2017

Percentage of mail in 

measurement

Percentage of mail 

entered at Full-Service 

IMb prices and 

included in 

measurement

Percentage of mail 

processed as FullService IMb, but 

excluded from 

measurement

FY 

2015

FY 

2016

FY 

2017

FY 

2015

FY 

2016

FY 

2017

FY 

2015

FY 

2016

FY 

2017

First-Class Mail

Presorted 

Letters/Postcards 52.7 62.5 64.89 60.2 70.2 72.18 39.8 29.8 27.82

Flats 12.8 54.1 54.53 54.2 72.4 69.57 45.8 27.6 30.43

USPS Marketing Mail*

High Density and 

Saturation Letters 58.8 68.8 72.46

Data Not 

Available

78.97

Data Not 

Available

21.03

High Density and 

Saturation Flats/Parcels 21.9 36.6 37.39 60.44 39.56

Carrier Route 53.8 69.6 72.39 79.72 20.28

Letters 56.0 69.1 72.62 80.79 19.21

Flats 45.0 59.0 61.36 73.87 26.13

Every Door Direct 

Mail–Retail 28.0 63.2 63.93 Not Applicable

Parcels 30.4 44.5 45.09 Data Not Available

Total USPS Marketing 

Mail 50.3 63.8 66.72 65.2 76.7 79.19 34.8 23.3 20.81

Periodicals

In-County

Data 

Not 

Availa

ble

7.4 7.88 Data Not Available

Outside County 46.7 57.0 60.94

Total Periodicals 42.7 52.4 55.77 61.6 68.1 71.18 38.4 31.9 28.82

Package Services

Bound Printed Matters 

Flats 10.1 11.4 11.81 38.2 43.5 42.62 61.8 56.5 57.38

Note: The total number of Full-Service IMb Pieces was unavailable at the product level for USPS Marketing Mail in FY 2017 Q1. Therefore, 

the percentage of mail entered at Full-Service IMb prices and included in measurement and percentage of mail processed as Full-Service 

IMb but excluded from measurement for each USPS Marketing Mail product are based on the data from FY 2017 Q2 to FY 2017 Q4. 

Responses of the United States Postal Service to Questions 1-8 of Chairman’s Information Request No. 11, February 7, 2018, question 8 

(Responses to CHIR No. 11).

Source: FY 2015 ACD at 100; FY 2016 ACD at 97; Responses to CHIR No. 11, question 8.
Docket No. ACR2017 - 105 -

The Postal Service cites four main reasons why mailpieces are excluded from 

measurement.171 First, “No Start-the-Clock” occurs when the Postal Service lacks a 

container unload scan or is unable to identify the Facility Access and Shipment Tracking 

(FAST) appointment associated with the container. Id. Without an initial scan or an 

identified FAST appointment, the Postal Service cannot decipher when the measuring 

process should begin and therefore excludes these mailpieces from measurement. See FY 

2016 ACD at 98.

Second, “Long Haul” occurs when a mailpiece verified at a Detached Mail Unit (DMU) is 

transported by the Postal Service to a mail processing facility in a different district than the 

DMU. Docket No. PI2016-1 Responses to CHIR No. 1, question 4. The Postal Service 

considers this an operational failure because it results in a loss of visibility of the mailpiece. 

See FY 2016 ACD at 98.

Third, “No Piece Scan” occurs when no automation scan is reported for the mailpiece. 

Docket No. PI2016-1 Responses to CHIR No. 1, question 4. The Postal Service excludes 

these mailpieces from measurement due to incomplete data. See FY 2016 ACD at 98.

Fourth, “Invalid Entry Point for Discount Claimed” occurs when the discount Entry Point 

claimed by the mailer in electric documentation (eDoc) is invalid for the entry point and 

destination of the mailpiece. Docket No. PI2016-1 Responses to CHIR No. 1, question 4. The 

Postal Service excludes this mail from measurement due to invalid data. See FY 2016 ACD 

at 98.

Table V-5 displays the top three reasons that a mailpiece was excluded from measurement 

as well as the corresponding percentages, disaggregated by quarter in FY 2016 and FY 

2017. The main reasons cited in FY 2016 are consistent with those referenced in FY 2017.

 

171 See Docket No. PI2016-1, Responses of the United States Postal Service to Questions 1 Through 5 of Chairman’s Information Request No. 1, 

May 3, 2016, question 4, Excel file “Attach.USPS.Resp.ChIR1.Q4.xlsx,” tab “4. Exclusion Reason Breakdown” (Docket No. PI2016-1, Responses to 

CHIR No. 1).
Docket No. ACR2017 - 106 -

Table V-5

Reasons of Mailpiece Exclusions, by Percentage, by Quarter, FY 2016–FY 2017

Class/Reason

FY 2016 

Q1

FY 2016 

Q2

FY 2016 

Q3

FY 2016 

Q4

FY 2017 

Q1

FY 2017 

Q2

FY 2017 

Q3

FY 2017 

Q4

First-Class Mail

No Start-the-Clock 45.57 46.41 40.11 42.88 43.81 37.08 35.07 36.18

Long Haul 24.21 24.57 28.91 28.90 31.93 36.92 40.51 40.89

No Piece Scan 10.54 9.52 10.48 10.06 9.66 7.86 8.09 8.19

USPS Marketing Mail

No Start-the-Clock 38.82 55.13 44.24 45.79 43.83 42.06 44.76 43.46

No Piece Scan 31.69 22.27 31.53 30.80 32.75 30.11 29.09 29.40

Invalid Entry Point for 

Discount Claimed

11.48 7.59 7.44 7.55 7.38 10.82 10.49 9.88

Periodicals

No Piece Scan 54.49 50.11 65.22 62.96 55.38 56.25 58.38 56.54

No Start-the-Clock 13.54 28.53 12.07 15.21 16.83 16.12 15.71 15.50

Invalid Entry Point for 

Discount Claimed

8.04 5.74 3.35 3.73 3.28 4.29 5.42 5.49

Package Services

No Piece Scan 65.89 49.79 68.03 72.59 53.93 61.91 68.32 71.46

No Start-the-Clock 11.04 34.29 8.45 8.60 7.33 7.06 5.83 8.59

Invalid Entry Point for 

Discount Claimed

18.29 10.98 19.67 15.23 19.54 16.10 21.33 14.18

Source: Docket No. ACR2016, Responses of the United States Postal Service to Questions 1-2 of Chairman’s Information Request No. 23, 

March 3, 2017, question 1 (Docket No. ACR2016, Responses to CHIR No. 23). The FY 2017 data was included in the United States Postal 

Service, Quarterly Service Performance Report, Quarter 4, November 9, 2017, Excel file “ExclusionReasonBreakdownFY17Q4.xlsx,” tab 

“Exclusions” (available at: https://www.prc.gov/docs/102/102451/cover%20lttr%20FY17Q4.pdf).

f. Proposed Changes to Measurement Systems

In January 2015, the Commission instituted a proceeding to consider the Postal Service’s 

proposal to develop new internal service performance measurement systems for several 

Market Dominant products.172 Specifically, for First-Class Mail Single-Piece 

Letters/Postcards and First-Class Mail Flats, the Postal Service proposes to replace EXFC 

with a system which measures service performance in three segments: first mile (based on 

 

172 See Docket No. PI2015-1, Notice of Request for Comments and Scheduling of Technical Conference Concerning Service Performance 

Measurement Systems for Market Dominant Products, January 29, 2015.
Docket No. ACR2017 - 107 -

scans of sample mailpieces from randomly-selected collection points); processing duration 

(based on the time from the first processing scan to the last processing scan); and last mile 

(based on scans of sample mailpieces from randomly-selected delivery points). Third 

Revision to the USPS Service Performance Measurement Plan at 11-12, 17-18. For FirstClass Mail Outbound Single-Piece International flat-shaped pieces, the Postal Service 

proposes to replace EXFC with the IMMS system that the Postal Service already uses for 

First-Class Mail Outbound Single-Piece International letter-shaped pieces. Id. at 11-12, 34. 

Finally, for Periodicals, USPS Marketing Mail letter-shaped and flat-shaped pieces, and BPM 

Flats, the Postal Service proposed replacing the external reporting currently used for the 

“last mile” segment of these products’ service performance measurement with scans of 

sample pieces from randomly-selected delivery points. Id. at 11-12, 41, 49, 52. These 

proposed changes are currently being evaluated by the Commission in Docket No. PI2015-

1.

3. The Postal Service’s Responses to the Directives 

Related to First-Class Mail Single-Piece 

Letters/Postcards

a. Introduction

In FY 2015, service performance results for First-Class Mail Single-Piece Letters/Postcards 

declined more rapidly than in prior fiscal years—particularly for the 3-5-Day service 

standard category. FY 2015 ACD at 132. This decline was especially concerning because 

“[f]or the first time since the Postal Service began reporting service performance of all 

Market Dominant mail products, no First-Class Mail product met or exceeded its service

performance target[].” Id. at 131.

In the FY 2015 ACR and in responses to CHIRs, the Postal Service identified issues 

surrounding the FY 2015 results and reported that it would continue its existing 

remediation strategy, which involved using root cause failure analysis to identify 

problematic facilities and rectify operational issues. Id. at 136. The Commission noted 

several concerns, including the absence of (1) a link between the use of root cause 

diagnostic tools with Postal Service actions to improve service performance and (2) a 

quantitative link between the issues identified by the Postal Service with service 

performance results. Id.

Determining that First-Class Mail Single-Piece Letters/Postcards was not in compliance in 

FY 2015, the Commission issued directives to promote improvement and gain better 

visibility into the remediation strategy reported by the Postal Service. Id. at 136-38. These 

directives included the Postal Service providing within 90 days of the issuance of the FY 

2015 ACD “a detailed, comprehensive plan” along with seven specific sets of data. Id. at 138. 

The Commission also directed the Postal Service to “provide an explanation in the FY 2016 

ACR detailing specific efforts targeted to improve service performance results for FirstClass Mail Single-Piece Letters/Postcards in FY 2016.” Id.
Docket No. ACR2017 - 108 -

The Postal Service’s responses to these directives described available data and enhanced 

technology.173 The Postal Service reported using these tools to identify and correct local 

deficiencies in FY 2016 and indicated that it would continue these actions in FY 2017.174

Several CHIRs were issued to obtain data and explanations to enable the Commission’s 

evaluation of this course of action.

In FY 2016, the results for First-Class Mail Single-Piece Letters/Postcards improved. FY 

2016 ACD at 130. However, the results remained below target and the Commission 

remained concerned that results did not return to the level reported before FY 2015. Id. at 

133. Determining that First-Class Mail Single-Piece Letters/Postcards was not in 

compliance in FY 2016, the Commission directed the Postal Service to provide FY 2017 

results for many of the same data sets that the Postal Service had provided for FY 2015 and 

FY 2016. Id. at 133-35. Additional CHIRs were issued to gather more data and necessary 

context for those three fiscal years.

The Commission appreciates the Postal Service’s provision of data and its robust narrative 

responses.175 These responses improve visibility into service performance and the Postal 

Service’s remediation strategy. Moreover, these data, provided consistently year over year, 

may increase the accuracy of evaluating what actions contribute to improving service 

performance results and the relative significance of those actions and improvements.

b. Summary of Findings

The Postal Service identifies two groups of indicators it uses to monitor and correct service 

performance issues. One group of indicators relate to the five processing phases and 

identify root causes of failure. The second group of indicators are based on the 24-Hour 

Clock and identify opportunities for individual facilities to accurately process more volume 

by completing certain processing actions by a particular time of day. The Commission finds 

utility in continuing to monitor both groups of indicators.

The Commission views the indicators relating to the five processing phases as particularly 

useful in isolating the root cause(s) of delays specific to the First-Class Mail Single-Piece 

Letters/Postcards product.176 These indicators are particularly useful because the Postal 

Service is able to disaggregate data by service standard category: 2-Day and 3-5-Day.177

 

173 Docket No. ACR2015, Second Response of the United States Postal Service to Commission Requests for Additional Information in the FY 2015 

Annual Compliance Determination, June 27, 2016, Service Improvement Plan (Docket No. ACR2015, Service Response).

174 Docket No. ACR2016, Library Reference USPS–FY16–29, December 29, 2016, file “FY16-29 Service Performance Report.pdf,” at 9 (FY 2016 

Service Performance Report).

175 See, e.g., Docket No. ACR2016, Responses of the United States Postal Service to Questions 1-4 of Chairman's Information Request No. 33, 

December 28, 2017, Excel file “CHIR.33.Qs.2.3.Data.xlsx” (Docket No. ACR2016, December 28, 2017 Public File); Library Reference USPS–FY17–

29, Excel file “Response2 - ACD.FCM.FY17Q3Q4.pub.xlsx” (December 29, 2017 Public File); Responses to CHIR No. 2, question 7.a, Excel file 

“ChIR.2.Q7.24 Hour Clock.xlsx” (24-Hour Clock Results File FY 2017); Responses to CHIR No. 11, question 4, Excel file “CHIR No. 11 Response 

Q4.xlsx” (24-Hour Clock Results File FY 2015-FY 2016).

176 Except for the data regarding air capacity gaps and Critically Late Trips (CLTs) discussed in section V.A.3.c.4, infra, the data apply to a 

particular subset of First-Class Mail Single-Piece Letters/Postcards—those mailpieces measured by EXFC.

177 The First-Class Mail Single-Piece Letters/Postcards product includes two service standards: 2-Day and 3-5-Day.
Docket No. ACR2017 - 109 -

The Commission focuses its discussion on the 3-5-Day component because the Commission 

has noted particular concerns with the service performance results for this component. FY 

2015 ACD at 132; section V.A.4.a., infra. The Commission analyzes trends evident in 

nationwide quarterly data for these failure indicators from FY 2015 through FY 2017.

The Commission is encouraged by the Postal Service’s progress in reducing the levels of 

several indicators from FY 2015 to FY 2017, particularly for the transit phase. The 

Commission encourages the Postal Service to continue these efforts. It remains important 

to make progress at all processing phases because of their interdependent and cumulative 

nature.

The Commission also evaluates the link between these failure indicators and national 

service performances results for 3-5-Day First-Class Mail Single-Piece Letters/Postcards 

from FY 2015 through FY 2017. No single processing phase is the sole contributor to 

service performance results; however, from FY 2015 through FY 2017, certain indicators 

showed that their related processing phases were more closely linked to nationwide 

service performance results than others. Accordingly, the Commission focuses its 

discussion on such indicators. Notwithstanding this focused discussion, the Commission 

finds that it is important to continue to monitor each indicator because processing network 

challenges may change over time.

The Commission views the indicators based on the 24-Hour Clock as providing a different 

type of utility—primarily due to two differences in measurement objectives. First, while 

the failure indicators for the five processing phases produce data that are disaggregated by 

product and service standard category, the 24-Hour Clock measurements combine 

different products and classes. This is because the 24-Hour Clock is used to monitor the 

relative speed of Postal Service network operations overall. Second, whereas the 

measurements for the failure indicators for the five processing phases have remained 

constant from FY 2015 through FY 2017, some of the 24-Hour Clock metrics have been 

adjusted. This is because the 24-Hour Clock is designed to adjust to network or mail flow 

changes. Because of these two differences, product-specific quantitative analysis of the 24-

Hour Clock metrics is more limited than the quantitative analysis of the failure indicators 

for the five processing phases.

Therefore, the Commission focuses its discussion of the 24-Hour Clock on the four 

clearance targets identified by the Postal Service as areas of concern. For each of these four 

areas, the Commission analyzes the Postal Service’s progress from FY 2015 to FY 2017, 

both qualitatively and quantitatively (as the data allows). Notwithstanding this focused 

discussion, the Commission finds that it is important to continue to monitor each indicator 

to ensure clearance of volume through all processing actions in an accurate and timely 

fashion.
Docket No. ACR2017 - 110 -

c. The Five Processing Phases

(1) Introduction

The Postal Service explains that the general flow of a First-Class Mail Single-Piece Letter or 

Postcard involves five processing phases. First, the Collections/First Mile phase refers to 

the pickup from the collection box, initial transport, and cancellation processing at the 

origin facility. Second, the origin processing phase refers to the initial sortation(s) and 

subsequent assignment to ground or air transportation. Third, the transit phase refers to 

when a mailpiece travels by ground or air transportation to destination processing 

facilities. Fourth, the destination processing phase refers to the sortation(s) for delivery. 

Fifth, the Delivery/Last Mile phase refers to the final phase where the carrier delivers the 

mailpiece.

Figure V-2 depicts the Postal Service’s visualization of the five processing phases.

Figure V-2

First-Class Mail Single-Piece Mail Flow

Source: Docket No. ACR2015, Service Response at 3.
Docket No. ACR2017 - 111 -

The five phases do not have uniform and concrete start and end points; instead, the general 

processing flow is fluid, reactive, and varies based on local conditions. Because each of the 

five phases flows into the next,178 the cumulative effect of a relatively low number of 

failures at a particular phase (or interim processing action) may have the potential for 

significant downstream delays. Evaluating the significance of failures occurring throughout 

the five processing phases on the national service performance results is important to 

assessing the relative success of the Postal Service’s improvement efforts.

The Commission subdivides its discussion according to the five phases identified by the 

Postal Service. For each phase, the discussion summarizes the general processing flow. To 

frame the discussion of each phase, the Commission uses a diagram that focuses on the 

processing actions during that phase that represent opportunities for measurement, data 

collection, and corrective action.179 Further discussion and analysis are focused on the 

metrics identified by the Postal Service relating to each processing phase for 3-5-Day FirstClass Mail Single-Piece Letters/Postcards.180 Generally, the data assigns the root cause of 

failure to various interim processing action(s) that occur within the five phases.

As discussed in the phase-specific analysis below, the data and explanations provided by 

the Postal Service suggest that the origin processing, transit, and destination processing 

phases provide the most opportunities for service performance improvement. The 

Commission notes that the indicators discussed in the transit and destination processing 

phases show a correlation to national service performances results for 3-5-Day First-Class 

Mail Single-Piece Letters/Postcards in FY 2015 through FY 2017.

The remaining indicators, which are not as closely linked to overall FY 2015 through FY 

2017 service performance results for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards, offer additional insight into the Postal Service’s processing network. 

Therefore, the Commission will continue to monitor and evaluate data from all indicators. 

Based on this analysis and the Commission’s findings concerning service performance in 

FY 2017, the Commission directs the Postal Service to provide updated data related to each 

processing phase in FY 2018. The exact requirements of this directive are discussed in 

section V.A.4.a., infra.

(2) Collections/First Mile

Collections/First Mile refers to the first phase, in which a First-Class Mail Single-Piece 

Letter or Postcard proceeds from collection through the cancellation process. See FY 2016 

ACD at 106. During this phase, the Postal Service collects the mailpiece from a collection 

 

178 Carriers from the Delivery/Last Mile phase return with mail that will eventually be included in processing. 

179 The diagrams are not an exhaustive description of the processing actions that occur. The arrows connecting the measurement points 

illustrate intra-phase transportation such as from a collection point to a postal facility, mail movement inside a postal facility, or between postal 

facilities. Opportunities to add visibility into these aspects of each phase also exist.

180 The Commission focuses its discussion on the 3-5-Day service standard because the Commission has noted particular concerns with the

service performance results for this service standard. FY 2015 ACD at 137; section V.A.4.a., infra.
Docket No. ACR2017 - 112 -

box or other collection point, transports it to the origin processing facility, unloads the 

mailpiece, and moves it to a facer-canceller machine to receive a cancellation mark.181 The 

diagram below illustrates these three processing points.

The Postal Service monitors collection delays that occur in retrieving mail from a collection 

box or in the handoff to the facility. Responses to CHIR No. 2, question 8.a. The Postal 

Service explains that the “Collection Delay failure indicator supersedes all other failure 

indicators if no subsequent cycle time checkpoints are met.” Id. Table V-6 shows that for 

each quarter of FY 2015 through FY 2017, collection delays were reported for fewer than .5 

percent of 3-5-Day First-Class Mail Single-Piece Letters/Postcards.

Table V-6

Nationwide Collection Delays Reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards, by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 0.14 0.19 0.19

Q2 0.25 0.23 0.20

Q3 0.13 0.13 0.13

Q4 0.20 0.11 0.20

Source: Docket No. ACR2016, December 28, 2017 Public File, tab “Q2 and 3a;” Responses to CHIR No. 11, question 5; Docket No. 

ACR2015, Service Response at 5.

The Commission’s preliminary assessment of collection delay data supports the Postal 

Service’s assertion that collection delays did not have a significant impact on national 

service performance results for 3-5-Day First-Class Mail Single-Piece Letters/Postcards in 

FY 2015 through FY 2017. Nonetheless, continuing to monitor collection delay data 

provides necessary transparency. Further, continuing to evaluate and correct issues that 

occur in the first phase of processing helps to ensure that failures at this phase will remain 

relatively low and minimizes downstream delays.

(3) Origin Processing

Origin processing refers to the phase that includes the first processing operations after a 

First-Class Mail Single-Piece Letter or Postcard receives a cancellation mark. FY 2016 ACD 

at 110. These processing actions include an origin primary sortation (as well as a 

 

181 Id. “A cancellation mark, or postmark, is applied to prevent the reuse of the indicia and to provide a date which is recognized as a valid time 

determinate. The cancellation mark consists of the city, state, and date to identify when and where a mailpiece was processed.” Docket No. 

ACR2016, Responses of the United States Postal Service to Questions 1-5 and 7-21 of Chairman’s Information Request No. 1, January 10, 2017, 

question 3 (Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1).

Pickup From 

Collection Point

Unload 

Mailpieces at 

Origin Processing 

Facility

Cancellation

Process
Docket No. ACR2017 - 113 -

secondary sortation, if necessary) and then assignment to transit, if necessary. Id. The 

diagram below illustrates the processing points.

The Commission asked the Postal Service to quantify the First-Class Mail Single-Piece 

Letters/Postcards receiving first processing operations one day after collection. FY 2015 

ACD at 138. In response, the Postal Service indicated that it used the Transit Time 

Measurement System (TTMS) to monitor origin processing delays. Docket No. ACR2015, 

Service Response at 9. The Postal Service classifies a mailpiece as experiencing an origin 

processing delay if the mailpiece receives either:

 an outgoing secondary scan after 0:00 on the day of induction or

 a late outgoing primary scan after 23:00 on the day of induction (if no secondary 

scan exists).

Responses to CHIR No. 2, question 8.a. The Commission recognizes the importance of the 

origin processing phase due to the potential impact on subsequent processing. Monitoring 

origin processing delay data is useful to correct failures that occur during early processing 

and therefore minimize failures downstream.

Table V-7 shows that for each quarter of FY 2015 through FY 2017, origin processing 

delays were reported for fewer than 5 percent of 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards.

Table V-7

Nationwide Origin Processing Delays Reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards, by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 1.47 3.54 3.58

Q2 4.57 2.68 2.57

Q3 2.40 1.32 1.47

Q4 1.57 1.19 1.59

Source: December 29, 2017 Public File, tab “Q3c;” Docket No. ACR2016, Responses

of the United States Postal Service to Questions 1-15 of Chairman’s Information

Request No. 13, February 10, 2017, question 1 (Docket No. ACR2016, Responses to CHIR No. 13).

The results for each quarter of FY 2017 follow a similar quarterly pattern as the results for 

each quarter of FY 2016. During FY 2016 and FY 2017, origin processing delays were 

reported to occur at higher percentages in Quarters 1 and 2 and lower percentages in 

Quarters 3 and 4. FY 2015 does not correspond to the same quarterly pattern—origin 

processing delays were lowest in FY 2015 Quarter 1 and spiked in FY 2015 Quarter 2. This 

coincides with the implementation of Phase 2 of Network Rationalization, which began on 

January 5, 2015, in early FY 2015 Quarter 2. FY 2016 ACD at 118.

Outgoing 

Primary 

Operations

Outgoing 

Secondary 

Operations

Assign Volumes 

to Transit 

Network
Docket No. ACR2017 - 114 -

Although the percentage of 3-5-Day First-Class Mail Single-Piece Letters/Postcards with 

origin processing delays reported in Quarters 2 and 3 of FY 2017 improved relative to the 

levels reported in Quarters 2 and 3 of FY 2015, the data suggest that the significant 

progress occurred during FY 2016. Moreover, the levels of origin processing delays 

reported in Quarter 1 increased in each fiscal year; however, FY 2017 Quarter 1 did not 

report as large an increase over the same period in the prior fiscal year (0.04 percentage 

points) as FY 2016 did (2.07 percentage points). The Commission encourages the Postal 

Service to focus on reducing the level of origin processing delays.

Figure V-3 compares quarterly origin processing delays and service performance results 

reported for 3-5-Day First-Class Mail Single-Piece Letters/Postcards for FY 2015 through 

FY 2017. Generally, in quarters where origin processing delays decreased, service 

performance results improved and in quarters where origin processing delays increased, 

service performance results declined.

Figure V-3

Service Performance Results and Nationwide Origin Processing Delays Reported for 3-5-Day 

First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

Source: December 29, 2017 Public File, tab “Q3c;” Docket No. ACR2016, Responses to CHIR No. 13, question 1. FY 2015-FY 2017 United 

States Postal Service Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports are available at 

http://www.prc.gov/documents/quarterly-performance.

As seen in Figure V-3, the correlation between the changes in origin processing delays and 

changes in service performance results, while evident, is not consistent from FY 2015 
Docket No. ACR2017 - 115 -

through FY 2017. The Commission notes two primary explanations. First, the Postal Service 

has the ability to accelerate mail through the collections and origin processing phases using 

process-advancing techniques. Second, the overall percentage levels of mailpieces 

impacted by origin processing delays from FY 2015 through FY 2017 remains below 5 

percent, which is not sufficient to account for the entire service performance result.

Therefore, the Commission does not view origin processing delays as having been 

particularly influential on 3-5-Day First-Class Mail Single-Piece Letters/Postcards service 

performance results for FY 2015 through FY 2017. Nonetheless, continuing to monitor 

origin processing delays provides necessary transparency. Further, continuing to evaluate 

and correct issues that occur in the earlier processing phases helps to ensure that failures 

at this phase will remain relatively low and minimizes downstream delays.

(4) Transit

Transit refers to the transportation of a mailpiece that is destined for an address outside of 

the local service area from which it was mailed. FY 2016 ACD at 115. During this phase, the 

mailpiece travels from the origin processing facility to the destination processing facility. 

Id. The Commission subdivides its discussion of the transit phase by transportation 

mode—air and ground. For each mode, the Commission discusses two indicators. The first 

indicators for each mode provide a good snapshot of particular problems identified by the 

Postal Service—air capacity gaps and ground trips that arrive more than 4 hours late 

(CLTs). The second indicators for each mode are AADC/ADC processing delays, which

correlate to national service performances results for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards in FY 2015 through FY 2017. Taken together these four indicators help 

gauge the efficacy of the Postal Service’s transit network.

(i) Air Transit

With respect to air transit, the Postal Service follows five general steps. The Postal Service’s 

first air transit processing action—securing capacity and assigning the mailpiece to the 

appropriate air carrier and intermediate ground carrier(s)—follows the last step of the 

origin processing phase. Second, the mailpiece is transferred to an intermediate ground 

carrier contracted to deliver the mailpiece to the air carrier. Third, after traveling some 

distance by ground, the intermediate operator transfers the mailpiece to the contracted air 

carrier. Fourth, the mailpiece is transported to the destination processing facility. Finally, 

the mailpiece is unloaded at the destination processing facility. FY 2016 ACD at 115-116. 

The diagram below illustrates the processing points.

The Commission focuses on two sets of air transit-related data provided by the Postal 

Service. The first is air capacity gaps, which correspond with the first point on the diagram 

Air Capaciity: 

Align and 

Secure

Volume 

Transfer: 

USPS to 

Intermediate 

Operator

Volume 

Transfer: 

Intermediate 

Operator to 

Air Transport 

Provider

Air Transport 

to 

Destination 

Processing

Unload 

Mailpieces at 

Destination 

Processing 

Facilities
Docket No. ACR2017 - 116 -

and may contribute to additional downstream delays. The Commission finds air capacity 

gap data are useful to assessing the service network. The second is AADC/ADC processing 

delays (specific to First-Class Mail Single-Piece Letters/Postcards traveling by air), which 

captures delays that may occur at any of these five processing points. The Commission 

finds that a relatively close and consistent correlation exists between air transit AADC/ADC 

processing delays and service performance results for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards from FY 2015 through FY 2017.

The air capacity gap refers to the difference between the airplane space secured and the 

space requested by the Postal Service. The Postal Service stated that Phase 2 of Network 

Rationalization resulted in insufficient air carrier capacity, which the Postal Service 

asserted was one of the primary reasons for the dramatic decline in First-Class Mail service 

performance results in FY 2015. FY 2015 ACD at 133. In response to CHIRs and the FY 2016 

ACD, the Postal Service provides air capacity gap data for each fiscal quarter since Phase 2 

of Network Rationalization was implemented.

Table V-8 and Figure V-4 display the air capacity gap reported by quarter for FY 2015 

Quarter 2 through FY 2017 Quarter 4.

Table V-8

Air Capacity Gap, by Volume, by Quarter, FY 2015–FY 2017

Air Carrier Capacity 

Requested Air Carrier Capacity Received Air Capacity Gap

FY 2015 Q2 172,802,712 152,268,168 20,534,544

FY 2015 Q3 166,389,873 153,097,529 13,292,344

FY 2015 Q4 164,085,103 155,999,285 8,085,818

FY 2016 Q1 212,745,658 193,238,920 19,506,738

FY 2016 Q2 252,678,595 230,048,715 22,629,880

FY 2016 Q3 212,352,972 198,815,088 13,537,884

FY 2016 Q4 198,440,550 195,992,958 2,447,592

FY 2017 Q1 203,329,800 195,798,675 7,531,125

FY 2017 Q2 199,514,640 194,290,278 5,224,362

FY 2017 Q3 186,500,834 178,092,434 8,408,400

FY 2017 Q4 177,735,982 174,191,004 3,544,977

Note: Data is calculated using average daily cubic feet volume. “Data is not provided for [FY 2015] Quarter 1 because Phase 2 of Network 

Rationalization was implemented on January 5, 2015, at the beginning of FY 2015 Quarter 2.” FY 2015 ACD at 133 n.231.

Source: December 29, 2017 Public File, tab “Q4a;” Docket No. ACR2016, Response of the United States Postal Service to Question 1 of the 

Chairman’s Information Request No. 28, March 17, 2017, question 1 (Docket No. ACR2016, Responses to CHIR No. 28); Docket No. ACR2015, 

Responses of the United States Postal Service to Questions 15-26 of Chairman’s Information Request No. 2, January 19, 2016, question 19.b. 

(Docket No. ACR2015, January 19, 2016 Responses to CHIR No. 2).
Docket No. ACR2017 - 117 -

Figure V-4

Air Capacity Gap, by Volume of Cubic Feet, by Quarter, FY 2015–FY 2017

Note: Data is calculated using daily cubic feet volume. “Data is not provided for [FY 2015] Quarter 1 because Phase 2 of Network 

Rationalization was implemented on January 5, 2015, at the beginning of FY 2015 Quarter 2.” FY 2015 ACD at 133 n.231.

Source: December 29, 2017 Public File, tab “Q4a;” Docket No. ACR2016, Responses to CHIR No. 28, question 1; Docket No. ACR2015, 

January 19, 2016 Responses to CHIR No. 2, question 19.b.

Generally, the air capacity gap has decreased since FY 2015. For FY 2017 Quarters 1 and 2, 

the air capacity gaps have decreased over 60 percent relative to the same Quarters in FY 

2016. For FY 2017 Quarter 3, the air capacity gap decreased over 38 percent relative to FY 

2016 Quarter 3. Although the FY 2017 Quarter 4 air capacity gap was slightly higher than 

the gap reported for FY 2016 Quarter 4, the FY 2017 Quarter 4 air capacity gap has 

decreased over 56 percent relative to FY 2015 Quarter 4.

The Postal Service’s focus on securing adequate levels of air capacity has yielded a 57 

percent decrease in the total air capacity gap reported between FY 2016 (58,122,094 cubic 

feet) and FY 2017 (24,708,864 cubic feet). These results show that the Postal Service 

requested and secured more appropriate quantities of air capacity to meet service needs in 

FY 2017. The Commission views these data as useful to assessing the air transit network. 

The Commission commends the Postal Service for its progress and encourages the Postal 

Service to continue these efforts.
Docket No. ACR2017 - 118 -

The Postal Service also monitors air transit based on AADC/ADC processing delays. The 

Postal Service classifies a First-Class Mail Single-Piece Letter or Postcard as experiencing 

an AADC/ADC processing delay if the mailpiece receives a processing scan at the expected 

AADC plant after 12:00 PM on the day before the expected day of delivery, and fails to meet 

any subsequent processing cycle time checkpoints.182 Table V-9 shows the percentage of 

AADC/ADC processing delays reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards using air transit for FY 2015 through FY 2017.

Table V-9

Nationwide AADC/ADC Processing Delays (Air Transit) Reported for

3-5-Day First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 14.33 14.67 10.20

Q2 26.13 13.73 10.24

Q3 14.87 7.63 7.47

Q4 14.53 7.07 7.91

Source: December 29, 2017 Public File, tab “Q4c_air;” Docket No. ACR2016, Responses of the United States Postal Service to Questions 2-

4 and 7-13 of Chairman’s Information Request No. 16, February 17, 2017, question 2 (Docket No. ACR2016, February 17, 2017 Responses 

to CHIR No. 16).

Air transit AADC/ADC processing delays tend to follow a cyclical pattern. The spike in FY 

2015 Quarter 2 coincided with the implementation of Phase 2 of Network Rationalization, 

which began on January 5, 2015. FY 2016 ACD at 118.

Generally, the Commission finds that the FY 2017 quarterly results for air transit 

AADC/ADC processing delays have improved since FY 2015, particularly for Quarter 2. FY 

2017 Quarter 2 air transit AADC/ADC processing delays decreased over 60 percent relative 

to FY 2015 Quarter 2.

Figure V-5 shows a relatively strong and consistent inverse correlation between 

AADC/ADC processing delays (air transit) and service performance results reported for 3-

5-Day First-Class Mail Single-Piece Letters/Postcards for FY 2015 through FY 2017.

 

182 Responses to CHIR No. 2, questions 7.c. ii. and 8.a. For flat-shaped pieces, this metric refers to a piece that receives a processing scan at the 

expected ADC plant after 12:00 PM on the day before the expected day of delivery, and fails to meet any subsequent processing cycle time 

checkpoints. Id.
Docket No. ACR2017 - 119 -

Figure V-5

Service Performance Results and Nationwide AADC/ADC Processing Delays (Air Transit) 

Reported for 3-5-Day First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

Source: December 29, 2017 Public File, tab “Q4c_air;” Docket No. ACR2016, February 17, 2017 Responses to CHIR No. 16, question 2. FY 2015-

FY 2017 United States Postal Service Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports are 

available at http://www.prc.gov/documents/quarterly-performance.

These data suggest that proper assignment and timely air transport of First-Class Mail 

Single-Piece Letters/Postcards with a 3-5-Day service standard corresponded with 

improved service performance results from FY 2015 through FY 2017. The Commission 

encourages the Postal Service to focus on further reducing air transit AADC/ADC 

processing delays.

(ii) Ground Transit

With respect to ground transit, the Postal Service generally follows three steps. The first 

processing action requires the transfer of the mailpiece to the contracted ground 

transportation provider. Second, the ground transportation provider transports the 

mailpiece to the destination processing facility. En route to the destination processing 

facility, the mailpiece may be transferred to and transported by additional ground 

transportation providers. Throughout ground transit, the Postal Service attempts to 

minimize delays and use more direct routes. Finally, the mailpiece is unloaded at the 

destination processing facility. The diagram below illustrates the processing points.
Docket No. ACR2017 - 120 -

The Commission focuses on two sets of ground transit-related data provided by the Postal 

Service. The first is CLTs, which the Postal Service defines as any trip arriving more than 4 

hours past the scheduled arrival time.183 The Commission finds CLT data are useful to 

assessing the service network. The second is AADC/ADC processing delays (specific to 

First-Class Mail Single-Piece Letters/Postcards traveling by ground), which captures delays 

that may occur at any of these three processing points. The Commission finds that a 

correlation exists between ground transit AADC/ADC processing delays and service 

performance results for 3-5-Day First-Class Mail Single-Piece Letters/Postcards from FY 

2015 through FY 2017. The Commission notes that this correlation is not as strong and 

consistent as the link observed for air transit AADC/ADC processing delays.

The Postal Service identifies a CLT by comparing the actual arrival scan to the scheduled 

arrival scan at the destination facility. Responses to CHIR No. 2, question 7.b.iii. The Postal 

Service reports using its Surface Visibility (SV)184 diagnostic tool to identify the route, trip, 

and the destinating area and district. Responses to CHIR No. 2, question 7.b.iii.

Figure V-6 shows the volume of CLTs in FY 2015 through FY 2017, disaggregated by area. 

As illustrated by Figure V-6, in FY 2017, the number of CLTs reported for each area 

significantly declined from the levels reported in FY 2015 and FY 2016.

 

183 Responses to CHIR No. 2, question 7.b.ii. The causes of these delays include postal dock operation errors, surface transportation contractor 

mechanical problems, or scheduling conflicts. Docket No. ACR2015, Service Response at 11. The Postal Service emphasizes that data are not 

sufficiently granular to determine whether a failed piece was delayed at origin, destination, or during transit. Id. at 15.

184 During FY 2016, the Postal Service expanded SV to include more processing facilities. Docket No. ACR2015, Service Response at 13. During FY 

2017, sites using SV were able to access an improved interface known as SVWeb, which increased the data and analytical capabilities of the 

diagnostic systems and dashboards. See id.; see also Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, question 14.

Volume Transfer: 

USPS to Ground 

Transport Provider

Ground Transport to 

Destination 

Processing

Unload Mailpieces 

at Destination 

Processing Facilities
Docket No. ACR2017 - 121 -

Figure V-6

CLTs, by Area, FY 2015–FY 2017

Note: SV identifies the CLT based on the destinating district and area. Responses to CHIR No. 2, question 7.b.iii.

Source: December 29, 2017 Public File, tab “Q4e;” Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, question 13.

Table V-10 compares the percentage decrease of CLTs to the percentage increases in 

service performance results reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards from FY 2015 to FY 2017 for each Postal Service area and the nation. 
Docket No. ACR2017 - 122 -

Table V-10

Declines in CLTs and Increases in 3-5-Day First-Class Mail Single-Piece Letters/Postcards

Service Performance Results,

by Area and Nationwide, FY 2015 to FY 2017

Area

CLTs

On-time Service 

Performance Results

FY 2015 FY 2017 % Decrease % Increase 

Capital Metro 6779 1896 72.0% 11.4%

Eastern 7824 3133 60.0% 8.8%

Great Lakes 5668 2991 47.2% 10.8%

Northeast 4338 2228 48.6% 13.3%

Pacific 2840 1324 53.4% 15.7%

Southern 8311 2718 67.3% 13.8%

Western 6366 2029 68.1% 11.1%

Total 42126 16319 61.3% 12.0%

Note: SV identifies the CLT based on the destinating district and area. Responses to CHIR No. 2, question 7.b.iii.

Source: December 29, 2017 Public File, tab “Q4e;” Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, question 

13.

In FY 2017, the Postal Service reports over 61 percent fewer CLTs nationwide than in FY 

2015. In FY 2017, each Postal Service area has reported over 47 percent fewer CLTs than in 

FY 2015. These declines correspond with increasing area-level and national-level service 

performance results reported for 3-5-Day First-Class Mail Single-Piece Letters/Postcards 

from FY 2015 to FY 2017. The Commission views these data as useful to assessing the 

ground transit network.

The Postal Service attributes the decline in CLTs to “education and focus.” Responses to 

CHIR No. 2, question 7.b.i. With regard to education, the Postal Service determined that 

scanning, dock operation, and supplier issues were the main variables that contributed the 

most to late trips. Id. In response to this finding, the Postal Service established the 

Stimulated Action initiative, which requires corrective actions based on occurrences of 

supplier-related delays. Id. Through training Administrative Officials, the Postal Service 

corrected a problem associated with the preparation of the Contract Route Irregularity 

Report. Id. This correction “allowed for a direct approach to supplier inefficiencies.” Id. The 

Postal Service also focused on training to improve dock operations and processing. Id. Also, 

the Postal Service focused on vital facilities through weekly teleconferences between 

Headquarters Surface Transportation and Area and local teams. Id. The Commission 

commends the Postal Service for its progress and encourages the Postal Service to continue 

its progress in reducing the number of CLTs.

The Postal Service also monitors ground transit based on AADC/ADC processing delays. 

The Postal Service classifies a First-Class Mail Single-Piece Letter or Postcard as 

experiencing an AADC/ADC processing delay if the mailpiece receives a processing scan at 
Docket No. ACR2017 - 123 -

the expected AADC plant after 12:00 PM on the day before the expected day of delivery, and 

fails to meet any subsequent processing cycle time checkpoints.185 Table V-11 shows the 

percentage of AADC/ADC processing delays reported for 3-5-Day First-Class Mail SinglePiece Letters/Postcards using ground transit for FY 2015 through FY 2017.

Table V-11

Nationwide AADC/ADC Processing Delays (Ground Transit) Reported for

3-5-Day First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 6.36 8.88 6.17

Q2 17.37 7.83 5.70

Q3 8.75 3.74 3.43

Q4 7.36 3.41 3.86

Source: December 29, 2017 Public File, tab “Q4c_surface;” Docket No. ACR2016, February 17, 2017 

Responses to CHIR No. 16, question 2.

Similar to its air transit counterpart, ground transit AADC/ADC processing delays tend to 

follow a cyclical pattern. The spike in FY 2015 Quarter 2 coincided with the 

implementation of Phase 2 of Network Rationalization, which began on January 5, 2015. FY 

2016 ACD at 118.

Generally, the Commission finds that the FY 2017 quarterly results for ground transit 

AADC/ADC processing delays have improved since FY 2015, particularly for Quarter 2. The 

Commission observes that the levels of ground transit AADC/ADC processing delays 

reported for FY 2017 Quarters 2 and 3 show two consecutive years of improvement from 

the levels reported during the same periods in FY 2015 and FY 2016. For FY 2017 Quarters 

2 and 3, ground transit AADC/ADC processing delays have decreased over 60 percent 

relative to the same Quarters in FY 2015.

Figure V-7 compares AADC/ADC processing delays (ground transit) and service 

performance results reported for 3-5-Day First-Class Mail Single-Piece Letters/Postcards 

for FY 2015 through FY 2017. Generally, these indicators move in opposite directions on a 

quarterly basis.

 

185 Responses to CHIR No. 2, questions 7.c.ii. and 8.a. For flat-shaped pieces, this metric refers to a piece that receives a processing scan at the 

expected ADC plant after 12:00 PM on the day before the expected day of delivery, and fails to meet any subsequent processing cycle time 

checkpoints. Id.
Docket No. ACR2017 - 124 -

Figure V-7

Service Performance Results and Nationwide AADC/ADC Processing Delays (Ground Transit) 

Reported for 3-5-Day First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

Source: December 29, 2017 Public File, tab “Q4c_surface;” Docket No. ACR2016, February 17, 2017 Responses to CHIR No. 16, question 2. 

FY 2015-FY 2017 United States Postal Service Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores 

Reports are available at http://www.prc.gov/documents/quarterly-performance.

Generally, ground transit AADC/ADC processing delays corresponded with improved 

service performance results from FY 2015 through FY 2017. The Commission encourages 

the Postal Service to continue its efforts to reduce ground transit AADC/ADC processing 

delays.

(5) Destination Processing

Destination processing refers to the processing phase that occurs after First-Class Mail 

Single-Piece Letters/Postcards arrive at a destination processing facility. See FY 2016 ACD 

at 124. The basic operational flow for the destination processing phase involves two 

sortations: a primary sortation and a secondary sortation. First, the mailpiece receives an 

incoming primary sortation, also known as an MMP sortation. Second, the mailpiece 

receives an incoming secondary sortation to Delivery Point Sequence (DPS) or Carrier 

Route sequence. The incoming secondary sort is also known as the Last Processing 

Operation (LPO) because it is the final automated mail processing operation. The diagram 

below illustrates the processing points.
Docket No. ACR2017 - 125 -

The Commission focuses its discussion on 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards reported to have already missed service standard by LPO (“Miss by 

LPO”). Miss by LPO aggregates pieces classified by the Postal Service as experiencing root 

cause failures that may occur during the Collections/First Mile, origin processing, transit, 

or destination processing phases. Responses to CHIR No. 2, question 8.a. 

Table V-12 shows the percentage of 3-5-Day First-Class Mail Single-Piece Letters/Postcards 

classified as Miss by LPO for FY 2015 through FY 2017. 

Table V-12

Nationwide 3-5-Day First-Class Mail Single-Piece Letters/Postcards

Reported as Miss by LPO, by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 12.50 18.72 13.98

Q2 32.31 16.24 12.04

Q3 18.58 8.89 8.45

Q4 14.90 8.13 9.32

Source: Responses to CHIR No. 20, question 1; 

December 29, 2017 Public File, tab “Q5b;” Docket No. ACR2015, Service Response at 18.

Similar to other processing indicators, Miss by LPO tends to follow a cyclical pattern with a 

spike in FY 2015 Quarter 2, which coincided with the implementation of Phase 2 of 

Network Rationalization. 

With the exception of Quarter 1, the Commission finds that the FY 2017 quarterly results 

for Miss by LPO show improvement since FY 2015, particularly for Quarters 2 and 3. The 

level of mailpieces reported as Miss by LPO for FY 2017 Quarters 2 and 3 decreased over 

54 percent relative to the same periods in FY 2015. The Commission observes that the 

levels of mailpieces reported as Miss by LPO for FY 2017 Quarters 2 and 3 show two 

consecutive years of improvement from the levels reported during the same periods in FY 

2015 and FY 2016. 

By contrast, FY 2017 Quarter 4 results did not improve over FY 2016. Instead, the level of 

mailpieces reported as Miss by LPO for FY 2017 Quarter 4 was slightly higher than the level 

reported for FY 2016 Quarter 4. Notwithstanding this observation, the level of mailpieces 

reported as Miss by LPO for FY 2017 Quarter 4 has decreased over 37 percent relative to 

FY 2015 Quarter 4.

Primary/MMP Sortation

Secondary Sortation to DPS 

or Carrier Route/

Last Processing Operation 

(LPO)
Docket No. ACR2017 - 126 -

Although the Commission is encouraged by the improvement reported for FY 2017 Quarter 

1 relative to FY 2016 Quarter 1, the Commission observes that the level of mailpieces 

reported as Miss by LPO for FY 2017 Quarter 1 remains higher than the level reported for 

FY 2015 Quarter 1.

Figure V-8 compares Miss by LPO and service performance results reported for 3-5-Day 

First-Class Mail Single-Piece Letters/Postcards for FY 2015 through FY 2017.

Figure V-8

Service Performance Results and Nationwide Miss by LPO Reported for

3-5-Day First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

Source: Responses to CHIR No. 20, question 1; December 29, 2017 Public File, tab “Q5b;” Docket No. ACR2015, Service Response at 18. FY 

2015-FY 2017 United States Postal Service Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores 

Reports are available at http://www.prc.gov/documents/quarterly-performance.

The Commission finds that this indicator provides valuable insight into nationwide service 

performance results. This is mainly because the absolute change in quarterly results for 

Miss by LPO maintains a close inverse relationship with the change in service performance 

results. For example, the change in the percentage Miss by LPO from the first quarter of FY 

2015 to the second quarter of FY 2015 is a decline of 19.8 percentage points, and the 

change in service performance results for the same time period is an increase of 20.2 

percentage points. Table V-13 shows that the difference between the changes in the two 

indicators is normally within 1 percentage point.
Docket No. ACR2017 - 127 -

Table V-13

Quarterly Change in Service Performance Results and Miss by LPO Reported for

3-5-Day First-Class Mail Single-Piece Letters/Postcards, FY 2015–FY 2017

Miss by LPO Service Performance Percentage 

Point 

Difference 

Between 

Quarterly 

Change

% Results

Percentage 

Point Quarterly 

Change

% On-time 

Results

Percentage 

Point Quarterly 

Change

FY 2015 Q1 12.5 83.9

FY 2015 Q2 32.31 -19.81 63.7 20.2 -0.39

FY 2015 Q3 18.58 13.73 78.3 -14.6 -0.87

FY 2015 Q4 14.9 3.68 83.1 -4.8 -1.12

FY 2016 Q1 18.72 -3.82 78.9 4.2 -0.38

FY 2016 Q2 16.24 2.48 81.4 -2.5 -0.02

FY 2016 Q3 8.89 7.35 89 -7.6 -0.25

FY 2016 Q4 8.13 .76 89.7 -0.7 0.06

FY 2017 Q1 13.98 -5.85 83.4 6.3 -0.45

FY 2017 Q2 12.04 1.94 85.4 -2 -0.06

FY 2017 Q3 8.45 3.59 89.3 -3.9 -0.31

FY 2017 Q4 9.32 -0.87 88.2 1.1 -0.23

Source: Responses to CHIR No. 20, question 1; December 29, 2017 Public File, tab “Q5b;” Docket No. ACR2015, Service Response at 18. FY 

2015-FY 2017 United States Postal Service Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports 

are available at http://www.prc.gov/documents/quarterly-performance.

The Commission notes that the quarterly data show the reoccurring tendency of better 

service performance during Quarters 3 and 4 relative to Quarters 1 and 2. For instance, 

data for FY 2016 Quarters 1 and 2 show that 18.72 percent and 16.24 percent of mailpieces 

already missed their service standard by the last processing operation relative to only 8.89 

percent and 8.13 percent during Quarters 1 and 2 of the same fiscal year. 

These data show a significant difference in effective processing between the first and 

second halves of the fiscal year. Therefore, the Postal Service should focus its efforts to 

improve service performance results on reducing the level of 3-5-Day First-Class Mail 

Single-Piece Letters/Postcards that Miss by LPO, in Quarters 1 and 2. 

(6) Delivery/Last Mile

Delivery/Last Mile refers to the final phase during which the mail carrier delivers a 

mailpiece to the addressee. See Docket No. ACR2015, Service Response at 2. The basic 

operational flow for the Delivery/Last Mile phase involves three major steps: mail dispatch, 

carrier in office operations, and delivery.186 The diagram below illustrates three processing 

points.

 

186 First-Class Mail Single-Piece Letters/Postcards that were not processed to the DPS level during the destination processing phase will be 

manually processed by mail carriers (“cased”) before these two steps occur. See Docket No. ACR2015, Service Response at 19-20.
Docket No. ACR2017 - 128 -

The Postal Service assigns a Delivery/Last Mile failure indicator if the failed First-Class Mail 

Single-Piece Letter or Postcard: has a correct, final scan from the destination plant before 

08:00 on the expected day of delivery; has no additional scan anomalies (does not receive a 

first DPS pass only, does not experience DPS looping, and has the appropriate depth of sort 

given its destination); and is not delivered by its service standard. Responses to CHIR No. 2, 

question 8.a. The Postal Service states that Delivery/Last Mile failures may be a result of a 

delay in mail dispatch from the destination plant or a delay in the Delivery/Last Mile phase. 

Docket No. ACR2015, Service Response at 18.

Figure V-9 shows the percentage of Delivery/Last Mile failures reported for 3-5-Day FirstClass Mail Single-Piece Letters/Postcards for FY 2015 through FY 2017.

Figure V-9

Nationwide Delivery/Last Mile Failures Reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards, by Percentage, by Quarter, FY 2015–FY 2017

Source: Responses to CHIR No. 11, question 7; December 29, 2017 Public File, tab “Q6a;” Docket No. ACR2015, Service Response at 19.

Each quarter of FY 2017 reports a higher percentage of Delivery/Last Mile failures than the 

level reported for the same period during the prior two fiscal years.

From FY 2015 through FY 2017, the quarterly Delivery/Last Mile failure percentages were 

below 2 percent. This supports the Postal Service’s assertion that Delivery/Last Mile 

Dispatch Carrier In Office Delivery
Docket No. ACR2017 - 129 -

failures did not significantly impact national service performance results for 3-5-Day FirstClass Mail Single-Piece Letters/Postcards for FY 2015 through FY 2017. This analysis is 

further corroborated by the Miss by LPO results. Nonetheless, continuing to monitor

Delivery/Last Mile failure data provides necessary transparency. Further, continuing to 

evaluate and correct issues that occur in the final phase of processing helps to ensure that 

Delivery/Last Mile failures will remain relatively low.

(7) Conclusion

The Commission summarizes key observations for each indicator’s quarterly results from 

FY 2015 through FY 2017:

 Collection delays remained consistently low (fewer than 0.5 percent). Continuing to 

monitor, evaluate, and correct collection delays is important to ensuring that such 

failures remain relatively low and minimizes downstream delays.

 Origin processing delays were relatively low (fewer than 5 percent). Continuing to 

monitor, evaluate, and correct origin processing delays is important to ensuring that 

such failures remain relatively low and minimizes downstream delays.

 The reduction in air and ground transit failures have improved service performance 

results for 3-5-Day First-Class Mail Single-Piece Letters/Postcards.

o The air capacity gap appears to be shrinking from the levels observed in FY 

2015.

o Air transit AADC/ADC processing delays correlate with national service 

performance results for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards. This correlation appears to be strong and consistent.

o The decrease in CLTs correspond with increases in service performance 

results for 3-5-Day First-Class Mail Single-Piece Letters/Postcards.

o Ground transit AADC/ADC processing delays correlate with national service 

performance results for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards.

 The absolute change in quarterly results for Miss by LPO during destination 

processing maintains a close inverse relationship with the change in service 

performance results for 3-5-Day First-Class Mail Single-Piece Letters/Postcards.

 Delivery/Last Mile failures were relatively low (fewer than 2 percent). Continuing to 

monitor, evaluate, and correct Delivery/Last Mile failures is important to ensuring 

that such failures remain relatively low.

d. 24-Hour Clock

(1) Introduction

The second group of indicators is based on the Postal Service’s national operating plan 

targets for eight processing actions—referred to as the 24-Hour Clock. For each processing 

action, the Postal Service sets national clearance goals to process a target percentage of 

applicable mail by a target time of day. The Commission views the 24-Hour Clock 

processing metrics as useful indicators for monitoring the relative speed of Postal Service 

network operations and allowing the Postal Service to monitor service performance trends.
Docket No. ACR2017 - 130 -

With regard to the 24-Hour Clock processing metrics, the Commission notes that some 

measurements include several different types of mail products and classes. For each metric, 

First-Class Mail Single-Piece Letters/Postcards comprise at least some of the applicable 

mail population measured. In order for the Postal Service to be responsive to the 

Commission’s evaluation of service performance for each Market Dominant product, it 

should consider designing metrics that highlight data specific to a particular product.

Table V-14 displays the national clearance goals—which include a percentage target and a 

time target—used during FY 2017 for each processing action included in the 24-Hour 

Clock. Table V-14 also displays the corresponding processing action(s), and a description of 

each measurement. The four processing actions identified by the Postal Service as areas of 

specific concern are bolded in Table V-14 and discussed in more detail below.
Docket No. ACR2017 - 131 -

Table V-14

24-Hour Clock

Processing Action Description of Measurement

Percentage 

Clearance 

Target

Time Clearance Target 

(hours)

Cancelled

Measures the percentage of First-Class 

Mail Single-Piece Letters/Postcards with 

cancelled postage by the designated 

clearance time.

80 20:00

Outgoing Primary Cleared

Measures the percentage of First-Class 

Mail Single-Piece Letters/Postcards and 

Presorted Letters/Postcards that have 

received a primary sortation by the 

designated clearance time.

95 24:00

Outgoing Secondary Cleared

Measures the percentage of First-Class 

Mail Single-Piece Letters/Postcards and 

Presorted Letters/Postcards that have 

received a secondary sortation by the 

designated clearance time.

95 00:30

Assignment to 

Commercial/FedEx

Measures the percentage of mail assigned 

to the air network by the designated 

clearance time. This metric may include 

First-Class Mail Single-Piece 

Letters/Postcards, Presorted 

Letters/Postcards, Parcels, and Flats. It 

may also include Priority Mail and FirstClass Package Service competitive 

products.

95 02:30

On-time Trips

Measures the on-time percentage of 

outbound trips from a mail processing 

facility between the designated times.

88 00:00-07:00

Managed Mail Program 

(MMP) Cleared

Measures the percentage of First-Class 

Mail Single-Piece Letters/Postcards and 

Presorted Letters/Postcards that have 

received a primary sortation by the 

designated clearance time.

95 15:00 on the day before 

delivery

Delivery Point Sequence 

(DPS) second pass Cleared

Measures the percentage of First-Class 

Mail Single-Piece Letters/Postcards and 

Presorted Letters/Postcards that have 

received DPS sortation by the designated 

clearance time. It may also include 

Standard Mail Letters.

95 05:00 on the day of delivery

Carriers Returned

Measures the percentage of delivery unit 

carriers that return to the office by the 

designated time.

87 17:00 on the day of delivery

Note: Effective September 3, 2017, the Retail (Single-Piece) price category of First-Class Mail Parcels was transferred from the Market Dominant 

product list to the Competitive product list by the addition of identical services to the existing First-Class Package Service competitive product. 

Docket No. CP2017-230, Order Approving Price Adjustment for First-Class Package Service Product, August 9, 2017, at 4 (Order No. 4032).

This table displays the national 24-Hour Clock clearance time targets effective for FY 2017. In response to technological improvements, 

increased visibility, and recent processing trends, the Postal Service reviews and adjusts the 24-Hour Clock targets. Docket No. ACR2015, 

Responses of the United States Postal Service to Questions 1-20 of Chairman’s Information Request No. 22, November 15, 2016, question 2.b.ii. 

(Docket No. ACR2015, Responses to CHIR No. 22). National 24-Hour Clock clearance time targets for five processing actions (outgoing primary, 

outgoing secondary, trips departing on-time, MMP, and DPS 2nd pass) were adjusted in FY 2016. See 24-Hour Clock Results File FY 2015-FY 2016.

Source: Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, question 5; Responses to CHIR No. 11, question 1.
Docket No. ACR2017 - 132 -

The 24-Hour Clock measures a continuous stream of mail processing activities. For each 

processing action included in the 24-Hour Clock, the Postal Service sets “upper and lower 

control limits . . . calculated based on average performance and standard deviations” to 

account for “[s]light variation in performance.” Docket No. ACR2015, Responses to CHIR 

No. 22, question 2.b.i. The Postal Service indicates that the results trigger local action. Id., 

question 2.b.iv. Specifically, if a facility’s performance degrades below the lower control 

limit established for a processing action, the District Manager, Plant Manager, or both must 

ensure that the facility implements corrective actions and that the Area Manager of 

Operations Support receives action plans and results. Id., questions 2.b.i. and 2.b.v. In 

March 2017, the Postal Service implemented the Operating Plan report, which shows the 

volume processed after the established 24-Hour Clock clearance time target to monitor 

daily and weekly performance at the facility level. Responses to CHIR No. 11, question 3. 

The Postal Service identified four of the eight 24-Hour Clock clearance targets as areas of 

specific concern for FY 2017: outgoing primary cleared, assignment to commercial/FedEx, 

on-time trips, and MMP cleared.187 The Postal Service indicated that achieving these targets 

directly influences the ability to achieve subsequent 24-Hour Clock clearance targets. 

Docket No. ACR2016, Responses to CHIR No. 10, question 2.a. The following discussion 

focuses on these four areas.

Below, the Commission displays the results for each of these four 24-Hour Clock clearance 

targets at the national level on a quarterly basis for FY 2015 through FY 2017. In reviewing 

these results, it is important to note that mailpieces that do not achieve the 24-Hour Clock 

clearance targets may not necessarily arrive at their destination after the applicable service 

standard. See Responses to CHIR No. 20, question 2.b. However, as the Postal Service 

explains, failure to meet clearance targets decreases the confidence of delivering the 

mailpiece on time. See id. Also, as discussed specifically for each target below, several of the 

24-Hour Clock clearance time targets were adjusted during FY 2015 through FY 2017.

The Commission concurs with the Postal Service that the four identified processing actions 

have a significant impact on overall service performance results. The Commission finds 

that the Postal Service should continue its focus on these actions to support improved 

service performance results. Based on this analysis and the Commission’s findings 

concerning service performance in FY 2017, the Commission directs the Postal Service to 

provide updated data related to the 24-Hour Clock in FY 2018. The exact requirements of 

this directive are discussed in section V.A.4.a., infra.

(2) Outgoing Primary Cleared

Outgoing primary cleared measures the processing of First-Class Mail Single-Piece 

Letters/Postcards and Presorted Letters/Postcards that require a primary sortation at the 

origin processing facility. Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, 

 

187 Docket No. ACR2016, Responses of the United States Postal Service to Questions 1-3, 4.a, 4.c, and 5-8 of Chairman’s Information Request 

No. 10, February 7, 2017, question 2.a. (Docket No. ACR2016, February 7, 2017 Responses to CHIR No. 10).
Docket No. ACR2017 - 133 -

question 5.b.ii. The national clearance time targets for completion of this processing action 

were:

 FY 2015 Quarter 1 through FY 2016 Quarter 2—23:00 hours and

 FY 2016 Quarter 3 through FY 2017 Quarter 4—24:00 hours.

See 24-Hour Clock Results File FY 2015-FY 2016; Responses to CHIR No. 11, question 1.b.

The Postal Service reports using its diagnostic tools to promote facility actions that focus 

on flowing pieces to the outgoing primary operation faster during FY 2017. Responses to 

CHIR No. 11, question 2.a. For instance, facility supervisors monitor pieces flowing from 

cancellation to outgoing primary and promote the prompt flow of pieces from the 

Advanced Facer Canceller System (AFCS) to outgoing primary roughly once every 30 

minutes or less (instead of batching, which would involve waiting for a certain number of 

pieces before flowing to the next operation). Id. Also, to better ensure that metered pieces 

(which do not require cancellation) bypass the AFCS and proceed directly to outgoing 

primary, the Postal Service monitors metered pieces that flow through the AFCS. Id.

Table V-15 shows the percentage of First-Class Mail Single-Piece Letters/Postcards and 

Presorted Letters/Postcards reported as clearing outgoing primary by the national 

clearance time target for FY 2015 through FY 2017.

Table V-15

Nationwide First-Class Mail Single-Piece Letters/Postcards and Presorted Letters/Postcards 

Reported as Receiving Outgoing Primary Sortation by the Designated National Clearance 

Time, by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 85.5 79.8 90.1

Q2 78.6 83.0 93.0

Q3 84.0 95.4 95.0

Q4 87.2 96.1 95.0

Note: For FY 2015 Quarter 1 through FY 2016 Quarter 2, the national clearance time target for 

completion of outgoing primary was 23:00; for FY 2016 Quarter 3 through FY 2017 Quarter 4, the 

national clearance time target for completion of outgoing primary was 24:00. 24-Hour Clock Results 

File FY 2015-FY 2016; see also Responses to CHIR No. 11, question 1.b.

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016.

The increase observed in the national quarterly results beginning in FY 2016 Quarter 3 

coincided with the readjustment of the national clearance time target to one hour later in 

the day.

The Commission observes that clearing mailpieces through outgoing primary by the 

designated national clearance time target appears to be closely linked to the subsequent 

24-Hour Clock target (outgoing secondary cleared). Outgoing secondary cleared measures 

the processing of First-Class Mail Single-Piece Letters/Postcards and Presorted 
Docket No. ACR2017 - 134 -

Letters/Postcards that require a secondary sortation at the origin processing facility. 

Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, question 5.b.iii.

The national clearance time targets for completion of outgoing secondary were:

 FY 2015 Quarter 1 through FY 2016 Quarter 2—24:00 hours (one hour after 

outgoing primary) and

 FY 2016 Quarter 3 through FY 2017 Quarter 4—00:30 hours (30 minutes after 

outgoing primary).

See 24-Hour Clock Results File FY 2015-FY 2016; Responses to CHIR No. 11, question 1. 

This reduction of the targeted time between outgoing primary and outgoing secondary 

appears to further demonstrate the Postal Service’s focus on ensuring the continuous flow 

of pieces through outgoing primary operations.

Figure V-10 compares the percentage of First-Class Mail Single-Piece Letters/Postcards 

and Presorted Letters/Postcards reported as clearing outgoing primary and outgoing 

secondary by the national clearance time target with service performance results reported 

for 3-5-Day First-Class Mail Single-Piece Letters/Postcards for FY 2015 through FY 2017. 

Generally, these three indicators move in the same direction on a quarterly basis.
Docket No. ACR2017 - 135 -

Figure V-10

Nationwide First-Class Mail Single-Piece Letters/Postcards and Presorted Letters/Postcards 

Reported as Receiving Outgoing Primary and Outgoing Secondary Sortations by the 

Designated National Clearance Times Compared to the Service Performance Results Reported 

for 3-5-Day First-Class Mail Single-Piece Letters/Postcards, by Percentage, by Quarter, 

FY 2015–FY 2017

Note: For FY 2015 Quarter 1 through FY 2016 Quarter 2, the national clearance time target for completion of outgoing primary was 23:00 

and the national clearance time target for completion of outgoing secondary was 24:00. For FY 2016 Quarter 3 through FY 2017 Quarter 4, 

the national clearance time target for completion of outgoing primary was 24:00 and the national clearance time target for completion of 

outgoing secondary was 00:30. 24-Hour Clock Results File FY 2015-FY 2016; see also Responses to CHIR No. 11, questions 1.b. and 1.c.

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016. FY 2015-FY 2017 United States Postal Service 

Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports are available at 

http://www.prc.gov/documents/quarterly-performance. 

These data support the Postal Service’s continued focus on the continuous flow of pieces 

through outgoing primary (and secondary) sortations. The Commission encourages the 

Postal Service to continue its efforts.

(3) Assignment to Commercial/FedEx

Assignment to commercial/FedEx measures the mailpieces reported as assigned to the air 

network. Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, question 5.b.iv. 

The mailpieces measured include First-Class Mail Single-Piece Letters/Postcards, 

Presorted Letters/Postcards, and Flats, as well as some competitive products (Priority Mail 

and First-Class Package Service parcels). Id. The national clearance time target for 
Docket No. ACR2017 - 136 -

completion was 02:30 hours during FY 2015 through FY 2017. See 24-Hour Clock Results 

File FY 2015-FY 2016; Responses to CHIR No. 11, question 1.d.

The Postal Service indicated that this target primarily applies to pieces with a 3-5-Day 

service standard. Docket No. ACR2016, February 7, 2017 Responses to CHIR No. 10, 

question 2.a. The Postal Service reports using its diagnostic tools to promote facility actions 

that focus on avoiding a bottleneck during FY 2017. Responses to CHIR No. 11, question 2.b. 

For instance, the Postal Service aims to load all available pieces as early as possible to 

reduce the risk that pieces miss the plane’s departure. Id.

Table V-16 displays the percentage of mailpieces reported as assigned to the air network 

by 02:30 hours for each quarter of FY 2015 through FY 2017.

Table V-16

Nationwide Mailpieces Reported as Assigned to FedEx/Commercial Carrier by 02:30 hours, 

by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 89.6 86.6 88.6

Q2 85.3 88.7 90.6

Q3 88.6 92.2 92.6

Q4 89.8 92.8 92.5

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock 

Results File FY 2015-FY 2016.

These data show that the percentage of the mailpieces assigned to the air network by 02:30 

hours has generally increased over the past three fiscal years. This trend shows that the 

Postal Service has made progress in FY 2016 and FY 2017 in assigning a greater percentage 

of mailpieces to the air network by 02:30 hours.

Figure V-11 compares the percentage of mailpieces reported as assigned to the air network 

and service performance results reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards for FY 2015 through FY 2017. Generally, these two indicators move in 

the same direction on a quarterly basis.
Docket No. ACR2017 - 137 -

Figure V-11

Nationwide Mailpieces Reported as Assigned to FedEx/Commercial Carrier by 02:30 hours 

and Service Performance Results Reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards, by Percentage, by Quarter, FY 2015–FY 2017

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016. FY 2015-FY 2017 United States Postal Service 

Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports are available at 

http://www.prc.gov/documents/quarterly-performance.

These data support the Postal Service’s focus on this processing action to improve service 

performance results. The Commission encourages the Postal Service to continue its efforts.

(4) On-time Trips

On-time trips measures the on-time percentage of outbound trips from a mail processing 

facility via the surface network. Docket No. ACR2016, January 10, 2017 Responses to CHIR 

No. 1, question 5.b.viii.

The national clearance time targets for completion of this processing action were:

 FY 2015 Quarter 1 through FY 2016 Quarter 2—04:00 hours through 09:00 hours 

(5-hour range) and

 FY 2016 Quarter 3 through FY 2017 Quarter 4—00:00 hours through 07:00 hours 

(7-hour range).

See 24-Hour Clock Results File FY 2015-FY 2016; Responses to CHIR No. 11, question 1.e. 

The adjustment of the national clearance time targets to earlier in the day reflects the 
Docket No. ACR2017 - 138 -

Postal Service’s efforts to dispatch the mail to its surface network faster. Further, the 

adjustment to measure a wider time range reflects the Postal Service’s increased attention 

to ensuring that outbound trips depart on-time.

The Postal Service indicated that these clearance targets primarily apply to the pieces with 

the Overnight or 2-Day service standard. Docket No. ACR2016, February 7, 2017 Responses 

to CHIR No. 10, question 2.a. The Postal Service reports using its diagnostic tools (such as 

SV188) to promote facility actions that focus on reducing late departures during FY 2017. 

Responses to CHIR No. 11, question 2.c. For instance, facilities have used Gemba weeks 

(Lean Six Sigma techniques that focus on site-specific review and improvement, such as 

performing process walks) to adjust staffing, improve communication, and dispatch pieces 

to the surface network faster. Id.

Table V-17 shows the percentage of on-time outbound trips departing a mail processing 

facility between the designated national clearance time targets for FY 2015 through FY 

2017.

Table V-17

Nationwide On-Time Outbound Trips from a Mail Processing Facility between the Designated 

National Clearance Times, by Percentage, by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 75.1 75.7 64.6

Q2 77.2 80.0 72.5

Q3 84.2 79.5 86.9

Q4 83.0 85.3 85.6

Note: For FY 2015 Quarter 1 through FY 2016 Quarter 2, the national clearance time targets 

were 04:00 through 09:00; for FY 2016 Quarter 3 through FY 2017 Quarter 4, the national 

clearance time targets were 00:00 through 07:00. 24-Hour Clock Results File FY 2015-FY 2016; 

see also Responses to CHIR No. 11, question 1.e.

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016.

The decline observed in FY 2017 Quarters 1 and 2 relative to the same periods in FY 2016 

may reflect the adjusted time clearance target range, which begin earlier in the day and 

capture a longer duration. FY 2017 Quarter 3 and 4 results improved from the levels 

observed in the same periods in FY 2016, which used the same time clearance target range. 

The on-time trip results provide a useful snapshot of the Postal Service’s ability to handoff 

pieces (particularly those with an Overnight or 2-Day service standard) to its ground 

transportation network. The Commission encourages the Postal Service to increase its 

focus on this area.

 

188 The SV tool is discussed in n.184 , supra. 
Docket No. ACR2017 - 139 -

Figure V-12 compares the percentage of on-time outbound trips departing a mail 

processing facility between the designated national clearance time targets with service 

performance results reported for 3-5-Day First-Class Mail Single-Piece Letters/Postcards 

for FY 2015 through FY 2017.

Figure V-12

Nationwide On-Time Outbound Trips from a Mail Processing Facility Between the Designated 

National Clearance Times Compared to the Service Performance Results Reported for 3-5-Day 

First-Class Mail Single-Piece Letters/Postcards,

by Percentage, by Quarter, FY 2015–FY 2017

Note: For FY 2015 Quarter 1 through FY 2016 Quarter 2, the national clearance time targets were 04:00 through 09:00; for FY 2016 

Quarter 3 through FY 2017 Quarter 4, the national clearance time targets were 00:00 through 07:00. 24-Hour Clock Results File FY 2015-FY 

2016; see also Responses to CHIR No. 11, question 1.e.

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016. FY 2015-FY 2017 United States Postal Service 

Quarterly Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports are available at 

http://www.prc.gov/documents/quarterly-performance.

These data suggest that 3-5-Day First-Class Mail Single-Piece Letters/Postcards service 

performance results are more closely linked with assignment to air transit rather than ontime trip departure. For example, comparing FY 2015 Quarters 1 and 2 shows that the 

percentage of on-time trips increased slightly while 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards service performance results declined sharply.
Docket No. ACR2017 - 140 -

(5) MMP Cleared

MMP cleared measures the processing of First-Class Mail Single-Piece Letters/Postcards 

and Presorted Letters/Postcards that require a primary sortation at the destination 

processing facility. Docket No. ACR2016, January 10, 2017 Responses to CHIR No. 1, 

question 5.b.iv.

The national clearance time targets for completion of this processing action were:

 FY 2015 Quarter 1—12:00 hours, 

 FY 2015 Quarter 2 through FY 2016 Quarter 2—20:00 hours, and

 FY 2016 Quarter 3 through FY 2017 Quarter 4—15:00 hours.

See 24-Hour Clock Results File FY 2015-FY 2016; Responses to CHIR No. 11, question 1.f.

Because this target applies to pieces that originate in one service area and destinate in a 

different service area, it captures pieces that have flowed through more of the Postal 

Service’s transit network. See Docket No. ACR2016, February 7, 2017 Responses to CHIR 

No. 10, question 2.a. The Postal Service reports using its diagnostic tools (such as SV189) 

that focus on flowing pieces to the incoming primary operation faster during FY 2017. 

Responses to CHIR No. 11, question 2.d. For instance, the facilities monitor incoming trips 

to ensure timely unloading of pieces, begin processing in the morning, and use signs and 

staging lanes to ensure pieces are processed in an organized First In, First Out (FIFO) 

order. Id.

Table V-18 shows the percentage of First-Class Mail Single-Piece Letters/Postcards and 

Presorted Letters/Postcards clearing MMP by the national clearance time target for FY 

2015 through FY 2017. 

Table V-18

Nationwide First-Class Mail Single-Piece Letters/Postcards and Presorted Letters/Postcards 

Reported as Clearing MMP by the Designated National Clearance Time, by Percentage, 

by Quarter, FY 2015–FY 2017

FY 2015 FY 2016 FY 2017

Q1 33.8* 67.0 87.8

Q2 64.2 66.7 88.9

Q3 68.1 88.1 89.5

Q4 69.0 89.2 88.2

*For FY 2015 Quarter 1, the national clearance time target was 20:00. The Postal Service states that the FY 2015 Quarter 1 results are 

artificially low because these results were recast using the 12:00 hours clearance time. 24-Hour Clock Results File FY 2015-FY 2016.

 

189 The SV tool is discussed in n.184 , supra. 
Docket No. ACR2017 - 141 -

Note: For FY 2015 Quarter 2 through FY 2016 Quarter 2, the national clearance time target was 12:00. For FY 2016 Quarter 3 through FY 

2017 Quarter 4, the national clearance time target was 15:00. 24-Hour Clock Results File FY 2015-FY 2016; see also Responses to CHIR No. 

11, question 1.f.

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016.

Figure V-13 compares the percentages of First-Class Mail Single-Piece Letters/Postcards 

and Presorted Letters/Postcards clearing MMP by the national clearance time target with

service performance results reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards for FY 2015 through FY 2017.

Figure V-13

Nationwide First-Class Mail Single-Piece Letters/Postcards and Presorted Letters/Postcards 

Reported as Clearing MMP by the Designated National Clearance Time Compared to the 

Service Performance Results Reported for 3-5-Day First-Class Mail Single-Piece 

Letters/Postcards, by Percentage, by Quarter, FY 2015–FY 2017

Note: For FY 2015 Quarter 1, the national clearance time target was 20:00; for FY 2015 Quarter 2 through FY 2016 Quarter 2, the national 

clearance time target was 12:00. The Postal Service states that the FY 2015 Quarter 1 results are artificially low because these results were 

recast using the 12:00 hours clearance time. For FY 2016 Quarter 3 through FY 2017 Quarter 4, the national clearance time target was 15:00. 

24-Hour Clock Results File FY 2015-FY 2016; see also Responses to CHIR No. 11, question 1.f.

Source: 24-Hour Clock Results File FY 2017; 24-Hour Clock Results File FY 2015-FY 2016. FY 2015-FY 2017 United States Postal Service Quarterly 

Service Performance Reports, First-Class Mail Single-Piece Letters/Postcards Scores Reports are available at 

http://www.prc.gov/documents/quarterly-performance.

There is no evident link between the MMP clearance results and quarterly national service 

performance results for FY 2015 Quarter 1 through FY 2016 Quarter 2. The MMP clearance 
Docket No. ACR2017 - 142 -

results provide a useful snapshot of the Postal Service’s ability to process pieces that 

originate in one service area and destinate in a different service area.

(6) Conclusion

For the 24-Hour Clock metrics highlighted by the Postal Service, the Commission 

summarizes its key observations relating to FY 2015 through FY 2017:

 The Postal Service’s focus on ensuring a continuous flow of pieces through outgoing 

primary sortations by the national clearance time target reduces delays in 

subsequent processing actions (particularly outgoing secondary).

 The Postal Service’s focus on ensuring timely and accurate assignment to the air 

transit network by 02:30 hours improved service performance results for 3-5-Day 

First-Class Mail Single-Piece Letters/Postcards.

 The on-time trip results provide a useful snapshot of the Postal Service’s ability to 

handoff pieces (particularly those with an Overnight or 2-Day service standard) to 

its ground transportation network. 

 The MMP clearance results provide a useful snapshot of the Postal Service’s ability 

to process pieces that originate in one service area and destinate in a different 

service area.

e. Conclusion

The Commission finds that monitoring both groups of indicators provide increased 

transparency into the mail flow.

For the purposes of assessing and evaluating the service performance of specific Market 

Dominant products, the Commission finds that the different metrics add different types of 

value, largely due to their different measurement objectives. The failure indicators from the 

five processing phases are particularly useful in isolating the root cause(s) of delays 

specific to the First-Class Mail Single-Piece Letters/Postcards product (and specific to the 

3-5-Day service standard component). The Miss by LPO data and the transit data show the 

closest links with national service performances results for 3-5-Day First-Class Mail SinglePiece Letters/Postcards in FY 2015 through FY 2017.

The 24-Hour Clock is a valuable tool for responding to local level operational issues and for 

qualitative analysis of the network. However, the quantitative analysis at the national level 

is more limited because the 24-Hour Clock does not disaggregate data by product (or 

service standard component) and some measurements are adjusted to respond to 

operational realities.

The Commission’s quantitative and qualitative analysis show that the Postal Service has 

made progress in improving service performance since the dramatic and rapid decline 

observed in FY 2015. To promote continued improvement, the Commission will continue to 

monitor these data. Based on this analysis and the Commission’s findings concerning 

service performance in FY 2017, the Commission directs the Postal Service to provide 

updated data in FY 2018. The exact requirements of this directive are discussed in section 

V.A.4.a., infra.
Docket No. ACR2017 - 143 -

4. FY 2017 Service Performance Results by Class

a. First-Class Mail

(1) FY 2016 Directives

Determining that the Postal Service did not meet its service performance targets for 

First-Class Mail in FY 2016, the Commission directed the Postal Service to improve results 

for all First-Class Mail products in FY 2017. FY 2016 ACD at 133. The Commission also 

directed the Postal Service to provide a detailed product-specific plan for any First-Class 

Mail product for which service performance results did not improve in FY 2017. Id. Finding 

First-Class Mail Single-Piece Letters/Postcards to be out of compliance for the second year 

in a row, the Commission directed the Postal Service to provide trackable data related to 

the different processing phases of First-Class Mail Single-Piece Letters/Postcards. Id. That 

directive, the Postal Service’s response, and the Commission’s analysis are discussed in 

section V.A.3., supra.

The Commission also found that “service performance results for First-Class Mail Flats 

continue[d] to fall substantially short of annual performance targets.” FY 2016 ACD at 135. 

To address this product’s service performance results as well as the systemic and longstanding cost and service issues related to flats processing, the Commission initiated a 

strategic rulemaking to develop proposed reporting requirements related to flats 

operational cost and service issues.190 That proceeding remains pending.

(2) FY 2017 Results

For the third time since the Postal Service began reporting service performance of all 

Market Dominant mail products, no First-Class Mail product met or exceeded its service 

performance target. See Table V-2, supra. Table V-19 shows service performance results 

compared to the annual on-time percentage targets for all First-Class Mail products from 

FY 2012 to FY 2017.

 

190 Docket No. RM2018-1, Advance Notice of Proposed Rulemaking to Develop Data Enhancements and Reporting Requirements for Flats 

Issues, October 4, 2017 (Order No. 4142).
Docket No. ACR2017 - 144 -

Table V-19

First-Class Mail 

Service Performance Results, FY 2012–FY 2017, by Percentage

FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Target OnTime Target OnTime Target OnTime Target OnTime Target OnTime Target OnTime

Single-Piece 

Letters/Postcards

Overnight 96.65 97.0 96.70 96.8 96.80 96.7 96.80 95.8 N/A N/A N/A N/A

2-Day 94.15 95.6 95.10 96.0 96.50 95.7 96.50 94.0 96.50 95.5 96.50 95.5

3-5-Day 92.85 93.2 95.00 92.5 95.25 88.6 95.25 77.3 95.25 84.8 95.25 86.6

Presorted 

Letters/Postcards

Overnight 96.65 96.9 96.70 97.3 96.80 97.2 96.80 96.0 96.80 96.3 96.80 96.6

2-Day 94.15 95.9 95.10 97.2 96.50 96.6 96.50 93.8 96.50 95.2 96.50 95.8

3-5-Day 92.85 95.4 95.00 95.4 95.25 92.5 95.25 88.0 95.25 91.9 95.25 93.4

Flats

Overnight 96.65 89.8 96.70 86.6 96.80 84.9 96.80 83.2 96.80 84.5 96.80 84.6

2-Day 94.15 85.0 95.10 84.4 96.50 82.5 96.50 79.8 96.50 80.6 96.50 82.0

3-5-Day 92.85 80.0 95.00 77.6 95.25 72.6 95.25 65.3 95.25 70.9 95.25 73.9

Parcels

Overnight 96.65 89.8 96.70 89.8 96.80 88.4 96.80 84.8 96.80 N/A N/A N/A

2-Day 94.15 85.8 95.10 89.1 96.50 86.8 96.50 84.2 96.50 88.7 96.50 92.4

3-5-Day 92.85 88.4 95.00 88.8 95.25 83.8 95.25 73.7 95.25 80.3 95.25 85.8

Outbound SinglePiece 

International

Overnight 95.0 94.3 93.0 90.4 N/A N/A

2-Day 92.9 92.7 93.2 92.5 90.6 90.8

3-5-Day 90.7 87.5 85.7 82.5 84.5 83.7

Combined 94.00 91.5 94.00 88.9 94.00 87.8 94.00 85.3 94.00 86.2 94.00 85.9

Inbound Letter 

Post

Overnight 94.1 92.3 91.8 88.6 N/A N/A

2-Day 91.5 90.7 89.4 83.7 88.1 90.5

3-5-Day 89.2 86.5 82.9 71.3 77.7 82.7

Combined 94.00 90.5 94.00 88.0 94.00 85.2 94.00 75.6 94.00 81.4 94.00 85.5

Note: Numbers in red indicate service performance results that did not meet or exceed the annual service performance target.

Source: FY 2017 Service Performance Report at 4; Docket No. ACR2016, Library Reference USPS–FY16–29, December 29, 2016, file “FY16-29 Service 

Performance Report.pdf,” at 4 (FY 2016 Service Performance Report); Docket No. ACR2015, Library Reference USPS–FY15–29, December 29, 2015, file 

“Service Performance ACR FY15.pdf,” at 4 (FY 2015 Service Performance Report); Docket No. ACR2014, Library Reference USPS–FY14–29, December 29, 

2014, file “Service Performance ACR FY14.pdf,” at 4 (FY 2014 Service Performance Report); Docket No. ACR2013, Library Reference USPS–FY13–29,

December 27, 2013, file “Service Performance ACR FY13.pdf,” at 4 (FY 2013 Service Performance Report); Docket No. ACR2012, Library Reference USPS–

FY12–29, December 28, 2012, file “Service Performance ACR FY12.pdf,” at 4 (FY 2012 Service Performance Report).
Docket No. ACR2017 - 145 -

(3) Postal Service Report

The Postal Service reports on the decline observed in service performance results for FirstClass Mail Single-Piece Letters/Postcards (2-Day) and Outbound Single-Piece International 

(3-5-Day) from FY 2016 to FY 2017.

The Postal Service notes that FY 2017 results for First-Class Mail Single-Piece 

Letters/Postcards (2-Day) decreased less than 0.02 percent from the level reported in FY 

2016. FY 2017 ACR at 50 n.43. The Postal Service reports that it will continue “[l]everaging 

available data and enhanced technology” to “identify and correct deficiencies at the local 

levels.” FY 2017 Service Performance Report at 8. The Postal Service also reports that it 

uses Network Operation Control Centers at each administrative Area office and the national 

headquarters “to track processing and transportation across the nation in near-real time.” 

Id. at 8-9.

The Postal Service notes that FY 2017 results for First-Class Mail Outbound Single-Piece 

International (3-5-Day) declined from the level reported in FY 2016. FY 2017 ACR at 50 

n.43. The Postal Service states that this drove FY 2017 results for First-Class Mail Outbound 

Single-Piece International (Combined) downward as well. Id. With respect to the declining 

results observed for First-Class Mail Outbound Single-Piece International (3-5-Day and 

Combined), the Postal Service reports on five actions that it is taking to improve service 

performance: using leading indicators, such as volumes after clearance time; driving 

operating plans; employing further communication among the workforce on International 

Outbound processing; using Informed Visibility (IV) tools to help expose pinch points and 

improve cycle time; and ensuring dispatch discipline, including sweeping all available 

International mail. FY 2017 Service Performance Report at 9. The Postal Service identifies 

late clearance of outgoing mail processing as an opportunity to improve performance. 

Responses to CHIR No. 2, question 9.

(4) Comments

NTU characterizes the Postal Service’s record for meeting its on-time service performance 

target for First-Class Mail Single-Piece Letters/Postcards, its highest volume product, as 

“disappointing.” NTU Comments at 1. Similarly, FoF remarks that the Postal Service has 

failed to meet its on-time service performance target for First-Class Mail Single-Piece 

Letters/Postcards, its highest volume product, three years in a row. Frontiers of Freedom 

Comments at 1. Referring to this as “an undeniable trend,” FoF observes that this “reflects a 

second-rate image of the agency.” Id. FoF further perceives the Postal Service leadership’s 

lack of a “conscious or effective effort” to fix the shortfalls to be “even more exasperating.” 

Id. ACI also remarks that the Postal Service failed to meet service performance goals for 

First-Class Mail products. ACI Comments at 1.

The Public Representative notes that First-Class Mail service performance improved from 

FY 2016 to FY 2017. PR Comments at 4. She characterizes the improvement observed in the 

3-5-Day reporting categories as “significant.” Id. She states that this “may mean that the 

Postal Service has been successful in addressing related transportation and processing 
Docket No. ACR2017 - 146 -

issues.” Id. She notes that “this is positive news, which demonstrates that the Postal Service 

is recovering from service performance issues.” Id.

Observing that all First-Class Mail products remain below target for the third year in a row, 

the Public Representative suggests that “the Postal Service should continue to develop, and 

the Commission should continue to promote, methods that will improve service.” Id. at 4. 

She further observes that many First-Class Mail products are only a few percentage points 

away from meeting their applicable service performance targets. Id. at 6. She also notes 

that First-Class Mail Flats “continues to be a low performing product” despite improving in 

FY 2017. Id. She agrees with the Postal Service that the “‘efforts and methods’ used by the 

Postal Service are working;” however, she notes that it is unclear which efforts and 

methods are working. Id. (quoting FY 2017 ACR at 53). She suggests that the Commission 

continue to pursue additional information to help discover which efforts and methods are 

working and which are ineffective. Id.

Reiterating that the on-time performance results for First-Class Mail Flats improved two 

years in a row, the Postal Service states that “[b]ecause the [Postal Service’s] efforts ‘are 

working,’ the Public Representative does not demonstrate any need for additional action by 

the Commission in this area.” Postal Service Reply Comments at 17. The Postal Service also 

notes that it “continues to work diligently with the Commission to identify and address the 

root causes of problems with service performance, especially with respect to flats.” Id. at 

17-18. The Postal Service references its provision of information in Docket No. RM2018-

1.191

(5) Commission Analysis

For the third consecutive year, no First-Class Mail product met its percentage on-time 

service performance target. The Postal Service provides information related to its use of 

data to improve service performance. FY 2017 Service Performance Report at 8-10.

Except for First-Class Mail Single-Piece Letters/Postcards (2-Day) and First-Class Mail 

Outbound Single-Piece International (2-Day, 3-5-Day, and Combined), First-Class Mail 

service performance results have improved for two consecutive years. The Postal Service 

was responsive to the FY 2016 ACD directives relating to First-Class Mail.

The Commission finds that the Postal Service did not meet its service performance targets for 

First-Class Mail in FY 2017. The Commission directs the Postal Service to apply its data 

leveraging techniques to improve service performance for all First-Class Mail products in FY 

2018. If the Postal Service does not maintain or improve its service performance results in FY 

2018, the Postal Service shall include a detailed and product-specific plan in its FY 2018 ACR 

for how performance shall be improved.

 

191 Id. at 18 (citing Docket No. RM2018-1, Response of the United States Postal Service to Commission Information Request No. 1, December 4, 

2017 (Docket No. RM2018-1, Responses to CIR No. 1).
Docket No. ACR2017 - 147 -

Although the improvements observed in the FY 2017 First-Class Mail service performance 

results are encouraging, particularly after the improvement reported in FY 2016, the 

Commission remains concerned that the FY 2017 service performance results reported for 

First-Class Mail Single-Piece Letters/Postcards have not returned to the level reported before 

FY 2015 and determines that First-Class Mail Single-Piece Letters/Postcards is not in 

compliance for the third year in a row. The Commission directs the Postal Service to improve 

service performance results for First-Class Mail Single-Piece Letters/Postcards in FY 2018.

To facilitate the monitoring of service performance (particularly for First-Class Mail SinglePiece Letters/Postcards), the Commission also directs the Postal Service to provide trackable 

data that is consistently collected and will continue to add transparency to the different 

processing phases of First-Class Mail Single-Piece Letters/Postcards. The Commission directs 

the Postal Service to provide the following information (as applicable) for FY 2018, Quarter 1, 

Quarter 2, and “mid-year” within 90 days of the issuance of this report.192 The Commission 

directs the Postal Service to include the following information for FY 2018, Quarter 3, Quarter 

4, “second-half” and annualized for the fiscal year, in the FY 2018 ACR.193 Except for items 1a, 

1b, 4a, and 4c, all results should be disaggregated by service standard category (2-Day and 3-

5-Day).

1. The 24-Hour Clock:

a. The national level, area level, and district level performance for each 

national operating plan target (also referred to as the 24-Hour 

Clock national clearance goals) for each quarter and annually for FY 

2018.194

b. The 10 facilities with the most failures in meeting each of the 24-

Hour Clock national clearance goals during FY 2018. For each 

facility identified, please state the number of times that the facility 

failed to meet that national clearance goal during FY 2018, and the 

corresponding number of times that the facility failed to meet that 

national clearance goal during FY 2017.195

2. Collections/First Mile:

a. The national level, area level, and district level percentage of FirstClass Mail Single-Piece Letters/Postcards with collection delays.

196

3. Origin Processing:

 

192 Mid-year refers to the aggregation of the data for Quarters 1 and 2 of FY 2018.

193 Second-half refers to the aggregation of the data for Quarters 3 and 4 of FY 2018. Annualized refers to the aggregation of the data for all four 

quarters of FY 2018.

194 See December 29, 2017 Public File, tab “Q1a.”

195 See Library Reference USPS–FY17–NP30, December 29, 2017, Excel file “Response2 - ACD.FCM.FY17Q3Q4.Q1b.NONPUBLIC.xlsx.”

196 See December 29, 2017 Public File, tab “Q2b;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q2 and 3a.”
Docket No. ACR2017 - 148 -

a. The national level, area level, and district level percentage of FirstClass Mail Single-Piece Letters/Postcards with origin processing 

delays.197

b. The national level, area level, and district level percentage of FirstClass Mail Single-Piece Letters/Postcards that are classified as 

origin processing failures (root cause at origin).198

4. Transit:

a. The air carrier capacity requested, air carrier capacity received, and 

air capacity gap calculated using daily cubic feet volume.199

b. The national level, area level, and district level percentage of FirstClass Mail Single-Piece Letters/Postcards with AADC/ADC 

processing delays, presented in three separate tables specific to air 

transportation, ground transportation, and both.200

c. The national level, area level, and district level of CLTs (any HCR 

that is late more than 4 hours).

201

5. Destination Processing:

a. The national level, area level, and district level of TTMS aggregate 

estimates of First-Class Mail Single-Piece Letters/Postcards that 

have already missed the service standard by the LPO within the 

destination processing phase.202

b. The national level, area level, and district level percentage of FirstClass Mail Single-Piece Letters/Postcards that are classified as 

destination processing failures (root cause at destination).203

6. Delivery/Last Mile:

a. The national level, area level, and district level of TTMS aggregate 

estimates of First-Class Mail Single-Piece Letters/Postcards with 

Delivery/Last Mile failures reported.

204

 

197 See December 29, 2017 Public File, tabs “Q3b” and “Q3c;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3b.”

198 See December 29, 2017 Public File, tab “Q4f;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3d.”

199 See December 29, 2017 Public File, tab “Q4a.”

200 See December 29, 2017 Public File, tabs “Q4b,” “Q4b_air,” “Q4b_surface,” “Q4c,” “Q4c_air,” and “Q4c_surface;” Docket No. ACR2016, 

December 28, 2017 Public File, tabs “Q3c,” “Q3c_air,” and “Q3c_surface.”

201 See December 29, 2017 Public File, tab “Q4e.”

202 See id., tab “Q5b;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3e.”

203 See Responses to CHIR No. 11, question 6.

204 See December 29, 2017 Public File, tab “Q6a;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3f.”
Docket No. ACR2017 - 149 -

b. The national level, area level, and district level volume and 

percentage of First-Class Mail Single-Piece Letters/Postcards subject 

to the 2-Day or the 3-5-Day service standards.205

The Commission expects that the Postal Service will provide this data and information 

consistent with the methodology used in Docket Nos. ACR2015, ACR2016, and ACR2017 and 

use an Excel spreadsheet format, if practicable. If the Postal Service cannot provide responsive 

information at the requested level of granularity, then responsive information should be 

provided at the most practicable level of granularity, along with a narrative identifying and 

explaining the level of granularity provided in the response. The Postal Service is encouraged 

to file a motion for clarification under 39 C.F.R. § 3001.21(a) in Docket No. ACR2017 should 

clarification be necessary.

Furthermore, service performance results for First-Class Mail Flats continue to fall 

substantially short of annual performance targets. Pending Docket No. RM2018-1 is 

considering the development of reporting requirements related to flats operational cost and 

service issues.

b. USPS Marketing Mail

(1) FY 2016 Directives

In the FY 2016 ACD, the Commission directed the Postal Service to apply its data leveraging 

techniques to improve service performance for the USPS Marketing Mail products that 

failed to meet the applicable annual service performance targets. FY 2016 ACD at 140.

The Commission expressed concern with the declining results for USPS Marketing Mail 

Every Door Direct Mail—Retail observed in FY 2016. Id. The Commission directed the 

Postal Service to improve results for this product in FY 2017, and, if results failed to 

improve, the Commission directed the Postal Service to provide a detailed product-specific 

improvement plan. Id.

Finding that “[USPS Marketing] Mail Carrier Route and [USPS Marketing Mail] Flats 

continued to fall substantially short of intended annual performance targets,” the 

Commission took separate action with respect to these and other flat-shaped mail 

products. Id. To address these products’ service performance results as well as the systemic 

and long-standing cost and service issues related to flats processing, the Commission 

initiated a strategic rulemaking to develop proposed reporting requirements related to 

flats operational cost and service issues. Order No. 4142. That proceeding remains pending.

(2) FY 2017 Results

FY 2017 annual service performance results for USPS Marketing Mail Letters, Carrier 

Route, Parcels, and High Density and Saturation Letters exceeded the performance targets 

set by the Postal Service. Three of the seven USPS Marketing Mail products (High Density 

 

205 See December 29, 2017 Public File, tab “Q6b.”
Docket No. ACR2017 - 150 -

and Saturation Flats/Parcels, Flats, and Every Door Direct Mail—Retail) did not meet their 

service performance targets.

Table V-20 shows service performance results compared to the annual on-time percentage 

targets for all USPS Marketing Mail products from FY 2012 to FY 2017.

Table V-20

USPS Marketing Mail

Service Performance Results, FY 2012–FY 2017, by Percentage

FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Target OnTime Target OnTime Target OnTime Target OnTime Target OnTime Target OnTime

High Density 

and Saturation 

Letters

90.0 87.2 90.0 90.8 91.0 92.3 91.0 91.5 91.0 94.9 91.0 95.5

High Density 

and Saturation 

Flats/Parcels

90.0 90.8 90.0 87.0 91.0 87.2 91.0 87.0 91.0 90.0 91.0 90.0

Carrier Route 90.0 70.6 90.0 79.7 91.0 81.4 91.0 82.0 91.0 83.9 91.0 91.4

Letters 90.0 80.7 90.0 85.9 91.0 87.1 91.0 85.8 91.0 90.1 91.0 91.8

Flats 90.0 59.9 90.0 76.9 91.0 76.2 91.0 73.8 91.0 81.4 91.0 80.4

Parcels 90.0 N/A 90.0 98.7 91.0 N/A 91.0 98.1 91.0 98.3 91.0 98.2

EDDM—Retail N/A N/A N/A N/A N/A N/A 91.0 78.5 91.0 75.2 91.0 75.4

Note: Numbers in red indicate service performance results that did not meet or exceed the annual service performance target.

Source: FY 2017 Service Performance Report at 12; FY 2016 Service Performance Report at 12; FY 2015 Service Performance Report at 11; FY 2014 Service 

Performance Report at 11; FY 2013 Service Performance Report at 10; FY 2012 Service Performance Report at 10.

(3) Postal Service Report

The Postal Service reports on its efforts to improve service performance for USPS 

Marketing Mail. The Postal Service discusses its focus on advancing processing of USPS 

Marketing Mail products, with weekly messaging and visualizations. FY 2017 Service 

Performance Report at 15. The Postal Service also explains that it plans to continue to focus 

on improving service performance for USPS Marketing Mail Flats by “reducing the WIP 

cycle time through targeting decreases in the time between bundle and next handling 

processing . . . .”206 The Postal Service reports that WIP cycle time for USPS Marketing Mail 

Flats decreased from FY 2016 (54 median hours) to FY 2017 (52 median hours), bringing 

WIP cycle time back to the level reported in FY 2015. FY 2017 ACR at 28.

(4) Comments

FoF and NTU state that the Postal Service has failed to meet its on-time service 

performance target for USPS Marketing Mail Letters five years in a row. Frontiers of 

 

206 Id. “The Work in Process (WIP) cycle time measures the time between a mailpiece’s arrival at the plant and bundle-to-piece distribution.” FY 

2017 ACR at 28.
Docket No. ACR2017 - 151 -

Freedom Comments at 1; NTU Comments at 1. ACI also remarks on the failure to meet 

service performance goals for USPS Marketing Mail products. ACI Comments at 1.

With respect to the FY 2017 service performance results for USPS Marketing Mail, “[t]he 

Public Representative is encouraged by the Postal Service’s progress.” PR Comments at 8. 

She notes that of the seven USPS Marketing Mail products, in FY 2017 four products met 

their service performance targets and one product (USPS Marketing Mail High Density and 

Saturation Flats/Parcels) remained only 1 percentage point away from its target. Id. She 

observes that this marks improvement from FY 2014 (in which only one USPS Marketing 

Mail product met its target) and FYs 2015 and 2016 (in which only two USPS Marketing 

Mail products met their targets). Id. at 7-8. She also describes how USPS Marketing Mail 

Flats followed its FY 2016 improvement (reporting a 7.6 increase in on-time performance 

from FY 2015 to FY 2016) with a decrease in FY 2017 (reporting a 1.0 decrease in on-time 

performance from FY 2016 to FY 2017). Id. at 7.

The Postal Service echoes the Public Representative’s comments regarding the 

improvement observed in the on-time performance results for USPS Marketing Mail. Postal 

Service Reply Comments at 15. The Postal Service also notes that it “continues to work 

diligently with the Commission to identify and address the root causes of problems with 

service performance, especially with respect to flats.” Id. at 17-18. The Postal Service 

references its provision of information in Docket No. RM2018-1.207

(5) Commission Analysis

In prior fiscal years, no more than two USPS Marketing Mail products met service 

performance targets. After five consecutive years of failure to meet the service 

performance target, FY 2017 service performance results for USPS Marketing Mail Letters 

exceeded the target. The FY 2017 service performance results for USPS Marketing Mail 

Letters are consistent with the Commission’s expectation that the Postal Service would 

continue to build on the improvement observed in FY 2016. Similarly, after five consecutive 

years of failure to meet the service performance target, FY 2017 service performance 

results for USPS Marketing Mail Carrier Route also exceeded the target. Therefore, in FY 

2017, the majority of (four of the seven) USPS Marketing Mail products met service 

performance targets.

Three of the seven USPS Marketing Mail products (Flats, High Density and Saturation 

Flats/Parcels, and Every Door Direct Mail—Retail) did not meet the percentage on-time 

service performance target in FY 2017.

For USPS Marketing Mail Flats, FY 2017 marks the sixth consecutive year that the Postal 

Service failed to meet the applicable target. Furthermore, FY 2017 results for USPS 

Marketing Mail Flats declined from the level reported in FY 2016.

 

207 Id. at 18 (citing Docket No. RM2018-1, Responses to CIR No. 1).
Docket No. ACR2017 - 152 -

FY 2017 results for USPS Marketing Mail High Density and Saturation Flats/Parcels remain 

near the 91 percent on-time delivery target.

FY 2017 results for Every Door Direct Mail—Retail increased from the level observed in FY 

2016 but remain well below target. Results for this product have been reported for three 

years only. The target for this product has not been met in any of those three years.

Consistent with the Commission’s observations in the FY 2016 ACD, service performance 

results for USPS Marketing Mail products in the 6-10-Day service standard category, 

measured End-to-End, remain relatively low compared to the results for all Destination 

Entry Mail and other End-to-End service standards. See FY 2016 ACD at 139; FY 2015 ACD 

at 140-41. In FY 2017, End-to-End USPS Marketing Mail with a 6-10-Day service standard 

represented 5.8 percent of total measured USPS Marketing Mail. Responses to CHIR No. 2, 

question 10. Except for 6-10-Day USPS Marketing Mail Letters, FY 2017 service 

performance results for USPS Marketing Mail products in the 6-10-Day service standard

category have increased for two consecutive years. However, Table V-21 shows that results 

for each product’s 6-10-Day service standard category remain well below the FY 2017 

results at the product level.

Table V-21

Service Performance Results for USPS Marketing Mail Products with a 6-10-Day Service 

Standard, FY 2012–FY 2017, by Percentage

Results for the 6-10-Day Service Standard 

Category

Results at the product level 

(includes all Service Standard 

Categories)

FY 

2012

FY 

2013

FY 

2014

FY 

2015

FY 

2016

FY 

2017

FY

2017

High Density and 

Saturation Letters 82.3 57.9 56.5 57.4 61.5 67.2 95.5

High Density and 

Saturation Flats/Parcels N/A N/A 72.7 54.4 56.9 69.2 90.0

Carrier Route 74.3 64.5 60.2 60.6 67.0 73.5 91.4

Letters 55.7 59.8 56.7 48.6 55.4 53.3 91.8

Flats 59.8 53.1 52.9 45.1 50.3 53.6 80.4

Note: Numbers in red indicate service performance results reported for the 6-10-Day service standard category that did not meet or exceed the 

annual service performance target for the product. In FY 2012 and FY 2013, the target for all USPS Marketing Mail products was 90.0 percent. In 

FY 2014 through FY 2017, the target for all USPS Marketing Mail products was 91.0 percent.

Source: See United States Postal Service Quarterly Service Performance Reports, FY 2012–FY 2017, Quarter 4, USPS Marketing Mail–High 

Density and Saturation Letters Scores Report, USPS Marketing Mail–High Density and Saturation Flats/Parcels Scores Report, USPS Marketing 

Mail–Carrier Route Score Report, USPS Marketing Mail–Flats Scores Report, USPS Marketing Mail–Letters Scores Report (available at: 

http://www.prc.gov/documents/quarterly-performance).

The Commission views CLTs occurring during the transit phase of processing as closely 

linked to service performance for USPS Marketing Mail products with a 6-10-Day service 

standard. All seven Postal Service areas report fewer CLTs in FY 2017 than in FY 2015. See 

V.A.3.c.4.ii., supra. These findings are consistent with service performance results 
Docket No. ACR2017 - 153 -

improving from FY 2015 to FY 2017 for USPS Marketing Mail products with a 6-10-Day 

service standard. The Commission encourages the Postal Service to continue to improve 

service performance for USPS Marketing Mail with a 6-10-Day service standard by 

decreasing the number of CLTs.

The Commission finds that the Postal Service has met its service performance targets for USPS 

Marketing Mail Letters, USPS Marketing Mail Carrier Route, USPS Marketing Mail Parcels, 

and USPS Marketing Mail High Density and Saturation Letters. The Commission expects that 

service performance results for these products will continue to meet or exceed the FY 2018 ontime performance target. If the service performance results for these products do not continue 

to meet or exceed the target in FY 2018, the Postal Service shall include a detailed and 

product-specific plan in its FY 2018 ACR for how service performance will be improved.

The Commission directs the Postal Service to apply its data leveraging techniques to improve 

service performance for the USPS Marketing Mail products that failed to meet the applicable 

annual service performance targets.

The Commission expects improvement in service performance results for USPS Marketing Mail 

Every Door Direct Mail—Retail and USPS Marketing Mail High Density and Saturation 

Flats/Parcels. If the Postal Service does not maintain or improve its service performance 

results for these products in FY 2018, the Postal Service shall include a detailed and productspecific plan in its FY 2018 ACR for how service performance will be improved.

FY 2017 USPS Marketing Mail Flats service performance results declined from the level 

reported in FY 2016. Moreover, USPS Marketing Mail Flats service performance results 

continued to fall substantially short of intended annual performance targets. Pending Docket 

No. RM2018-1 is considering the development of reporting requirements related to flats 

operational cost and service issues.

c. Periodicals

(1) FY 2016 Directives

Finding that FY 2016 “was the fifth consecutive year that Periodicals did not meet its 

service performance target,” the Commission directed the Postal Service to apply its data 

leveraging techniques to improve service performance for Periodicals. FY 2016 ACD at 142. 

To address these products’ service performance results as well as the systemic and longstanding cost and service issues related to flats processing, the Commission initiated a 

strategic rulemaking to develop proposed reporting requirements related to flats 

operational cost and service issues. Order No. 4142. That proceeding remains pending.

(2) FY 2017 Results

FY 2017 annual service performance results for Periodicals increased from FY 2016 levels. 

Table V-22 shows service performance results compared to the annual target of 91.0 

percent on-time for both Periodicals products from FY 2012 to FY 2017.
Docket No. ACR2017 - 154 -

Table V-22

Periodicals

Service Performance Results, FY 2012–FY 2017, by Percentage

FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 Target

InCounty 68.7 82.0 80.9 77.7 80.1 85.6 91.0

Outside 

County 68.7 82.1 80.8 77.6 79.7 85.3 91.0

Note: Numbers in red indicate service performance results that did not meet or exceed the annual service performance target.

Source: FY 2017 Service Performance Report at 16; FY 2016 Service Performance Report at 18; FY 2015 Service Performance Report at 

15; FY 2014 Service Performance Report at 15; FY 2013 Service Performance Report at 13; FY 2012 Service Performance Report at 14.

(3) Postal Service Report

The Postal Service reports on its efforts to improve service performance for Periodicals. 

The Postal Service reports its continued focus on reducing WIP cycle time—the time 

between handling and processing—for Periodicals in FY 2015, FY 2016, and FY 2017.208

The Postal Service also reports its continued efforts to work with the mailing industry to 

improve the preparation and entry of Periodicals.209 The Postal Service reports that the FY 

2017 WIP cycle time for Periodicals remained the same as the level observed in FY 2016. 

FY 2017 ACR at 28.

(4) Comments

Although noting that both Periodicals products failed to meet the service performance 

targets in FY 2017, the Public Representative describes the improvements reported in FY 

2017 as “very positive.” PR Comments at 8. She notes that if this level of improvement 

continues into FY 2018, both Periodicals products will come close to meeting the applicable 

target in FY 2018. Id. at 8-9.

The Postal Service echoes the Public Representative’s comments regarding the 

improvement observed in the on-time performance results for Periodicals. Postal Service 

Reply Comments at 15. The Postal Service also notes that it “continues to work diligently 

with the Commission to identify and address the root causes of problems with service 

performance, especially with respect to flats.” Id. at 17-18. The Postal Service references its 

provision of information in Docket No. RM2018-1.210

(5) Commission Analysis

Neither Periodicals product met service performance targets in FY 2017. Although 

remaining below target, FY 2017 service performance results for Periodicals show 

 

208 See FY 2015 Service Performance Report at 17; FY 2016 Service Performance Report at 21; FY 2017 Service Performance Report at 18.

209 See, supra, n.208 .

210 Id. at 18 (citing Docket No. RM2018-1, Responses to CIR No. 1).
Docket No. ACR2017 - 155 -

improvement for two years in a row. The Postal Service should continue to apply its data 

leveraging techniques to improve service performance for Periodicals.

This was the fifth consecutive year that Periodicals did not meet its service performance 

targets. In-County and Outside County Periodicals service performance results continued to 

fall substantially short of performance targets. The Commission directs the Postal Service to 

apply its data leveraging techniques to improve Periodicals service performance. Pending 

Docket No. RM2018-1 is considering the development of reporting requirements related to 

flats operational cost and service issues.

d. Package Services

(1) FY 2016 Directives

The Commission found that FY 2016 was the fifth consecutive year that the service 

performance results for Bound Printed Matter (BPM) Flats “were substantially below other 

Package Services products and the applicable percentage on-time service performance 

target.” FY 2016 ACD at 144. The Commission directed the Postal Service to apply its data 

leveraging techniques to improve service performance for this product. Id. To address this 

product’s service performance results as well as the systemic and long-standing cost and 

service issues related to flats processing, the Commission initiated a strategic rulemaking 

to develop proposed reporting requirements related to flats operational cost and service 

issues. Order No. 4142. That proceeding remains pending.

(2) FY 2017 Results

FY 2017 annual service performance results for both BPM Parcels and Media Mail/Library 

Mail exceeded annual targets for the sixth consecutive year. Service performance results 

for BPM Flats remain below target.

Table V-23 shows service performance results compared to the annual target of 90.0 

percent on-time for all Package Services products from FY 2012 to FY 2017.
Docket No. ACR2017 - 156 -

Table V-23

Package Services

Service Performance Results, FY 2012–FY 2017, by Percentage

FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 Target

Bound Printed 

Matter Flats 54.3 62.6 60.2 45.2 53.6 56.7 90.0

Bound Printed 

Matter Parcels 94.4 98.4 99.3 99.4 99.2 99.1 90.0

Media 

Mail/Library 

Mail

92.7 93.3 91.7 91.2 92.2 91.0 90.0

Note: Numbers in red indicate service performance results that did not meet or exceed the annual service performance target.

The Commission approved a semi-permanent exception for service measurement of Alaska Bypass. Docket No. RM2015-1, Order 

Concerning Semi-Permanent Exception from Periodic Reporting of Service Performance Measurement for Alaska Bypass Service, 

December 23, 2014 (Order No. 2303).

Source: FY 2017 Service Performance Report at 20; FY 2016 Service Performance Report at 22; FY 2015 Service Performance Report at 

18; FY 2014 Service Performance Report at 20; FY 2013 Service Performance Report at 18; FY 2012 Service Performance Report at 19.

(3) Postal Service Report

The Postal Service reports on service performance issues related to BPM Flats and its 

efforts to improve service performance for the product. The Postal Service restates that 

mail characteristics for BPM Flats are “not generally compatible with flat or package 

sorting equipment.”211 The Postal Service also restates that incompatible sorting 

equipment causes additional manual handling and mail not being presented to delivery at 

the finest sort depth.212 In addition, the Postal Service restates that allowing nonautomated and automated BPM Flats to be comingled may result in machinable pieces 

being handled manually.213

The Postal Service does not track the volume or percentage of BPM Flats that are processed 

manually. Responses to CHIR No. 2, question 11. The Postal Service states that manual 

handling of BPM Flats may be affected by piece weight, entry, and presort level. Id. The 

Postal Service summarizes the RPW data relating to those characteristics. Id.

 

211 Compare FY 2017 Service Performance Report at 22 with FY 2016 Service Performance Report at 24-25 and FY 2015 Service Performance 

Report at 20.

212 Compare FY 2017 Service Performance Report at 22 with FY 2016 Service Performance Report at 25 and FY 2015 Service Performance Report 

at 20.

213 Compare FY 2017 Service Performance Report at 22-23 with FY 2016 Service Performance Report at 25 and FY 2015 Service Performance 

Report at 20-21.
Docket No. ACR2017 - 157 -

The Postal Service restates that it will continue to focus on reducing WIP cycle time for 

machine compatible pieces and advancing processing to the day of acceptance.214 The 

Postal Service also will “continue[] to review the entry and make-up requirements” for 

BPM Flats.215

(4) Comments

Although noting the improvement in the level of performance for BPM Flats between FY 

2016 and FY 2017, the Public Representative characterizes the product’s score as 

remaining “far from its target.” PR Comments at 10. Concluding that the Postal Service’s 

efforts to improve this product’s service “is not showing significant results,” she suggests 

that the Commission “recommend a new approach.” Id. She suggests that “the 

Commission...inquire whether or not the Postal Service believes the Bound Printed Matter 

Flats service performance target is realistic.” Id. If the target is unrealistic, she suggests that 

the Postal Service revise the target observing that “[r]ealistic service performance targets 

better inform customers of the actual service that is being provided, and allow customers 

to plan accordingly.” Id. at 10-11.

The Postal Service replies that the on-time service performance results for BPM Flats from 

FY 2015 to FY 2017 reflect a growth rate of over 25 percent. Postal Service Reply 

Comments at 18-19. “[T]he Postal Service concurs that this product is an outlier compared 

to others in that it is not close to its target.” Id. at 19. The Postal Service observes that “it is 

often only in hindsight that one can meaningfully evaluate whether a target was realistic or 

not.” Id. The Postal Service also notes that it “continues to work diligently with the 

Commission to identify and address the root causes of problems with service performance, 

especially with respect to flats.” Id. at 17-18. The Postal Service references its provision of 

information in Docket No. RM2018-1.216

(5) Commission Analysis

Service performance results for BPM Parcels and Media Mail/Library Mail have exceeded 

the applicable service performance targets since FY 2012.

The FY 2017 service performance results for BPM Flats are substantially further from its 

target than any other product. Setting a target for BPM Flats’ service performance results 

that is ambitious and achievable can help to drive performance. However, setting an overly 

ambitious “stretch” target for this unique product, which produces too large of a gap 

between the target and the actual obtainable result, may be counterproductive. Such an 

approach might discourage improvement because regularly missing the target by vast 

 

214 Compare FY 2017 Service Performance Report at 23 with FY 2016 Service Performance Report 9 at 25 and FY 2015 Service Performance 

Report at 21.

215 Compare FY 2017 Service Performance Report at 23 with FY 2016 Service Performance Report at 25 and FY 2015 Service Performance Report 

at 21.

216 Id. at 18 (citing Docket No. RM2018-1, Responses to CIR No. 1).
Docket No. ACR2017 - 158 -

margins becomes routine. The Postal Service should consider the Public Representative’s 

comments regarding realistic targets for this product.

Although service performance results for BPM Flats improved for two years in a row, this 

product’s FY 2017 service performance results remain more than 30 percentage points 

below the on-time service performance target. The Commission acknowledges the unique 

characteristics of BPM Flats; but, the Postal Service’s plan for improving the service 

performance of this product does not appear to include the tracking of data that would 

demonstrate which (if any) of the Postal Service’s multi-year efforts have been successful. 

The Postal Service should apply its data leveraging techniques to improve service 

performance for BPM Flats.

Media Mail/Library Mail and BPM Parcels service performance results continue to exceed the 

Postal Service’s annual service performance targets. BPM Flats service performance results 

were substantially below other Package Services products and the applicable percentage ontime service performance target for the sixth consecutive year. The Commission directs the 

Postal Service to apply its data leveraging techniques to improve BPM Flats service 

performance. Pending Docket No. RM2018-1 is considering the development of reporting 

requirements related to flats operational cost and service issues.

e. Special Services

(1) FY 2016 Directives

Finding that “[t]he Postal Service exceeded service performance results for all Special 

Services products, except for Post Office Box Service, which was near its service 

performance target” in FY 2016, the Commission stated its expectation that service 

performance for Post Office Box Service would improve in FY 2017. FY 2016 ACD at 146. 

The Commission directed the Postal Service to file a detailed plan to improve performance 

in its FY 2017 ACR if FY 2017 results for Post Office Box Service did not meet the target. Id.

(2) FY 2017 Results

Service performance results exceeded targets for each product within the Special Services 

class, with the exception of Post Office Box Service. The Post Office Box Service result was 

88.9 percent, below the 90.0 percent target. Table V-24 shows the service performance 

results compared to the annual target of 90.0 percent on-time for all Special Services 

products from FY 2012 to FY 2017.
Docket No. ACR2017 - 159 -

Table V-24

Special Services

Service Performance Results, FY 2012–FY 2017, by Percentage

FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 Target

Ancillary 

Services 93.4 91.4 92.3 92.1 91.7 91.5 90.0

International 

Ancillary 

Services

99.6 99.3 99.7 99.7 99.7 99.7 90.0

Address List 

Services 83.3 100 33.3 100 - - 90.0

Money Orders 99.2 99.2 98.3 99.3 99.2 99.1 90.0

Post Office Box 

Service 92.6 90.9 90.2 89.7 89.7 88.9 90.0

Stamp 

Fulfillment 

Services

96.7 99.5 98.4 97.1 99.4 99.6 90.0

Note: Numbers in red indicate service performance results that did not meet or exceed the annual service performance target.

There were no orders for Address List Services in FY 2016 and FY 2017. FY 2017 Service Performance Report at 25; FY 2016 Service 

Performance Report at 27. The Commission required the Postal Service to begin reporting on Stamp Fulfillment Services in FY 2012 

Quarter 2. Docket No. RM2011-14, Order Establishing Final Rule Concerning Periodic Reporting of Service Performance 

Measurements for Stamp Fulfillment Services, November 4, 2011 (Order No. 947).

The Commission approved a semi-permanent exception for service measurement of the following Special Services: hard-copy 

Address Correction Service, Applications and Mailing Permits, Business Reply Mail®, Bulk Parcel Return Service, Certificate of 

Mailing, Merchandise Return Service, Parcel Airlift, Restricted Delivery, Shipper-Paid Forwarding, Special Handling, Stamped 

Envelopes, Stamped Cards, Premium Stamped Stationery, Premium Stamped Cards, International Certificate of Mailing, outbound 

International Registered Mail, International Return Receipt, International Restricted Delivery, International Insurance in conjunction 

with Inbound Surface Parcel Post (at UPU Rates), Customs Clearance and Delivery Fee, Caller Service, Change of Address Credit Card 

Authorization, International Reply Coupon Service, International Business Reply Mail, and Money Orders (sales aspect of this service 

only, not inquiries). Docket No. RM2010-11, Order Concerning Postal Service Request for Semi-Permanent Exceptions from Periodic 

Reporting of Service Performance Measurement, September 30, 2010 (Order No. 531); Docket No. RM2010-14, Order Approving 

Semi-Permanent Exception from Periodic Reporting of Service Performance Measurement for Applications and Mailing Permits, 

October 27, 2010 (Order No. 570).

Source: FY 2017 Service Performance Report at 25; FY 2016 Service Performance Report at 27; FY 2015 Service Performance Report 

at 23; FY 2014 Service Performance Report at 25; FY 2013 Service Performance Report at 22; FY 2012 Service Performance Report at 

23.

(3) Postal Service Report

The Postal Service reports six actions that it plans to take to address the declining service 

performance results for Post Office Box Service:

 conducting Lean Six Sigma kaizen events to determine root causes of failures

 establishing standardized methods for workload calculations

 having all sites annually review their Post Office Box times

 creating a product-specific dashboard with key metrics

 ensuring that staffing and scheduling models address the need to meet Post Office 

Box service standards

 ensuring that daily staffing and scheduling tools clearly identify dedicated staff to 

meet Post Office Box service standards
Docket No. ACR2017 - 160 -

FY 2017 Service Performance Report at 27. The planned PO Box Up Service Performance 

dashboard is expected to display facility-specific results for total expected scans, the 

number of scans made on or before the scheduled time, the late count (the number of scans 

made after the scheduled time plus expected scans that were not performed), on time 

percentage, and late percentage. Responses to CHIR No. 2, question 12.

(4) Comments

The Public Representative observes that FY 2017 service performance results for Post 

Office Box Service fell below target and decreased nearly 1 percentage point from FY 2016. 

PR Comments at 12. She appreciates that the Postal Service provided steps to improve 

performance of this product in FY 2018. Id. at 12-13.

(5) Commission Analysis

Service performance results for Ancillary Services, International Ancillary Services, Money 

Orders, and Stamp Fulfillment Services have exceeded the applicable percentage on-time 

service performance targets since FY 2012.

For FY 2017, service performance results for Post Office Box Service remained below target 

and declined from the level reported in FY 2016.

The Postal Service exceeded service performance targets for all reported Special Services 

products, except for Post Office Box Service, which was near its service performance target. 

The Commission expects the service performance results for Post Office Box Service to improve 

in FY 2018. If Post Office Box Service does not achieve its service performance target in FY 

2018, the Postal Service shall include in its FY 2018 ACR an evaluation of the efficacy of the six 

planned actions identified in its FY 2017 ACR and a detailed plan for how this product’s 

results will be improved.

5. Other Issues

Three commenters discuss their general views on service performance. NTU states that “in 

many aspects [s]ervice performance has been on a steady decline for years.” NTU 

Comments at 1. ACI asserts that the Postal Service’s FY 2017 ACR “fails to provide 

consumers with the faith that services will improve anytime soon.” ACI Comments at 1. 

Similarly, FoF states that the Postal Service “needs to transform its ways in order to 

improve its service and regain the trust of the American people.” Frontiers of Freedom 

Comments at 2. FoF further perceives that the Postal Service leadership has not made a 

“conscious or effective effort” to fix the shortfalls. Id. at 1. ACI and FoF express an interest 

in stronger enforcement of delivery performance goals. Id. at 2; ACI Comments at 2.

PostCom generally endorses efforts to increase the transparency of the ACR process, 

particularly with respect to operational performance data and service information and 

describes the continued issuance of CHIRs in this proceeding as “helpful in identifying 

missing and potentially helpful contextual information.” PostCom Comments at 2. PostCom 

suggests, however, that “if a serious issue has been identified, the Commission should open 

a new docket, aggressively pursue an answer, and order any relief it finds appropriate.” Id.
Docket No. ACR2017 - 161 -

Moreover, PostCom also suggests that the open access to raw information collected 

through IV, with appropriate safeguards to protect customer and individual employee 

identities, would benefit all parties. Id. at 3.

The Public Representative suggests that for more problematic products, such as flat-shaped 

mail across classes, the Commission may need to take a more active approach to encourage 

service performance improvement. PR Comments at 13. She observes that “[t]he 

Commission may consider working with the Postal Service throughout each year in an 

effort to bring underperforming products closer to meeting service targets.” Id. She also 

notes that some scores are so far below the applicable target that it seems unlikely those 

products will meet their targets in the next few years, even with steady improvement. Id.

The Postal Service replies that these comments “are premised only upon the Postal Service 

having missed some of its own aggressive service targets.” Postal Service Reply Comments 

at 16. The Postal Service maintains that service performance results continue to improve 

and that the improvement observed in FY 2016 and FY 2017 demonstrates an effective 

effort by Postal Service leadership. Id. The Postal Service replies that the improvement 

observed in service performance results “counsels against radical departures” in the 

approach to service performance. Id. at 17. The Postal Service further states that “the 

Commission should refrain from any approach that imposes unnecessary costs and 

burdens or may otherwise impede the Postal Service’s progress.” Id.

The Commission acknowledges the issues raised by the commenters and values the 

commenters’ participation and perspectives. These views inform the Commission’s work. 

Many of these issues may relate to separate proceedings that are currently pending before 

the Commission. For example, to address flat-shaped mailpieces’ service performance 

results, as well as the systemic and long-standing cost and service issues related to flats 

processing, the Commission initiated a strategic rulemaking to develop proposed reporting 

requirements related to flats operational cost and service issues (Docket No. RM2018-1). 

As another example, the Commission is considering a Postal Service proposal to develop 

new internal service performance measurement systems for several of its Market

Dominant products (Docket No. PI2015-1). 

As discussed in this ACD, the decline in service performance results for First-Class Mail 

Single-Piece Letters/Postcards experienced in FY 2015 remains an area of concern to the 

Commission. Given the partial recovery observed in FY 2016 and FY 2017, continued 

monitoring and oversight through the ACR/ACD process appear to be appropriate at this 

time, consistent with the Commission’s historic practice.217 Individual dockets may be 

initiated as required to consider improvements to the rules or to consider innovative new 

approaches to evaluating service performance. Order No. 465 at 25. Moreover, interested 

 

217 See, e.g., Docket No. RM2009-11, Order Establishing Final Rules Concerning Periodic Reporting of Service Performance Measurements and 

Customer Satisfaction, May 25, 2010, at 25 (Order No. 465) (Generally, the ACR/ACD process is the appropriate time to look at service 

performance, including but not limited to, all aspects of data quality and adequacy, as well as proposals for improvement).
Docket No. ACR2017 - 162 -

parties may request that the Commission initiate a proceeding “to improve the quality, 

accuracy, of completeness of Postal Service data required by the Commission . . . whenever 

it shall appear that . . . the quality of service data has become significantly inaccurate or can 

be significantly improved.” 39 U.S.C. § 3652(e)(2)(B).

B. Customer Access

1. Introduction

The PAEA requires the Postal Service to report “measures of the quality of service afforded 

by the Postal Service in connection with [each Market Dominant] product, including...the 

degree of customer satisfaction with the service provided.”218 39 C.F.R. § 3055.91 requires 

the Postal Service to provide information pertaining to four aspects of customer access: 

post offices (including closings and emergency suspensions), residential and business 

delivery points, collection boxes, and wait time in line. Measuring customer access to postal 

services is important in evaluating universal service and customer satisfaction.

The FY 2017 ACR and Library Reference USPS–FY17–33219 contain customer access 

information responsive to the requirements of Title 39 and the Commission’s regulations. 

The Postal Service provides additional information in responses to CHIRs.220

The Postal Service also reports the numbers of retail facilities and delivery points in its 

Annual Report to Congress. However, as discussed below, these numbers differ from the 

information provided in the ACR and in CHIR responses. These discrepancies impede the 

Commission’s evaluation of customer access and require the issuance of CHIRs to obtain 

the most up-to-date information.

In its FY 2018 filings, the Postal Service must ensure that information provided on retail 

facilities and delivery points is consistent among the FY 2018 Annual Report to Congress, FY 

2018 ACR, and past CHIR responses. If there are any discrepancies, the Postal Service must 

identify them in the FY 2018 ACR.

2. Retail Facilities

For each fiscal year, the Postal Service must provide information on the number of retail 

facilities at the beginning and end of the fiscal year, as well the number of retail facility 

closings during the fiscal year. 39 C.F.R. § 3055.91(a)(1) to (3). This information must be 

disaggregated by type of retail facility and provided at the national and area levels. Id. The 

 

218 39 U.S.C. § 3652(a)(2)(B)(ii); 39 C.F.R. § 3055.90.

219 Library Reference USPS–FY17–33, December 29, 2017.

220 See Responses to CHIR No. 2, questions 13-19; Responses to CHIR No. 7, questions 1 and 2; Responses of the United States Postal Service to 

Questions 1-2 and 4 of Chairman’s Information Request No. 17, February 16, 2018 question 4 (February 16, 2018 Responses to CHIR No. 17); 

Response of the United States Postal Service to Question 3 of Chairman’s Information Request No. 17, February 20, 2018, question 3 (February 

20, 2018 Responses to CHIR No. 17).
Docket No. ACR2017 - 163 -

Postal Service provided this information for FY 2017 in the Annual Report to Congress, 

Library Reference USPS–FY17–33, and CHIR responses.221 However, the number of retail 

facilities differs among these sources.222

CHIR No. 17 asked for the most up-to-date number of retail facilities for FY 2015, FY 2016, 

and FY 2017, which the Postal Service provided. Responses to CHIR No. 17, question 4. This 

information is included in Table V-25 below. Postal-managed retail facilities consist of post 

offices, stations and branches, and carrier annexes. Non-postal-managed retail facilities 

consist of contract postal units, Village Post Offices, and community post offices.

Table V-25

Retail Facilities, FY 2015–FY 2017

Facility Type FY 2015 FY 2016 FY 2017

FY 2017 

Change from 

FY 2016

FY 2017 

Change from 

FY 2015

 Post Offices 26,615 26,611 26,410 -201 -205

Classified Stations & Branches and 

Carrier Annexes 4,991 4,974 4,967 -7 -24

Total Postal-Managed 31,606 31,585 31,377 -208 -229

 Contract Postal Units 2,453 2,391 2,249 -142 -204

 Village Post Offices 848 854 720 -134 -128

 Community Post Offices 512 489 465 -24 -47

Total Non-Postal-Managed 3,813 3,734 3,434 -300 -379

Total Retail Facilities 35,419 35,319 34,811 -508 -608

Source: February 16, 2018 Responses to CHIR No. 17, question 4.

The total number of retail facilities in FY 2017 was 34,811, 508 less than FY 2016. The 

number of retail facilities for all types decreased between FY 2016 and FY 2017. The 

largest decrease between FY 2016 and FY 2017 was in the number of post offices, which 

decreased by 201.

3. Post Office Suspensions

Background. For each fiscal year, the Postal Service must provide information on the 

number of post office suspensions at the beginning and end of the fiscal year, as well as the 

number of post offices suspended during the fiscal year. 39 C.F.R. § 3055.91(a)(4) to (6). 

 

221 FY 2017 Annual Report to Congress at 9; Library Reference USPS–FY17–33, Excel file “Post.Office.FY2017.xls,” tab “Post Offices;” Responses 

to CHIR No. 2, questions 16-18.

222 Compare FY 2017 Annual Report to Congress at 9 with Library Reference USPS–FY17–33, Excel file “Post.Office.FY2017.xls” and Responses to 

CHIR No. 2, questions 16-18.
Docket No. ACR2017 - 164 -

The Postal Service provided this information for FY 2017 in Library Reference 33.223 Table 

V-26 shows post office suspension activity during FY 2017 by facility type. It contains the 

number of suspended post offices at the beginning and end of FY 2017, as well as the 

number of post offices suspended, reopened, and closed during FY 2017.

The number of suspended post offices at the end of FY 2017 is calculated by adding the 

number of post offices suspended during the fiscal year to the number of suspended post 

offices at the beginning of the fiscal year, and then subtracting the number of post offices 

reopened and closed during the fiscal year. Table V-26 shows that the number of 

suspended post offices decreased significantly in FY 2017.

Table V-26

Post Office Suspension Activity during FY 2017

Under Suspension at 

the Start of FY 2017

Suspended 

During FY 2017

Reopened 

During FY 2017

Closed During 

FY 2017

Under Suspension at 

the End of FY 2017

Post Offices 464 63 49 212 266

Stations/Branches 124 6 5 62 63

Carrier Annexes 74 17 12 30 49

Total 662a86 66b304c378

Source: Library Reference USPS–FY17–33, Excel file “Post.Office.FY2017.xlsx,” tab “Suspension Summary.”

a

There were 655 suspended post offices at the beginning of FY 2017, but an additional 7 post office suspensions were entered into the system retroactively. FY 

2017 ACR at 63.

b

The Postal Service reopened 39 post offices that were suspended prior to the start of FY 2017, and 27 post offices that were suspended and re-opened during FY 

2017 for a total of 66 post offices re-opened during FY 2017.

c

This number of 304 differs from that reported in Library Reference USPS–FY17–33, Excel file “Post.Office.FY2017.xls,” tab “Post Offices” due to different 

reporting criteria used by Delivery Operations and the Address Management System office in tracking the disposition of suspended post offices. FY 2017 ACR at 63 

n.51.

There were 662 suspended post offices at the beginning of FY 2017. In Docket No. 

ACR2016, the Postal Service stated that its goal was to resolve 360 suspended post offices 

by the end of the FY 2017.224 It provided a timeline showing the number of suspensions it 

expected to resolve in FY 2017 and FY 2018. Id.

In the FY 2016 ACD, the Commission stated that it expected the Postal Service to 

significantly reduce the number of suspended post offices during FY 2017. FY 2016 ACD at 

151. It directed the Postal Service to provide an update on the number of suspended post 

offices within 40 days after the end of each quarter. Id. It stated that if the Postal Service is 

unable to meet its timeline during FY 2017, the Postal Service must include a detailed 

explanation of why it was unable to do so in the FY 2017 ACR. Id.

 

223 Library Reference USPS–FY17–33, Excel file “Post.Office.FY2017.xls,” tab “Suspension Summary.”

224 Docket No. ACR2016, Responses of the United States Postal Service to Questions 5 and 6 of Chairman’s Information Request No. 16, March 

17, 2017, question 6 (Docket No. ACR2016, Responses to CHIR No. 16).
Docket No. ACR2017 - 165 -

The Postal Service filed quarterly updates of suspended post offices during FY 2017 as the 

Commission directed.225 In the FY 2017 ACR, the Postal Service reports that “as of the end 

of FY 2017, it has made substantial progress on resolving a large number of these 

suspended offices.” FY 2017 ACR at 62-63. In total, the Postal Service resolved 343 

suspended post offices in FY 2017, falling short of its projected number of 360 suspended 

post offices. Id. at 64.

The Postal Service explains that it did not meet the projected goal “due to the significant 

amount of time and resources required to individually review and process each 

[suspended] office, and the difficulty of obtaining data and information on the offices that 

have been suspended for more extended time periods.” Id. at 64-65. However, it asserts 

that it will continue resolving the remaining suspended post offices, either by reopening 

them or conducting discontinuance studies where necessary. Id. at 65. The Postal Service 

provides an updated timeline for resolving the 378 suspended post offices that remained at 

the end of FY 2017:

 FY 2018, Quarter 1: 16

 FY 2018, Quarter 2: 23

 FY 2018, Quarter 3: 60

 FY 2018, Quarter 4: 70

 FY 2019, Quarter 1: 70

 FY 2019, Quarter 2: 70

 FY 2019, Quarter 3: 69226

Comments. The Public Representative comments that the Postal Service showed marked 

improvement regarding the number of suspended offices. PR Comments at 14. She 

observes that in FY 2017, the Postal Service reduced the total number of suspended post 

offices by approximately 43 percent. Id. at 14-15. She states that she finds it encouraging 

that the Postal Service proposed an ambitious timeline for resolving the remaining 

suspended post offices. Id. at 15.

In its reply comments, the Postal Service acknowledges the Public Representative’s 

comments. Postal Service Reply Comments at 19. It states that it will continue to review the 

remaining suspended post offices to determine the proper course of action. Id. at 19-20.

 

225 Docket No. ACR2016, Notice of the United States Postal Service Regarding Filing of Post Office Suspension Information Update, May 10, 

2017; Docket No. ACR2016, Notice of the United States Postal Service Regarding Filing of Post Office Suspension Information Update, August 9, 

2017; Docket No. ACR2016, Notice of the United States Postal Service Regarding Filing of Post Office Suspension Information Update, 

November 8, 2017.

226 Id.
Docket No. ACR2017 - 166 -

Commission analysis. The Postal Service fell short of its goal of resolving 360 suspended 

post offices in FY 2017. Nonetheless, the Postal Service reduced the number of suspended 

post offices from 662 to 378 in FY 2017.

For these reasons, the Commission finds that the Postal Service made significant progress in 

reducing the number of suspended post offices during FY 2017. The Commission also finds 

that the Postal Service complied with the Commission’s directives in the FY 2016 ACD to 

significantly reduce the number of suspended post offices, file quarterly updates on suspended 

post offices, and explain why the Postal Service was unable to meet the FY 2017 timeline for 

resolving suspended post offices. See FY 2016 ACD at 151. The Commission appreciates that 

the Postal Service filed quarterly suspension updates on time and also proposed a timeline for 

resolving the remaining suspended post offices in FY 2018 and FY 2019.

The initial timeline provided in the FY 2016 ACR showed the number of suspensions the 

Postal Service expected to resolve in each quarter of FY 2018.227 The initial timeline 

indicated that the Postal Service would resolve all remaining suspended post offices by the 

end of FY 2018. In the FY 2017 ACR, the Postal Service provides an updated timeline 

revising the number of suspensions the Postal Service expects to resolve during each 

quarter of FY 2018. See FY 2017 ACR at 65. The Commission observes that the updated 

timeline sets far lower quarterly goals for FY 2018 compared to the initial timeline 

provided in the FY 2016 ACR. For example, by the end of FY 2018, Quarter 1, the initial 

timeline proposed resolving 60 suspended post offices by the end of FY 2018, Quarter 1, 

but the updated timeline proposes to resolve only 16 suspended post offices.228

The Commission is concerned about the disparity in FY 2018 quarterly goals between the 

initial and revised timelines. The Commission reiterates the importance of resolving the 

remaining suspended post offices as soon as possible. The Commission expects the Postal 

Service to resolve all remaining suspended post offices by the end of FY 2019 as proposed in 

the FY 2017 ACR. See FY 2017 ACR at 65.

The Commission directs the Postal Service to continue to file quarterly updates on the number 

of suspended post offices and actions taken to resolve them. The Postal Service must file this 

information within 40 days after the end of each quarter in FY 2018. If the Postal Service is 

unable to meet the timeline it provided for resolving suspended post offices, the Postal Service 

must explain in detail in the FY 2018 ACR why it was unable to do so.

4. Delivery Points

The Postal Service is required to provide information on the number of residential and 

business delivery points at the beginning and end of the fiscal year. 39 C.F.R. § 3055.91(b). 

The Postal Service provided this information for FY 2017 in Library Reference USPS–FY17–

 

227 Docket No. ACR2016, Responses to CHIR No. 16, question 6.

228 Compare Docket No. ACR2016, Responses to CHIR No. 16, question 6 with FY 2017 ACR at 65.
Docket No. ACR2017 - 167 -

33 and in the FY 2017 Annual Report to Congress.

229 The total number of delivery points in 

FY 2017 was 157,328,676, an increase of 1,234,496 from FY 2016. FY 2017 Annual Report 

to Congress at 9. Table V-27 shows the average number of mailpieces per delivery point 

between FY 2010 and FY 2017.

Table V-27

Average Number of Mailpieces per Delivery Point, FY 2010–FY 2017

FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Total Number of 

Mailpieces (Billions) 170.859 

 

168.297 

 

159.859 

 

158.384 

 

155.375 

 

154.157 

 

154.323 

 

149.491 

Number of 

Mailpieces per 

Delivery Point

1,133 1,111 1,051 1,036 1,010 995 989 950

Source: Commission calculation based on FY 2017 Annual Report to Congress at 7, 9; FY 2016 ACD at 152.

5. Collection Boxes

The Postal Service must provide, at the national and area levels, information on the number 

of collection boxes at the beginning and end of the fiscal year, as well as the number of 

collection boxes added and removed during the fiscal year. 39 C.F.R. § 3055.91(c). The 

Postal Service filed this data for FY 2017 in Library Reference USPS–FY17–33.

230

Nationally, there were 146,252 collection boxes at the end of FY 2017, 6,287 fewer than in 

FY 2016.

Comments. The Public Representative comments that the Postal Service accelerated the 

removal of collection boxes during FY 2017. PR Comments at 15. She observes that the 

number of collection boxes declined by approximately 4.5 percent between FY 2013 and FY 

2016. Id. However, in FY 2017 alone, she notes that the number of collection boxes 

decreased by approximately 4.1 percent, which is an 8.4 percent decrease over a five-year 

period. Id. She expresses concern that the accelerated decrease in collection boxes may 

adversely affect customers’ ability to send mail, but acknowledges that a one-year change 

does not necessarily indicate a trend. Id. at 16. She recommends that the Commission 

carefully monitor the number of collection boxes reported in FY 2018 to determine 

whether the reduction in collection boxes is accelerating and what effect, if any, this 

reduction has on customer access. Id.

In its reply comments, the Postal Service responds that to address this matter, it will 

continue to perform its annual density testing of collection boxes in FY 2018 to ensure that 

 

229 Library Reference USPS–FY17–33, Excel file “DeliveryPointsFY2017.xlsx;” FY 2017 Annual Report to Congress at 9. As previously discussed, the 

number of delivery points differs between these two sources. The Commission cites to data from the Annual Report to Congress.

230 Library Reference USPS–FY17–33, Excel file “CollectionBoxesFY2017.xlsx.”
Docket No. ACR2017 - 168 -

the collection box network is cost-effective while meeting the needs of its customers. Postal 

Service Reply Comments at 20.

Commission analysis. The number of collection boxes decreased significantly between FY 

2016 and FY 2017 compared to past years. However, as the Public Representative 

acknowledges, a significant decrease one year does not indicate a trend. The Commission 

will continue to monitor the number of collection boxes in the FY 2018 ACD.

6. Wait Time in Line

The Postal Service must report the average customer wait time for retail service for the 

beginning of the fiscal year and for the end of each successive fiscal quarter at the national 

and area levels. 39 C.F.R. § 3055.91(d). The Postal Service provided this information for FY 

2017 in Library Reference USPS–FY17–33.

231 The national average wait time in line 

improved from 2 minutes 48 seconds in FY 2016 to 2 minutes 28 seconds in FY 2017. FY 

2017 ACR at 62. Table V-28 shows the quarterly national average customer wait times in 

line for FYs 2014, 2015, 2016, and 2017.

Table V-28

National Average Wait Times in Line

By Quarter, FY 2014–FY 2017

FY 2014 FY 2015 FY 2016 FY 2017

Q1 2:23 2:33 3:12 2:30

Q2 2:35 2:43 3:26 2:39

Q3 2:29 2:40 2:45 2:34

Q4 2:24 2:36 2:17 2:28

Source: Library Reference USPS–FY17–33, Excel file “National 

WaitTimeInLineFY2017.xslx,” tab “Quarter Avg Wait Natl;” FY 2016 ACD at 153.

Comments. The Public Representative comments that wait time in line is an important 

component of customer access and satisfaction. PR Comments at 17. She comments that 

although wait times in line have steadily increased since FY 2014, wait times improved 

during FY 2017. Id. at 16-17. She observes that wait times decreased in each postal area by 

at least 6 seconds and decreased by 20 seconds nationwide during FY 2017. Id. at 17. She 

asserts that wait time in line appears reasonable in light of these comprehensive decreases 

and commends the Postal Service for notably improving this measure. Id. In its reply 

comments, the Postal Service acknowledges the Public Representative’s comments and 

states that it will continue improving on customer wait times in line. Postal Service Reply 

Comments at 19-20.

 

231 Library Reference USPS–FY17–33, Excel file “National WaitTimeInLineFY2017.xlsx.”
Docket No. ACR2017 - 169 -

Commission analysis. The Commission agrees that the Postal Service has improved 

customer wait times in line. In FY 2017, national average wait times in line improved for 

each quarter except for Quarter 4. Specifically, the Postal Service made significant progress 

from FY 2016 in Quarters 1 and 2, when national average wait times reached a high of 3 

minutes 12 seconds and 3 minutes 26 seconds, respectively. The Commission encourages 

the Postal Service to continue reducing wait times in line.

7. Alternative Access

In addition to providing products and services at retail facilities, the Postal Service 

continues to expand customer access through alternate channels. The Commission 

previously recommended that the Postal Service continue to expand alternative retail 

access channels to ensure customers have ready access to essential postal services.232 The 

Postal Service provided information on retail revenue by channel from FY 2014 through FY 

2017 in a CHIR response.233 The major retail revenue channels are:

 Post Offices

 Contract Postal Units

 Click-N-Ship

 Stamp Sales by Partners

 Self-Service Kiosks/Automated Postal Centers

 Stamps by Mail/Phone/Fax

Figure V-14 compares retail revenue by channel from FY 2014 through FY 2017. Figure V14 groups these retail revenue channels into three groups:

 Post Offices (walk-in revenue (WIR) from post offices and contract postal units)

 Internet Access (Click-N-Ship)234

 All Other (including stamp sales by partners, self-service kiosks/automated postal 

centers, and stamps by mail/phone/fax)

 

232 Docket No. N2012-2, Advisory Opinion on Post Office Structure Plan, August 23, 2012, at 37.

233 February 20, 2018 Responses to CHIR No. 17, question 3. In this response, the Postal Service corrected information provided in previous 

CHIRs. See Responses to CHIR No. 2, question 14; Responses to CHIR No. 7, question 2.

234 In FY 2014 and FY 2015, retail revenue from Internet Access included revenue from the PC Postage. Responses to CHIR No. 17, question 3.a. 

In FY 2016, the Postal Service reclassified PC Postage revenue from retail to commercial. FY 2016 ACD at 154. For this reason, Internet Access 

retail revenue does not include PC Postage in FY 2016 and FY 2017.
Docket No. ACR2017 - 170 -

Figure V-14

Retail Revenue by Channel, FY 2014–FY 2017

C. Customer Satisfaction with Market 

Dominant Products

1. Background

The PAEA requires the Postal Service to report measures of the degree of customer 

satisfaction with the service provided for each Market Dominant product. 39 U.S.C. § 

3652(a)(2)(B)(ii); 39 C.F.R. § 3055.90. The Postal Service measures customer satisfaction 

with Market Dominant products and other customer experiences using surveys. The 

Annual Compliance Report must include a copy of each type of customer survey and 

information obtained from each survey. This information must include a description of the 
Docket No. ACR2017 - 171 -

type of customer targeted by the survey, the number of surveys initiated and received, and 

the number of responses received for each question, disaggregated by each possible 

response. 39 C.F.R. § 3055.92. The Postal Service provides this information in Library 

Reference USPS–FY17–38.235

In FY 2017, the Postal Service measured customer satisfaction with Market Dominant 

products by surveying three customer groups: residential, small/medium business, and 

large business customers. FY 2017 ACR at 56. Residential customers completed the 

Delivery (Residential) survey.236 Small/medium business customers (those with fewer than

250 employees at one site) completed the Delivery (Small/Medium Business) survey.237 A 

panel of large business customers (those with more than 250 employees at one site) 

completed the Large Business survey.238

To measure customer satisfaction with Market Dominant products, each survey asked 

customers to rate their level of satisfaction with a Market Dominant class or product, such 

as First-Class Mail and Media Mail.239 Customers rate their level of satisfaction with each 

class or product using a six-point scale ranging from Very Satisfied to Very Dissatisfied. FY 

2017 ACR at 56. Customer satisfaction results are calculated as the percentage of 

customers who selected Very Satisfied or Mostly Satisfied. Id. Customers who indicated that 

they do not use or are unfamiliar with a class or product were excluded from the results. Id.

Table V-29 compares customer satisfaction results for select Market Dominant classes and 

products for FY 2015, FY 2016, and FY 2017.

 

235 Library Reference USPS–FY17–38, December 29, 2017.

236 Library Reference USPS–FY17–38, file “Delivery û USPS FY17 Residential Delivery Survey.docx.”

237 Library Reference USPS–FY17–38, file “Delivery û USPS FY17 Small Business Delivery Survey.docx.”

238 Library Reference USPS–FY17–38, file “Large Business û USPS FY17 LB Panel Survey.docx.”

239 See, e.g., Library Reference USPS–FY17–38, file “Delivery û USPS FY17 Residential Delivery Survey.docx,” question 4. The survey question also 

asks about customer satisfaction with three Competitive products: Priority Mail, Priority Mail Express, and USPS Retail Ground. Id.
Docket No. ACR2017 - 172 -

Table V-29

Comparison of Customer Satisfaction with Market Dominant Products, by Percentage

FY 2015–FY 2017

Market Dominant 

Class or Product

Residential Customers Small/Medium Business 

Customers Large Business Customers

FY 2015 FY 2016 FY 2017 FY 2015 FY 2016 FY 2017

FY 

2015aFY 2016 FY 2017

First-Class Mail 89.22 89.13 89.05 84.77 83.34 84.38 83.27 81.49 77.97

Single-Piece 

International 85.80 84.80 85.18 82.31 81.34 82.69 82.65 74.37 69.98

USPS Marketing Mail 85.11 85.49 83.13 80.82 79.87 80.32 79.49 76.89 71.69

Periodicals 85.50 85.07 85.66 82.42 81.86 82.32 77.10 74.26 70.56

Media Mail 87.17 86.59 86.04 85.18 84.05 85.10 78.61 74.28 69.15

Bound Printed Matter --

b

--

b

--

b

81.70 80.11 82.77 76.54 73.40 67.70

Library Mail 85.10 85.54 87.28 85.43 83.05 85.98 78.66 70.56 66.41

Results are expressed as the percentage of customers who were Very Satisfied or Mostly Satisfied with a class or product.

a—Results reported for Quarter 4 only.

b—Number of responses received did not meet minimum threshold for 90-percent level of confidence

Source: FY 2017 ACR at 58; FY 2016 ACR at 74; FY 2015 ACR at 59.

The Postal Service recognizes that it must take steps to increase customer satisfaction for 

all customers, including large businesses. FY 2017 ACR at 59. It states that it will continue 

to analyze customer satisfaction results to better understand the key drivers behind them. 

Id. Based on this analysis, the Postal Service asserts that it will be better able to design and 

implement appropriate customer satisfaction improvements. Id. It notes that it will 

improve overall customer satisfaction by enhancing retail technology, upgrading software, 

implementing line queue management systems, and modifying employee training to 

become more customer-centric. Id. The Postal Service also describes plans to address mail 

delivery and carrier performance issues. Id. at 59-62.

2. Comments

The Public Representative comments that customer satisfaction with Market Dominant 

products increased slightly for residential and small/medium business customers. PR 

Comments at 19. However, she notes that customer satisfaction for large business 

customers declined for the second year in a row by approximately 4.67 percent on average 

between FY 2016 and FY 2017. Id. 19-21. She asserts that this decline is concerning 

because large business customers are better able to switch to alternate delivery companies 

compared to residential and small/medium business customers. Id. at 19.

Based on her review of the large business customer survey responses, the Public 

Representative makes three recommendations for improving large business customer 

satisfaction with Market Dominant products. First, she recommends that the Postal Service 
Docket No. ACR2017 - 173 -

focus on providing a good value for the price and delivering mail in the same good 

condition as its competitors. Id. at 20. Second, she suggests that the Postal Service focus on 

improving management involvement in addressing customer issues to better understand 

the business of large business customers. Id. Third, she recommends that the Postal Service 

examine ways to improve its ability to deliver USPS Marketing Mail to the correct address 

of large business customers. Id. The Public Representative also reiterates a prior 

recommendation that the Commission monitor large business customer satisfaction closely 

to ensure further declines do not occur. Id. at 20-21.

In its reply comments, the Postal Service acknowledges the Public Representative’s 

concerns and asserts that it will continue to identify ways to improve customer delivery 

experience and management’s response to customer issues. Postal Service Reply 

Comments at 20. The Postal Service states that it does not expect either delivery accuracy 

or mail condition to decline for Market Dominant products, but asserts that it will explore 

these concerns. Id.

3. Commission Analysis

Customer satisfaction with Market Dominant products remained the same overall for 

residential and small/medium business customers between FY 2016 and FY 2017. Results 

ranged between 80 and 89 percentage points. By contrast, customer satisfaction with 

Market Dominant products for large business customers declined for the second year in a 

row. Customer satisfaction results for large business customers, which ranged from 66 to 

78 percentage points, were far lower than results for residential and small/medium 

business customers.

In the FY 2016 ACD, the Commission directed the Postal Service to take appropriate steps 

to improve customer satisfaction and discuss the reasons for any further declines in 

customer satisfaction. FY 2016 ACD at 157. Although the Postal Service acknowledges the 

decline in large business customer satisfaction, it does not discuss the reasons for this 

decline. The Postal Service states that it will analyze all customer satisfaction results to 

better understand the key drivers behind them. FY 2017 ACR at 59.

The Commission directs the Postal Service to provide an analysis in the FY 2018 ACR to

explain why large business customer satisfaction declined between FY 2015 and FY 2017. The 

Postal Service must also discuss the reasons for any further declines in customer satisfaction 

for residential, small/medium business, and large business customers.

The Commission finds that the Postal Service should take appropriate steps to improve 

customer satisfaction with Market Dominant products for all customers as outlined in the FY 

2017 ACR. The Commission recommends that the Postal Service monitor the areas identified 

by the Public Representative to ensure that these concerns are addressed in FY 2018. In the FY 

2018 ACR, the Postal Service must describe actions taken to improve customer satisfaction in 

FY 2018 and explain whether actions were effective.
Docket No. ACR2017 - 174 -

CHAPTER 6: FLATS COST AND SERVICE 

ISSUES

A. Introduction

The Postal Service continues to face significant challenges in profitably processing and 

delivering flat-shaped mailpieces (flats). In the FY 2015 ACD, the Commission identified 

and analyzed six “pinch points” that contribute to cost and service issues for flats:

 Bundle processing

 Low productivity on automated equipment

 Manual sorting

 Productivity and service issues in allied operations

 Increased transportation time and cost

 Last mile/delivery

FY 2015 ACD at 165.

The Commission directed the Postal Service to identify a method to measure, track, and 

report the cost and service performance issues concerning flats. FY 2015 ACD at 181. In 

response, the Postal Service provided a discussion of data systems that could be used to 

measure certain issues relating to flats.240

Citing the compressed nature of ACD proceedings and the need for consistent review of the 

issues, the Commission initiated a strategic rulemaking to explore potential data 

enhancements and develop reporting requirements related to flats operational cost and 

service issues. See Docket No. RM2018-1. 

B. FY 2017 Results

In FY 2017, the combined attributable costs of Outside County Periodicals and Standard 

Mail Flats exceeded the products’ revenues by $1.3 billion. See Chapter 3, supra, at 44, 50. 

Since FY 2008, the combined attributable costs of Periodicals and Standard Mail Flats 

exceeded their revenues by more than $10.8 billion. Id.

 

240 See Docket No. ACR2015, Third Response of the United States Postal Service to Commission Requests for Additional Information in the FY 

2015 Annual Compliance Determination, July 26, 2016; Docket No. ACR2015, Response of the United States Postal Service to Commission 

Information Request No. 1, November 28, 2016.
Docket No. ACR2017 - 175 -

In FY 2017, service performance improved, however, only USPS Marketing Mail Carrier 

Route met its target, as discussed in detail in Chapter 5. See Chapter 5 at 150 and Table VI1. Since inception of the current service performance measurement system, the Postal 

Service has only met one service performance target for flats products.

Table VI-1

Flats Products’ Service Performance Results FY 2012–FY 2017

Product FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Target

% OnTime Target% OnTime Target% OnTime Target% OnTime Target% OnTime Target% OnTime

First-Class Mail Flats 3-5 

Day241 92.85 80.00 95.00 77.60 95.25 72.60 95.25 65.28 95.25 70.86 95.25 73.93

USPS Marketing 

Mail Carrier Route 90.00 70.60 90.00 79.70 91.00 81.40 91.00 82.02 91.00 83.90 91.00 91.36

USPS Marketing Mail 

Flats 90.00 70.00 90.00 76.90 91.00 76.20 91.00 73.78 91.00 81.40 91.00 80.37

Periodicals Outside 

County 91.00 68.70 91.00 82.10 91.00 80.80 91.00 77.57 91.00 79.74 91.00 85.32

Bound Printed Matter 

Flats 90.00 54.30 90.00 62.60 90.00 60.20 90.00 45.20 90.00 53.56 90.00 56.67

Source: PRC–LR–ACR2017/9.

1. Bundle Processing

In FY 2015, the Commission found that current data related to bundle breakage do not fully 

indicate the scope and scale of bundle breakage. FY 2015 ACD at 167. 

For FY 2017, the Postal Service provided the data in Table VI-2 on Bundle Breakage 

Performance. These data show that the percent of broken bundles increased 0.22 

percentage points. Specifically, the total numbers of bundles decreased 1.02 percent, while 

the number of broken bundles increased 7.11 percent.

 

241 3-5 Day First-Class Mail Flats 3-5 Day denotes First-Class Mail Flats that have a service standard of 3 to 5 days. Most First-Class Flats volume 

falls into this category.
Docket No. ACR2017 - 176 -

Table VI-2

Bundle Breakage

FY Total Bundles Intact Bundles Broken Bundles %Broken

2016 497,658,730 484,698,111 12,960,619 2.60%

2017 492,575,354 478,693,351 13,882,003 2.82%

Source: Response to CHIR No. 14, question 4.

In Docket No. RM2018-1, the Postal Service provided data from Bundle Breakage Visibility 

Reports and Work In Process Cycle time data.242 The Commission will continue to review 

the data and issue information requests to better understand the Postal Service’s capability 

to develop an appropriate metric to measure, track, and report cost and service issues

related to bundle processing.

2. Low Productivity on Automation Equipment

In FY 2015, the Commission found that the productivities for the primary machines used to 

process flats, the automated processing on the Automated Parcel Bundle Sorter (APBS), the 

Automated Package Processing System (APPS), and the Automated Flats Sequencing 

Machine (AFSM) 100, were declining. FY 2015 ACD at 167-68. As shown in Table VI-2, the 

productivities for AFSM100 and APPS continued to decline, while the productivity for APBS 

improved by 4.1 percent in FY 2017. 

 

242 See Docket No. RM2018-1, Response of the United States Postal Service to Commission Information Request No. 1, December 4, 2017, 

questions PP1-1d and PP1-2d (Docket No. RM2018-1, Response to CIR No. 1).
Docket No. ACR2017 - 177 -

Table VI-3

Pieces Per Hour (PPH) Sorted

AFSM100 Incoming Secondary SPBS/APBS Incoming APPS Incoming

FY PPH % Change PPH % Change PPH % Change

2008 3273 252 498

2009 3138 -4.1% 224 -10.8% 451 -9.3%

2010 2998 -4.5% 208 -7.2% 430 -4.7%

2011 2898 -3.3% 201 -3.4% 397 -7.7%

2012 2692 -7.1% 220 9.6% 361 -9.0%

2013 2725 1.2% 232 5.4% 350 -3.0%

2014 2685 -1.5% 219 -5.6% 319 -9.1%

2015 2673 -0.4% 205 -6.6% 304 -4.5%

2016 2567 -4.0% 194 -5.3% 271 -11.0%

2017 2326 -9.4% 202 4.1% 265 -2.2%

Source: PRC–LR–ACR2017/9.

In FY 2017, the Postal Service added 1,488 bins for sortation to APBS and APPS machines. 

In addition, it added seven new Small Package Sorter System (SPSS) and three APBS 

machines. FY2017 ACR at 27. Due to declining pieces on the AFSM 100, the Postal Service 

removed 50 AFSM 100 machines. Id. The Postal Service asserts that there has been a loss of 

economies of scale related to volume declines, which has negatively affected the 

productivity of the AFSM100. Id. 

The Flat Sequencing System (FSS) is another machine used by the Postal Service to process 

flats. In FY 2017, 19.4 percent of flats that destinated in FSS zones were not finalized on FSS 

equipment, which is relatively unchanged from FY 2015 and FY 2016.243 Each of those 

metrics declined in FY 2017. The Postal Service spent over $208 million on processing flats 

on FSS in FY 2017, a 3.0 percent increase over FY 2016. See PRC–LR–ACR2017/9. In FY 

2017, the cost of operating the FSS increased and the volume processed on the FSS 

decreased.

From the period of FY 2012 to FY 2015, some metrics associated with the FSS increased. 

Notably, the Delivery Point Sequence (DPS) percent reached 59.99 percent in FY 2015. The 

performance of the FSS declined in both FY 2016 and FY 2017. The DPS percent was 54.71 

percent in FY 2017, lower than any point since FY 2012. The Postal Service added a new 

metric to the FSS scorecard in FY 2017. The Postal Service “projects that the DPS percent 

will increase in future years.” Response to CHIR No. 5, question 1. The Postal Service did

not provide any evidence supporting its assertion that the observed trend will reverse.

 

243 Library Reference USPS–FY17–11, December 29, 2017, Excel file “USPS-FY17-11 MM flats.xlsx,” tab “Coverage Factors,” cell E79.
Docket No. ACR2017 - 178 -

In chapter 3, the Commission discussed and analyzed the metrics used in the FSS scorecard.

In Docket No. RM2018-1 the Postal Service provided additional data from Mail Processing 

Variance Reports and Single-Piece First-Class Mail Root Cause Reports. See Docket No. 

RM2018-1, Response to CIR No. 1, questions PP2-1, and PP2-4. The Commission will 

continue to review the data and issue information requests to better understand the Postal 

Service’s capability to develop an appropriate metric to measure, track, and report cost and 

service issues related to low productivity on automation equipment.

3. Manual Sorting

In FY 2017, the Postal Service spent $344.6 million on manually processing flats, a 3.1 

percent reduction from FY 2016. See PRC–LR–ACR2017/9. The available data for manual 

sorting lacks transparency, as there is no way to track and report the amount of manual 

processing that actually occurs. The Commission and the Postal Service previously 

identified global issues with the cost and service performance of flats that are manually 

processed.244 As discussed above, the Postal Service did not propose any metrics to track or 

measure manual processing that would provide visibility. 

In Docket No. RM2018-1, the Postal Service provided data from WebMODS for manual flat 

operations and manual volume estimates from eFLASH. See Docket No. RM2018-1, 

Response to CIR No. 1, question PP3-1 and PP3-2. The Commission will continue to review 

the data and issue information requests to better understand the Postal Service’s capability 

to develop an appropriate metric to measure, track, and report cost and service issues 

related to manual sorting.

4. Productivity and Service Issues in Allied 

Operations

Visibility into allied operations is limited. One way the Postal Service gains insight into 

allied operations is through Work In Progress (WIP) cycles. The Postal Service reports that 

WIP cycle median hours decreased from 54 hours to 52 hours for USPS Marketing Mail 

Flats and was unchanged for Periodicals at 24 hours. FY 2017 ACR at 28-29.

 

244 See Periodicals Mail Study: Joint Report of the United States Postal Service and Postal Regulatory Commission, September 2011, at 2.
Docket No. ACR2017 - 179 -

Table VI-4

Service Performance Diagnostics Tool

Median 5 Day Work In Process

USPS Marketing Mail Flats, FY 2012–FY 2017

Time Period from Service Performance Diagnostics

Median 

Hours

FY 2012 (Week ending 3/02/12 - 9/28/12) 52.4

FY 2013 (Week ending 10/19/12 - 9/27/13) 50.5

FY 2014 (Week ending 10/01/13 - 9/30/14) 49

FY 2015 (Week ending 10/01/14 - 9/30/15) 52

FY 2016 (Week ending 10/01/15 - 09/30/16) 54

FY 2017 (Week ending 10/01/16 - 09/30/17) 52

As shown in Table VI-3, WIP cycle times have increased 3 hours since FY 2014. In FY 2014, 

as part of its efforts to improve the productivity of its mail processing network, the Postal 

Service introduced a load leveling program meant to create loads that can be more evenly 

processed across the workweek.245 However, the Postal Service has not quantified any 

associated cost savings for the load leveling operational changes.246

In Docket No. RM2018-1, the Postal Service provided WIP metrics for Actual Entry to Piece 

Scan and Actual Entry to Bundle Scan, and it also provided Bundle Visibility Reports. See 

Docket No. RM2018-1, Response to CIR No. 1, questions PP4-1 and PP4-2. The Commission 

will continue to review the data and issue information requests to better understand the 

Postal Service’s capability to develop an appropriate metric to measure, track, and report 

cost and service issues related to allied operations.

5. Increased Transportation Time and Cost

In the past 5 years, unit transportation costs have increased 12.0 percent overall. However, 

since FY 2016, unit transportation costs have decreased 11 percent. See Table VI-4. 

 

245 See Docket No. ACR2015, Responses of the United States Postal Service to Questions 1-6, 8-10 of Chairman’s Information Request No. 11, 

February 16, 2016, question 9.

246 See Docket No. ACR2014, Responses of the United States Postal Service to Questions 1-2, 5-11 and 13-14 of Chairman’s Information Request 

No 3, January 30, 2015, question 6.
Docket No. ACR2017 - 180 -

Table VI-5

Flats Transportation Costs

FY 2013–FY 2017

FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Percent Change 

FY 2013 to FY 

2017

Cost Segment 14 

Flats Cost

686,602 669,692 712,179 757,237 628,652 -8.4%

Flats Volume 23,558,663 22,161,652 21,489,192 20,544,661 19,265,292 -18.2%

Flats Transportation 

Unit Costs

$0.0291 $0.0302 $0.0331 $0.0369 $0.0326 12.0%

Source: PRC–LR–ACR2017/9.

In Docket No. RM2018-1, the Postal Service provided data from SVWeb and Bundle 

Visibility Reports related to transportation. See Docket No. RM2018-1, Response to CIR No. 

1, questions PP5-2 and PP5-3. The Commission will continue to review the data and issue 

information requests to better understand the Postal Service’s capability to develop an 

appropriate metric to measure, track, and report cost and service issues related to 

transportation.

6. Last mile/delivery

The Postal Service spent a total of $1.1 billion in city carrier in-office costs, which include 

casing costs for flats in FY 2017. See Table VI-5. When the additional mail processing costs 

associated with the FSS are added to the city carrier in-office costs, the Postal Service spent 

$1.327 billion processing flats to Delivery Point Sequence (DPS) in FY 2017.247 This is 

virtually unchanged from FY 2016, when the Postal Service spent $1.319 billion on 

processing flats to DPS. FY 2016 ACD at 168. This is nearly the same amount spent casing 

flats in FY 2008, when volume was 78 percent higher than FY 2017.248 In FY 2008, the 

Postal Service manually cased all flats because there were no FSS machines. Despite the 

addition of 100 FSS machines and lower volume, the Postal Service spent nearly the same 

total amount in the final sortation operation for flats in FY 2017.

 

247 The cost of FSS processing in MODS and NDC facilities was over $205 million. See Library Reference USPS–FY17–26.

248 As detailed in Table VI-5, the cost segment 6 in-office cost for flats in FY 2008 was $1.549 billion, $222 million more than the combined FSS 

mail processing and in-office cost of $1.327 billion in FY 2017. As further detailed in Table VI-6, flat volume was 34.35 billion pieces in FY 2008 

and declined to 19.09 billion pieces in FY 2017, which represents a 44.4 percent decline.
Docket No. ACR2017 - 181 -

Table VI-6

Cost Segment 6: City Delivery Carriers – Office Activity 

Unit Costs FY 2008–FY 2017

Fiscal Year 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

CS 6 Flat Costs ($ in millions) 1,549 1,519 1,513 1,442 1,274 1,196 1,139 1,143 1,114 1,119

Flats Volumes (millions) 34,356 28,773 26,524 25,719 24,081 23,559 22,162 21,489 20,545 19,265

Unit Costs (cents) 4.51 5.28 5.71 5.61 5.29 5.08 5.14 5.32 5.42 5.81

Source: PRC–LR–ACR2017/9.

In Docket No. RM2018-1, the Postal Service provided data from the Customer Service Daily 

Reporting System, Service Performance Measurement, Bundle Scanning Visibility 

Scorecard, and Transit-Time Measurement System. See Docket No. RM2018-1, Response to 

CIR No. 1, questions PP6-1, PP6-2, PP6-3, and PP6-4. The Commission will continue to 

review the data and issue information requests to better understand the Postal Service’s 

capability to develop an appropriate metric to measure track and report cost and service 

issues related to last mile/delivery.

C. Comments

PostCom, ACMA, and the Public Representative filed comments related to Chapter 6 and 

Docket No. RM2018-1. The Postal Service and Valpak filed reply comments regarding flats 

operational changes and Docket No. RM2018-1. 

PostCom states that it appreciates the efforts of the Commission to explore the issue of flats 

costs in a more exhaustive fashion. PostCom Comments at 8. PostCom also suggests that 

open access to Informed Visibility data, with appropriate safeguards, would be beneficial to 

all parties. Id. at 2-3. Based on the Postal Service’s statement that it is unable to estimate 

the impact of operational initiatives on flats costs, PostCom asserts that the Postal Service 

is “indifferent to the importance of understanding how its operational decisions impact the 

costs that it is able to pass directly onto its customers due to its monopoly status.” Id. at 8. 

ACMA is hopeful the additional information requested by the Commission in Docket Nos. 

ACR2015 and RM2018-1 will “further progress on this matter.” ACMA Comments at 17.

Based on the Public Representative’s review, she could not conclude that the Postal Service 

fully followed the Commission’s directives regarding cost reduction for flats. PR Comments 

at 34. Valpak asserts that because the Postal Service is still unable to provide financial 

impacts of operational initiatives, there is no basis to believe any cost reduction efforts will 

be successful. Valpak Reply Comments at 7-8. 

In its reply comments, the Postal Service states that “the appropriate forum for addressing 

the flats cost issues raised by the parties is Docket No. RM2018-1.” Postal Service Reply 

Comments at 6. In response to comments from PostCom, the Postal Service asserts that it is 

not “indifferent” to the effect of operations decisions of Flats costs. Id. 
Docket No. ACR2017 - 182 -

D. Status of Docket No. RM2018-1

Since FY 2015, the Commission has attempted to identify and develop metrics to measure, 

track, and report the cost and service performance issues concerning flats. The Postal 

Service has not successfully identified such metrics at this juncture. The Postal Service has 

continued to explore what information it possesses that can be used to develop these 

metrics. The Commission will continue to explore cost and service issues related to flats in 

Docket No. RM2018-1. Using the information provided by the Postal Service regarding its 

data systems and soliciting comments from interested parties, the Commission will develop 

potential data enhancements and consistent reporting requirements that will be used to 

develop metrics to measure, track, and report the cost and service performance issues 

concerning flats. The Commission anticipates that the data enhancement and consistent 

reporting will lead to the development of measurable goals to decrease the costs and 

improve the service of flats.
Docket No. ACR2017 Appendix A

 Page 1 of 11

Appendix A: Special Study of Delivery 

Performance in Remote Locations

Pursuant to 39 U.S.C. § 3652(a)(2)(B), which requires the Postal Service to file annual 

reports regarding its quality of service for each market dominant product, the Commission 

promulgated 39 C.F.R. § 3055.7 in 2010.1 This regulation requires the Postal Service to file 

a report every 2 years on delivery performance, by class of mail, to remote areas of the 

Alaska, Caribbean, and Honolulu districts. The purpose of this report is to “allow evaluation 

of the unique aspects of providing service to less populous/more remote areas of these 

districts, and compare how this service differs from the districts as a whole.” Order No. 465 

at 39. 

In accordance with this requirement, every 2 years, the Postal Service provides a special 

study conducted by a third party contractor concerning final delivery service performance 

to the remote locations of the Alaska, Honolulu, and Caribbean Districts.2 These districts 

serve remote locations less populated than the average continental district, and large 

portions of these districts are located far from mail processing facilities.3 Each of these 

districts also serves more populated areas, called Gateway cities. The Gateway city for the 

Alaska District is Anchorage; the Gateway city for the Honolulu District is Honolulu; and the 

Gateway city for the Caribbean District is San Juan.

The 2017 Study reports service performance results for remote locations, compares those 

results to service performance for the area’s Gateway city, and presents statistically 

significant differences between these service performance results. 2017 Study at 6. 

Specifically, the 2017 Study measures performance for 114 remote 3-Digit ZIP Codes and 

mail class groupings. Id. at 22. Of these 114 groups, the Gateway had better service 

performance results than the remote 3-Digit ZIP Codes in 59 instance (52 percent). Id.

There were 26 instances where the remote 3-Digit ZIP Codes had better service 

performance results than the Gateway (23 percent ), and 29 instances where there was no 

statistically significant difference between the Gateway and the remote 3-Digit ZIP Code 

(25 percent). Id. 

 

1

See Docket No. RM2009-11, Order Establishing Final Rules Concerning Periodic Reporting of Service Performance Measurements and 

Customer Satisfaction, May 25, 2010, at 61 (Order No. 465).

2

Library Reference USPS-FY17-29, December 29, 2017, “Offshore Special Study FY17.pdf,” at 1 (2017 Study). See also, e.g., Docket No. 

ACR2015, Library Reference USPS-FY15-29, December 29, 2015, “Special Study of Off-Shore Service Performance FY15.pdf” (2015 Study); 

Docket No. ACR2013, Library Reference USPS-FY13-29, December 27, 2013, “Special Study of Off-Shore Service Performance FY13.pdf” (2013 

Study); Docket No. ACR2011, Library Reference USPS-FY11-29, December 29, 2011, “Special Study of Off-Shore Service Performance FY11.pdf” 

(2011 Study).

3

2017 Study at 1. When referring to non-Gateway ZIP Codes, the 2017 Study uses the terms “remote” and “rural” interchangeably. This 

Appendix uses the term “remote” to refer to non-Gateway ZIP Codes.
Docket No. ACR2017 Appendix A

 Page 2 of 11

The 2017 Study uses sampling-related margins of error to determine if score differences 

were statistically significant at a 95-percent confidence level. Due to sample size 

differences for each measured region, the margins of error will differ for each comparison.4

In addition, service performance measurement was suspended for mail originating from or 

destinating to the Caribbean District starting September 16, 2017, due to the severity of 

Hurricanes Irma and Maria. 2017 Study at 5. This suspension applied to all mail classes for 

the FY 2017 results. Id.

The 2017 Study also compares the FY 2017 results for each 3-Digit ZIP Code to the FY 2015 

results. There are 151 comparisons for all 3-Digit ZIP Codes by mail class. Id. at 24. Of the 

151 comparisons, the Postal Service states that the FY 2017 results improved over the 

FY 2015 result in 92 instances (61 percent). Id. There were 20 instances (13 percent) 

where the FY 2017 results declined from the FY 2015 results. Id. There was no statistically 

significant difference for the remaining 39 instances (26 percent). Id.

The results of the 2017 Study highlight the difficulties the Postal Service has in achieving 

similar service performance in remote locations as in the Gateways. The FY 2017 Study 

notes “most of the largest score differences were with ZIP Code[ ] Areas that were both

extremely isolated and have low mail volumes....” Id. at 23. The FY 2017 Study concludes 

that the FY 2017 results show the Gateway tends to outperform the rural areas 52 percent 

of the time from a statistical significance perspective, which is narrower than the gap 

observed in FY 2015 (58 percent). Id. at 24.

The following sections display service performance results for each 3-Digit ZIP Code in the 

Alaska, Honolulu, and Caribbean Districts; statistically significant differences between the 

service performance results reported for FY 2015 and FY 2017; and statistically significant 

differences between the service performance results reported for the Gateway cities and 

remote locations within each of the three districts.

 

4

The 2017 Study notes that it used “sampling related margins of error to determine if score differences were statistically significant.” Id. at 6, 

22. Sample size and margin of error are inversely related, such that as sample sizes increase, margins of error typically decrease. The 2017 Study 

states that “the goal was to have a minimum of approximately 400 pieces for the fiscal year, assuming an average on-time score of 80 percent.” 

Id. at 5. The 2017 Study states that this volume would achieve a 95-percent confidence interval and margin of error of +/- 4.0 percent. Id.

However, margins of error were adjusted across regions, products, and service standards because sample sizes deviated from the 400-piece 

target. In these cases, statistical significance was determined by the newly adjusted margin of error. Id.
Docket No. ACR2017 Appendix A

 Page 3 of 11

A. First-Class Mail

1. Single-Piece Letters/Postcards/Flats

Table A-1

Single-Piece First-Class Mail Letters/Postcards/Flats

Service Performance Results by 3-Digit ZIP Code, by Percentage

FY 2011, FY 2013, FY 2015, and FY 2017

District/3-Digit 

ZIP Code

Overnight* 2-Day 3-5-Day

FY 

2011

FY 

2013

FY 

2015

FY 

2017

FY 

2011

FY 

2013

FY 

2015

FY 

2017

FY 

2011

FY 

2013

FY 

2015

FY 

2017

Alaska

995 Gateway 96.3 97.4 96.6 NSS 99.3 99.4 99.6 99.1 90.5 87.6 82.8 88.9

995 Remote NSS NSS NSS NSS 97.9 97.8 97.5 96.1 93.7 95.0 91.8 93.4

996 NSS NSS NSS NSS 98.1 98.0 96.6 94.7 95.3 94.5 90.4 93.7

997 NSS NSS NSS NSS 92.9 93.4 88.0 91.0 92.9 93.4 92.2 93.7

998 NSS NSS NSS NSS 96.5 90.3 94.5 93.6 87.6 82.8 84.3 92.7

999 NSS NSS NSS NSS 98.5 95.4 93.7 95.0 89.1 85.0 84.8 94.0

Caribbean

009 Gateway 94.4 95.1 95.0 NSS 97.2 98.6 96.3 94.3 85.6 82.6 65.4 65.8

006 93.7 93.7 95.4 NSS 96.4 98.2 93.7 91.6 84.5 83.1 65.1 65.9

007 93.6 94.3 93.8 NSS 94.7 98.5 95.0 92.1 85.7 82.6 65.9 66.5

008 87.7 92.4 89.4 NSS 96 98.8 96.9 94.7 91.8 94.3 88.0 89.8

Honolulu

968 Gateway 97.7 97.2 97.3 NSS NSS 12.4 97.4 97.7 86.3 86.5 70.5 77.7

96700-96798 

Hawaiian Islands 97.5 97.4 96.9 NSS NSS NSS 97.5 96.8 96 95.6 88.3 93.4

96799 American 

Samoa - NSS NSS NSS - 12.4 7.8 7.5 - 18.7 8.0 12.4

969 Guam 91.5 95.5 93.4 NSS NSS NSS 97.8 95.1 82.8 56.4 21.1 57.9

Note: *Effective January 5, 2015, the Postal Service eliminated the overnight service standard for intra-SCF (e.g., mail that is entered and delivered within the 3-Digit 

ZIP Code areas assigned to that SCF in the Domestic Mail Manual) Single-Piece First-Class Mail. FY 2017 Study at 4. Therefore, the FY 2015 Study’s analysis of the 

overnight results is based on mail received between October 1, 2014, and January 4, 2015. FY 2015 Study at 4.

FY 2017 results are unweighted and based on destinating mail. FY 2017 service performance measurement was suspended in the Caribbean District as of September 

16, 2017, due to the severity of Hurricanes Irma and Maria. See 2017 Study at 7.

NSS = No Service Standard 

Source: 2017 Study at 6-7; 2015 Study at 6; 2013 Study at 8; 2011 Study at 7.
Docket No. ACR2017 Appendix A

 Page 4 of 11

Table A-2

Single-Piece First-Class Mail Letters/Postcards/Flats

Statistically Significant Differences Between FY 2015 and FY 2017 Results

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 12 8 8 28

Number Significantly Higher 5 0 4 9

Number Significantly Lower 2 3 1 6

Number Not Significantly Different 5 5 3 13

Source: 2017 Study at 23.

Table A-3

Single-Piece First-Class Mail Letters/Postcards/Flats

Statistically Significant Differences Between 

Gateway and Remote Performance, FY 2017

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 10 6 6 22

Number Significantly Higher 5 1 1 7

Number Significantly Lower 5 2 4 11

Number Not Significantly Different 0 3 1 4

Source: 2017 Study at 8-9 and 22.
Docket No. ACR2017 Appendix A

 Page 5 of 11

2. Presorted First-Class Mail Letters/Postcards

Table A-4

Presorted First-Class Mail Letters/Postcards

Service Performance Results by 3-Digit ZIP Code, by Percentage

FY 2011, FY 2013, FY 2015, and FY 2017

District/3-Digit 

ZIP Code

Overnight* 2-Day 3-5-Day

FY 

2011

FY 

2013

FY 

2015

FY 

2017

FY 

2011

FY 

2013

FY 

2015

FY 

2017

FY 

2011

FY 

2013

FY 

2015

FY 

2017

Alaska

995 Gateway 96.6 97.9 98.7 98.8 98 97.7 No 

Data

No 

Data 93.5 93 88.6 94.5

995 Remote 96.6 97.9 NSS NSS No 

Data

No 

Data 98.2 99.2 92.9 92.4 94.2 96.7

996 NSS NSS NSS NSS 98 97.9 98.3 98.5 96 96.7 94.4 96.6

997 NSS NSS NSS NSS 98 97.7 97.5 96.0 95.9 96.5 93.5 96.2

998 NSS NSS NSS NSS No 

Data 95.2 98.9 No Data 94.4 95.2 83.6 93.6

999 NSS NSS NSS NSS No 

Data

No 

Data

No 

Data

No 

Data 89.5 82.1 78.3 93.5

Caribbean

009 Gateway No 

Data

No 

Data 95.0 94.0 No Data

No 

Data

No 

Data

No 

Data 85.3 90.2 80.5 84.7

006 No 

Data

No 

Data 92.1 90.9 No Data

No 

Data

No 

Data

No 

Data 85.7 90.2 79.3 83.4

007 No 

Data

No 

Data 92.6 92.2 No Data

No 

Data

No 

Data

No 

Data 83.7 89.4 79.9 84.4

008 No 

Data

No 

Data

No 

Data NSS No Data

No 

Data 97.9 97.6 84.2 89.7 91.8 94.0

Honolulu

968 Gateway 96.3 99.3 93.6 97.3 NSS No 

Data

No

Data NSS 93.9 94.4 83.5 88.8

96700-96798 

Hawaiian Islands 97 99.2 95.8 96.6 NSS NSS NSS NSS 90.5 93.5 94.2 97.1

96799 American 

Samoa 95.9 99.3 NSS NSS NSS NSS No Data

No 

Data 95.9 97.9 12.4 21.5

969 Guam - NSS 93.3 90.3 -

No 

Data NSS NSS - 45.8 53.8 78.4

Note: *Effective January 5, 2015, the overnight service standard applies to “intra-SCF domestic Presort First-Class Mail pieces properly accepted at the SCF 

before the day-zero CET, except for mail between Puerto Rico and the U.S. Virgin Islands, and mail destined to American Samoa and the following 3-digit 

ZIP Code areas in Alaska (or designated portions thereof): 995 (5-digit ZIP Codes 99540 through 99599), 996, 997, 998, and 999.” 39 C.F.R. § 121.1(a)(2).

FY 2017 results are unweighted and based on destinating mail. FY 2017 service performance measurement was suspended in the Caribbean District as of 

September 16, 2017, due to the severity of Hurricanes Irma and Maria. See 2017 Study at 9.

NSS = No Service Standard

No Data = There was no data for this service standard in FY17.

Source: 2017 Study at 9; 2015 Study at 8; 2013 Study at 11-12; 2011 Study at 10-11.
Docket No. ACR2017 Appendix A

 Page 6 of 11

Table A-5

Presorted First-Class Mail Letters/Postcards

Statistically Significant Differences Between FY 2015 and FY 2017 Results

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 10 8 7 25

Number Significantly Higher 7 3 4 14

Number Significantly Lower 0 0 0 0

Number Not Significantly Different 3 5 3 11

Source: 2017 Study at 23.

Table A-6

Presorted First-Class Mail Letters/Postcards

Statistically Significant Differences Between 

Gateway and Remote Performance, FY 2017

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 5 6 5 16

Number Significantly Higher 3 1 1 5

Number Significantly Lower 0 1 2 3

Number Not Significantly Different 2 4 2 8

Note: There was no data available to compare the Gateway to 3-Digit ZIP Code 008 for the 2-Day service 

standard in the Caribbean District. 2017 Study at 10. The 2017 Study classifies the results for ZIP Code 008 

for the 2-Day service standard in the Caribbean District as not significantly different. Id. at 22.

Source: 2017 Study at 22.
Docket No. ACR2017 Appendix A

 Page 7 of 11

B. USPS Marketing Mail

Table A-7

USPS Marketing Mail Letters and Flats

Service Performance Results by 3-Digit Zip Code, by Percentage

FY 2011, FY 2013, FY 2015, and FY 2017

District/3-

Digit ZIP 

Code

Letters Flats

Destination Entry End-to-End Destination Entry End-to-End

FY

2011

FY

2013

FY 

2015

FY 

2017

FY

2011

FY

2013

FY

2015

FY 

2017

FY 

2011

FY

2013

FY

2015

FY 

2017

FY

2011

FY

2013

FY

2015

FY 

2017

Alaska

995 

Gateway

80.3 97.8 98.1 98.8 31.5 84.7 86.1 91.7 46.1 92.8 96.4 95.2 27.8 76.3 80.7 91.9

995 

Remote

75.3 97.7 97.8 98.6 31.6 86.5 86.3 91.2 36.8 92.9 92.1 93.1 18 77 75.3 89.5

996 66.8 96.9 97.3 98.5 28.1 84.2 84.6 90.2 41.4 92.1 91.7 90.3 14 77.1 75.6 87.2

997 65 96.8 97.5 98.0 36.4 87 87.2 93.0 32.6 93.1 93.5 91.1 21.9 79.9 79.1 91.7

998 42.4 80.5 90.1 88.5 22.1 71.3 80.1 83.3 N/A 96.3 83.4 84.3 N/A 79.7 62.4 73.9

999 54.3 76.1 89.3 90.5 31.7 62.2 76.7 83.1 N/A 94.7 73.8 60.6 N/A 75 44.2 45.6

Caribbean

009 

Gateway

59.9 89.1 89.6 92.2 34.1 71.6 72.8 62.9 54.9 80.8 87.3 83.7 32.4 59.7 61.7 73.1

006 78.4 91.5 92.1 91.1 31.7 72.9 74.6 64.4 57.2 81.4 87.4 83.8 24.5 66.2 67.1 74.7

007 70.3 88.6 91.1 90.8 34.7 71.2 74.8 65.6 57.9 84.6 84.9 82.1 30 67.1 63.9 74.7

008 57.9 87.5 87.3 89.5 42.7 69.6 56.9 58.0 59.4 76 81.5 66.2 29 54.0 51.8 60.8

Honolulu

968 

Gateway 

14.2 67.4 95.9 97.8 7.4 33.1 69.1 85.8 7.1 56.6 91.6 97.6 2.6 39.0 61.9 84.0

96700-

96798 

Hawaiian 

Islands

15.1 67.5 96.5 98.3 5.7 35.3 69.2 86.2 2.7 44.4 80.3 97.8 1 31.6 53.3 81.4

96799 

American 

Samoa

- 25.1 13.0 39.0 - 14 11.0 22.3 - 11.7 10.0 21.7 - 8.5 6.2 15.7

969 0.3 24.9 27.3 89.8 4.8 21.9 27.6 72.6 1.2 18.3 19.9 41.7 1.2 24.1 16.1 29.6

Note: In FY 2014 the Postal Service implemented its Standard Mail Load Leveling initiative, under which one day was added to the service standard for 

destination entry Standard Mail pieces that qualified for a Destination Sectional Center Facility (DSCF) rate and were entered on a Friday or Saturday. FY 2017 

Study at 4.

FY 2017 results are unweighted and based on destinating mail. FY 2017 service performance measurement was suspended in the Caribbean District as of 

September 16, 2017, due to the severity of Hurricanes Irma and Maria. See 2017 Study at 11.

Source: 2017 Study at 10-11; 2015 Study at 19; 2013 Study at 13; 2011 Study at 12.
Docket No. ACR2017 Appendix A

 Page 8 of 11

Table A-8

USPS Marketing Mail Letters and Flats

Statistically Significant Differences Between FY 2015 and FY 2017 Results

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 24 16 16 56

Number Significantly Higher 15 6 16 37

Number Significantly Lower 3 7 0 10

Number Not Significantly Different 6 3 0 9

Source: 2017 Study at 23.

Table A-9

USPS Marketing Mail Letters and Flats

Statistically Significant Differences Between 

Gateway and Remote Performance, FY 2017

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 20 12 12 44

Number Significantly Higher 1 2 2 5

Number Significantly Lower 12 5 9 26

Number Not Significantly Different 7 5 1 13

Source: 2017 Study at 22.
Docket No. ACR2017 Appendix A

 Page 9 of 11

C. Periodicals

Table A-10

Periodicals

Service Performance Results by 3-Digit ZIP Code, by Percentage

FY 2011, FY 2013, FY 2015, and FY 2017

District/3-Digit ZIP Code FY 

2011*

Destination Entry End-to-End

FY 2013 FY 2015 FY 2017 FY 2013 FY 2015 FY 2017

Alaska

995 Gateway 68.7 89.7 89.0 91.6 82.1 76.4 90.0

995 Remote 57.2 92.0 88.2 96.0 81 74.6 90.2

996 71.4 90.0 86.7 95.0 80.6 74.3 90.8

997 63.7 87.1 77.9 91.4 74.9 71.9 91.0

998 56.7 84.5 59.0 75.9 84.9 62.2 64.5

999 48.2 73.9 66.7 84.6 78.4 64.0 69.3

Caribbean

009 Gateway 41.8 66.9 75.6 77.3 65 71.6 76.0

006 34.1 70 71.4 69.2 67.6 67.9 80.1

007 43.7 72.3 69.9 67.9 71.4 65.9 78.0

008 16.7 76.2 78.4 87.2 57.5 63.3 74.3

Honolulu

968 Gateway 73.8 61 76.2 96.8 40.1 54.9 84.5

96700-96798 Hawaiian 

Islands 63 66.1 69.9 96.7 39.2 53.5 85.9

96799 American Samoa - 4.4 2.0 No Data 9.6 6.0 19.4

969 80.4 16.5 13.9 34.0 24.2 13.9 34.0

Note: *In FY 2011, service performance results for Periodicals were not disaggregated by Destination-Entry or End-to-End 

measurement.

FY 2017 results are unweighted and based on destinating mail. FY 2017 service performance measurement was suspended 

in the Caribbean District as of September 16, 2017, due to the severity of Hurricanes Irma and Maria. See 2017 Study at 13.

Source: 2017 Study at 13; 2015 Study at 20; 2013 Study at 16; 2011 Study at 17.

Table A-11

Periodicals

Statistically Significant Differences Between FY 2015 and FY 2017 Results

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 12 8 7 27

Number Significantly Higher 10 5 7 22

Number Significantly Lower 0 0 0 0

Number Not Significantly Different 2 3 0 5

Source: 2017 Study at 23.
Docket No. ACR2017 Appendix A

 Page 10 of 11

Table A-12

Periodicals

Statistically Significant Differences Between 

Gateway and Remote Performance, FY 2017

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 10 6 5 21

Number Significantly Higher 4 3 1 8

Number Significantly Lower 4 2 3 9

Number Not Significantly Different 2 1 1 4

Source: 2017 Study at 22.

D. Package Services

Table A-13

Package Services

Service Performance Results, by Percentage

FY 2011, FY 2013, FY 2015, and FY 2017

District/3-Digit ZIP Code FY 2011 FY 2013 FY 2015 FY 2017

Alaska 

995 Gateway 31.3 89.5 90.8 92.8

995 Remote 21.9 70.3 79.7 81.1

996 25.9 77 83.6 87.0

997 21.5 71.7 83.2 83.6

998 21.2 72 80.4 81.2

999 21.7 59.9 79.5 76.2

Caribbean

009 Gateway 19.8 53.6 70.5 69.9

006 23.9 51.5 71.6 69.6

007 24.4 53.2 48.6 75.4

008 7.7 28.5 44.1 25.9

Honolulu

968 Gateway 6.9 45.9 64.7 68.8

96700-96798 Hawaiian 

Islands 6 29.2 42.5 52.7

96799 American Samoa - 9.7 25.2 36.2

969 8 17.1 19.8 39.0

Note: FY 2017 results are unweighted and based on destinating mail. FY 2017 service performance 

measurement was suspended in the Caribbean District as of September 16, 2017, due to the severity of 

Hurricanes Irma and Maria. See 2017 Study at 15.

Source: 2017 Study at 15; 2015 Study at 15; 2013 Study at 21; 2011 Study at 19.
Docket No. ACR2017 Appendix A

 Page 11 of 11

Table A-14

Package Services

Statistically Significant Differences Between FY 2015 and FY 2017 Results

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 6 4 4 14

Number Significantly Higher 5 1 4 10

Number Significantly Lower 1 3 0 4

Number Not Significantly Different 0 0 0 0

Source: 2017 Study at 23.

Table A-15

Package Services

Statistically Significant Differences Between 

Gateway and Remote Performance, FY 2017

Remote ZIP Code Metric Alaska Caribbean Honolulu Total

Total Number of Remote Comparisons 5 3 3 11

Number Significantly Higher 0 1 0 1

Number Significantly Lower 5 2 3 10

Number Not Significantly Different 0 0 0 0

Source: 2017 Study at 22.
Docket No. ACR2017 Appendix B

 Page 1 of 14

Appendix B: Key Commission Findings 

and Directives Requiring Postal Service 

Action for Annual Compliance Reports

KEY COMMISSION FINDINGS AND DIRECTIVES REQUIRING POSTAL SERVICE ACTION 

FOR FUTURE ANNUAL COMPLIANCE REPORTS (FY 2017 ACD) 

Periodicals Pricing Efficiency:

 The Commission directs the Postal Service to include an updated version of the 

Periodicals Pricing Report in its FY 2018 ACR. The report must include an analysis of 

how the pricing in Docket No. R2018-1 impacted the cost, contribution, and revenue of 

Periodicals in FY 2018 and whether the new pricing improved the efficiency of 

Periodicals pricing in FY 2018. FY 2017 ACD, Chapter 2 at 23.

Marketing Mail Flats:

 The Commission finds that, in FY 2017, no progress was made toward addressing the 

issues it raised in the FY 2010 ACD. Despite the Postal Service efforts to reduce flats 

costs through operational initiatives, unit costs increased substantially from FY 2016. 

The Commission understands that the migration of Carrier Route Flats played a 

significant role in the cost increase due to the migration of low cost pieces. However, 

even when Carrier Route and Flats data are combined, unit costs still increased and 

unit contribution decreased. The Postal Service must continue responding to the 

requirements of the FY 2010 ACD directive by proposing above-average price increases 

for USPS Marketing Mail Flats, striving to reduce USPS Marketing Mail Flats cost, and 

providing the required documentation of those efforts in future ACRs. FY 2017 ACD, 

Chapter 3 at 58.

Money Orders:

 The Commission finds that FY 2017 revenue for Money Orders was not sufficient to 

cover attributable cost. The Commission directs the Postal Service to continue its 

investigation into debit card fee attribution and update the Commission on its 

progress and any potential corresponding methodological changes within 90 days of 

the issuance of this ACD. FY 2017 ACD, Chapter 3 at 63.
Docket No. ACR2017 Appendix B

 Page 2 of 14

Incremental Cost Methodology:

 For its FY 2018 ACR filing, the Commission directs the Postal Service to reconcile the 

difference in methodology in calculating total attributable costs between the 

Incremental Costs Report and the CRA by including incremental costs at the class level 

in the CRA. The Commission also directs the Postal Service to report the componentlevel total and institutional costs in the Incremental Costs Report. FY 2017 ACD, 

Chapter 1 at 10.

Inbound Letter Post:

 The Commission finds that FY 2017 revenue for Inbound Letter Post was not sufficient 

to cover attributable cost. The Commission directs the Postal Service, within 90 days, 

to submit an update on its collection of accurate shaped-based data, and development 

of costing models for Inbound Letter Post using this shape-based data if it has not yet 

filed a rulemaking proposal to implement shape-based costing for Inbound Letter Post 

in the Domestic Processing Model and the ICRA. FY 2017 ACD, Chapter 3 at 68.

 The Commission recommends that the Postal Service identify and implement 

operational strategies to lower costs for Inbound Letter Post in FY 2018, particularly 

the costs for small packets. The Commission also recommends that the Postal Service 

continue to pursue compensatory terminal dues in the UPU and to pursue bilateral 

agreements that contain Inbound Letter Post rates that are more compensatory than 

UPU terminal dues. FY 2017 ACD, Chapter 3 at 68.

 The Commission directs the Postal Service to provide both IMMS and QLMS CY 2017 

and CY 2018 performance reports for Inbound Letter Post, aggregations of weekly 

failure reports, and an analysis of the failures and steps being taken to improve service 

performance in the FY 2018 ACR. FY 2017 ACD, Chapter 3 at 70.

Market Dominant International Ancillary Services:

 The Commission finds that in FY 2017, International Ancillary Services did not cover 

its attributable cost due to the failure of International Registered Mail to cover its 

attributable cost. The Commission urges the Postal Service to continue to promote 

greater participation by foreign postal operators in the Inbound Market Dominant 

Registered Service Agreement 1, which provides more compensatory remuneration for 

registered mail from participating foreign postal operators. The Commission also 

recommends that the Postal Service identify and implement ways to reduce costs for 

International Registered Mail. FY 2017 ACD, Chapter 3 at 71-72.
Docket No. ACR2017 Appendix B

 Page 3 of 14

Market Dominant International NSAs:

 The Commission finds that the Inbound Market Dominant PRIME Tracked Service 

Agreement product did not meet the criteria of 39 U.S.C. § 3622(c)(10). The 

Commission directs the Postal Service to encourage more countries to participate in 

the Inbound Market Dominant PRIME Tracked Service Agreement, as more volume 

exchanged within this agreement should improve cost coverage. In addition, in 90 

days, the Postal Service shall file revised financial workpapers in Docket. No. R2017-3 

to reflect actual year-to-date volume, revenue, and cost in FY 2018. FY 2017 ACD, 

Chapter 3 at 74.

Media Mail/Library Mail

 The Commission finds that FY 2017 revenue for Media Mail/Library Mail was not 

sufficient to cover attributable cost. However, the Postal Service’s approach to improve 

cost coverage through above-average price increases in future Market Dominant price 

adjustments is appropriate. The Commission also encourages the Postal Service to 

explore opportunities to further reduce the unit cost of Media Mail/Library Mail. FY 

2017 ACD, Chapter 3 at 75.

PHI NSA: 

 The Commission finds that the PHI NSA did not meet the criteria of 39 U.S.C. § 

3622(c)(10)(A) in Contract Year 3. If the Postal Service provides the Commission with 

the amended contract for review, the filing shall include a volume forecast for the 

remainder of the PHI NSA and an estimate of the total contract net financial 

contribution. If an amended contract is not in effect by June 30, 2018, the PHI NSA will 

remain suspended. FY 2017 ACD, Chapter 3 at 76-77.

Competitive NSAs:

 The Commission provisionally accepts the Postal Service’s estimates of domestic NSA 

attributable costs for purposes of the instant docket. The Commission finds, however, 

that the Postal Service’s estimate of domestic NSA attributable costs employs a new 

methodology, and directs the Postal Service to file a petition for the initiation of a 

proceeding to consider proposed changes in analytical principles for the new 

methodology within 90 days of issuance of this ACD. FY 2017 ACD, Chapter 1 at 11.

 The Commission finds that Priority Mail Contract 123, Priority Mail Contract 183, 

Priority Mail Contract 214, and Priority Mail Contract 228 were not in compliance 

with 39 U.S.C. § 3633(a)(2) in FY 2017. Because Priority Mail Contract 183, Priority 

Mail Contract 214, and Priority Mail Contract 228 are no longer active, no further 

action is required. The Commission directs the Postal Service to report within 30 days 

of issuance of this ACD on the result of its review of the cost model underlying Priority 
Docket No. ACR2017 Appendix B

 Page 4 of 14

Mail Contract 123 and on any additional steps it plans to take to improve cost 

coverage. FY 2017 ACD, Chapter 4 at 84.

 The Commission finds the identified contracts to be in compliance. Going forward, the 

Commission will increase its scrutiny of estimated customer profiles that will be relied 

upon for cost coverage calculations. The Commission will continue to evaluate on an 

ongoing basis whether the data provided by the Postal Service are sufficient to assess 

compliance. FY 2017 ACD, Chapter 4 at 84.

IMTS—Outbound and Inbound:

 The Commission finds that IMTS—Outbound and IMTS—Inbound were not in 

compliance with 39 U.S.C. § 3633(a)(2) in FY 2017. Given the recurring volatility in 

unit costs, the Postal Service has not provided sufficient evidence that the FY 2018 

price increases will result in full cost coverage. Therefore, the Commission directs the 

Postal Service to increase the prices for IMTS—Outbound in order to bring the product 

into compliance in its next request for a rate adjustment for Competitive rates of 

general applicability. The Commission expects the Postal Service to request a 

delegation of authority from the Department of State under the Circular 175 process 

to terminate or renegotiate the agreements that comprise the IMTS—Inbound 

product, and to provide an update on the status of this process within 120 days of 

issuance of this ACD. If the Postal Service identifies competing priorities as a reason for 

it not being able to comply fully with the Commission’s directive, it should fully 

describe those competing priorities and provide a clear justification for why the 

Commission’s directive was not followed. FY 2017 ACD, Chapter 4 at 86.

Competitive International Ancillary Services:

 The Commission finds that International Ancillary Services was not in compliance with 

39 U.S.C. § 3633(a)(2) in FY 2017. The Commission directs the Postal Service to report 

within 90 days of issuance of this ACD on its evaluation of Outbound International 

Insurance cost reporting and whether a change in analytical principles is warranted. If 

the Postal Service does not determine that a change in analytical principles is 

warranted, the Commission directs the Postal Service to increase the prices for 

Outbound International Insurance in order to bring the product into compliance. FY 

2017 ACD, Chapter 4 at 87.

First-Class Mail Service Performance:

 The Commission finds that the Postal Service did not meet its service performance 

targets for First-Class Mail in FY 2017. The Commission directs the Postal Service to 

apply its data leveraging techniques to improve service performance for all First-Class 

Mail products in FY 2018. If the Postal Service does not maintain or improve its service 

performance results in FY 2018, the Postal Service shall include a detailed and 
Docket No. ACR2017 Appendix B

 Page 5 of 14

product-specific plan in its FY 2018 ACR for how performance shall be improved. FY 

2017 ACD, Chapter 5 at 144.

 Although the improvements observed in the FY 2017 First-Class Mail service 

performance results are encouraging, particularly after the improvement reported in 

FY 2016, the Commission remains concerned that the FY 2017 service performance 

results reported for First-Class Mail Single-Piece Letters/Postcards have not returned 

to the level reported before FY 2015 and determines that First-Class Mail Single-Piece 

Letters/Postcards is not in compliance for the third year in a row. The Commission 

directs the Postal Service to improve service performance results for First-Class Mail 

Single-Piece Letters/Postcards in FY 2018. FY 2017 ACD, Chapter 5 at 145.

 To facilitate the monitoring of service performance (particularly for First-Class Mail 

Single-Piece Letters/Postcards), the Commission also directs the Postal Service to 

provide trackable data that is consistently collected and will continue to add 

transparency to the different processing phases of First-Class Mail Single-Piece 

Letters/Postcards. The Commission directs the Postal Service to provide the following 

information (as applicable) for FY 2018, Quarter 1, Quarter 2, and “mid-year” within 

90 days of the issuance of this report.[1] The Commission directs the Postal Service to 

include the following information for FY 2018, Quarter 3, Quarter 4, “second-half” and 

annualized for the fiscal year, in the FY 2018 ACR.[2] Except for items 1a, 1b, 4a, and 

4c, all results should be disaggregated by service standard category (2-Day and 3-5-

Day).

1. The 24-Hour Clock:

a. The national level, area level, and district level performance for each 

national operating plan target (also referred to as the 24-Hour Clock 

national clearance goals) for each quarter and annually for FY 2018.1

b. The 10 facilities with the most failures in meeting each of the 24-Hour Clock 

national clearance goals during FY 2018. For each facility identified, please 

state the number of times that the facility failed to meet that national 

clearance goal during FY 2018, and the corresponding number of times that 

the facility failed to meet that national clearance goal during FY 2017.2

 

1

See December 29, 2017 Public File, tab “Q1a.”

2

See Library Reference USPS–FY17–NP30, December 29, 2017, Excel file “Response2 - ACD.FCM.FY17Q3Q4.Q1b.NONPUBLIC.xlsx.”
Docket No. ACR2017 Appendix B

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2. Collections/First Mile:

a. The national level, area level, and district level percentage of First-Class 

Mail Single-Piece Letters/Postcards with collection delays.

3

3. Origin Processing:

a. The national level, area level, and district level percentage of First-Class 

Mail Single-Piece Letters/Postcards with origin processing delays.4

b. The national level, area level, and district level percentage of First-Class 

Mail Single-Piece Letters/Postcards that are classified as origin processing 

failures (root cause at origin).5

4. Transit:

a. The air carrier capacity requested, air carrier capacity received, and air 

capacity gap calculated using daily cubic feet volume.6

b. The national level, area level, and district level percentage of First-Class 

Mail Single-Piece Letters/Postcards with AADC/ADC processing delays, 

presented in three separate tables specific to air transportation, ground 

transportation, and both.7

c. The national level, area level, and district level of CLTs (any HCR that is late 

more than 4 hours).

8

5. Destination Processing:

a. The national level, area level, and district level of TTMS aggregate 

estimates of First-Class Mail Single-Piece Letters/Postcards that have 

already missed the service standard by the LPO within the destination 

processing phase.9

 

3

See December 29, 2017 Public File, tab “Q2b;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q2 and 3a.”

4

See December 29, 2017 Public File, tabs “Q3b” and “Q3c;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3b.”

5

See December 29, 2017 Public File, tab “Q4f;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3d.”

6

See December 29, 2017 Public File, tab “Q4a.”

7

See December 29, 2017 Public File, tabs “Q4b,” “Q4b_air,” “Q4b_surface,” “Q4c,” “Q4c_air,” and “Q4c_surface;” Docket No. ACR2016, 

December 28, 2017 Public File, tabs “Q3c,” “Q3c_air,” and “Q3c_surface.”

8

See December 29, 2017 Public File, tab “Q4e.”

9

See id., tab “Q5b;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3e.”
Docket No. ACR2017 Appendix B

 Page 7 of 14

b. The national level, area level, and district level percentage of First-Class 

Mail Single-Piece Letters/Postcards that are classified as destination 

processing failures (root cause at destination).10

6. Delivery/Last Mile:

a. The national level, area level, and district level of TTMS aggregate 

estimates of First-Class Mail Single-Piece Letters/Postcards with 

Delivery/Last Mile failures reported.

11

b. The national level, area level, and district level volume and percentage of 

First-Class Mail Single-Piece Letters/Postcards subject to the 2-Day or the 

3-5-Day service standards.12

The Commission expects that the Postal Service will provide this data and information 

consistent with the methodology used in Docket Nos. ACR2015, ACR2016, and ACR2017 and 

use an Excel spreadsheet format, if practicable. If the Postal Service cannot provide responsive 

information at the requested level of granularity, then responsive information should be 

provided at the most practicable level of granularity, along with a narrative identifying and 

explaining the level of granularity provided in the response. The Postal Service is encouraged 

to file a motion for clarification under 39 C.F.R. § 3001.21(a) in Docket No. ACR2017 should 

clarification be necessary.

Furthermore, service performance results for First-Class Mail Flats continue to fall 

substantially short of annual performance targets. Pending Docket No. RM2018-1 is 

considering the development of reporting requirements related to flats operational cost and 

service issues. FY 2017 ACD, Chapter 5 at 145-148.

Marketing Mail Service Performance:

 The Commission finds that the Postal Service has met its service performance targets 

for USPS Marketing Mail Letters, USPS Marketing Mail Carrier Route, USPS Marketing 

Mail Parcels, and USPS Marketing Mail High Density and Saturation Letters. The 

Commission expects that service performance results for these products will continue 

to meet or exceed the FY 2018 on-time performance target. If the service performance 

results for these products do not continue to meet or exceed the target in FY 2018, the 

Postal Service shall include a detailed and product-specific plan in its FY 2018 ACR for 

how service performance will be improved.

 

10 See Responses to CHIR No. 11, question 6.

11 See December 29, 2017 Public File, tab “Q6a;” Docket No. ACR2016, December 28, 2017 Public File, tab “Q3f.”

12 See December 29, 2017 Public File, tab “Q6b.”
Docket No. ACR2017 Appendix B

 Page 8 of 14

The Commission directs the Postal Service to apply its data leveraging techniques to 

improve service performance for the USPS Marketing Mail products that failed to meet 

the applicable annual service performance targets.

The Commission expects improvement in service performance results for USPS 

Marketing Mail Every Door Direct Mail—Retail and USPS Marketing Mail High Density 

and Saturation Flats/Parcels. If the Postal Service does not maintain or improve its 

service performance results for these products in FY 2018, the Postal Service shall 

include a detailed and product-specific plan in its FY 2018 ACR for how service 

performance will be improved.

FY 2017 USPS Marketing Mail Flats service performance results declined from the level 

reported in FY 2016. Moreover, USPS Marketing Mail Flats service performance results 

continued to fall substantially short of intended annual performance targets. Pending 

Docket No. RM2018-1 is considering the development of reporting requirements 

related to flats operational cost and service issues. FY 2017 ACD, Chapter 5 at 151.

Periodicals Service Performance:

 This was the fifth consecutive year that Periodicals did not meet its service 

performance targets. In-County and Outside County Periodicals service performance 

results continued to fall substantially short of performance targets. The Commission 

directs the Postal Service to apply its data leveraging techniques to improve 

Periodicals service performance. Pending Docket No. RM2018-1 is considering the 

development of reporting requirements related to flats operational cost and service 

issues. FY 2017 ACD, Chapter 5 at 153.

Package Services Service Performance:

 Media Mail/Library Mail and BPM Parcels service performance results continue to 

exceed the Postal Service’s annual service performance targets. BPM Flats service 

performance results were substantially below other Package Services products and the 

applicable percentage on-time service performance target for the sixth consecutive 

year. The Commission directs the Postal Service to apply its data leveraging techniques 

to improve BPM Flats service performance. Pending Docket No. RM2018-1 is 

considering the development of reporting requirements related to flats operational 

cost and service issues. FY 2017 ACD, Chapter 5 at 156.

Special Services Service Performance:

 The Postal Service exceeded service performance targets for all reported Special 

Services products, except for Post Office Box Service, which was near its service 

performance target. The Commission expects the service performance results for Post 

Office Box Service to improve in FY 2018. If Post Office Box Service does not achieve its 
Docket No. ACR2017 Appendix B

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service performance target in FY 2018, the Postal Service shall include in its FY 2018 

ACR an evaluation of the efficacy of the six planned actions identified in its FY 2017 

ACR and a detailed plan for how this product’s results will be improved. FY 2017 ACD, 

Chapter 5 at 158.

Post Office Suspensions: 

 For these reasons, the Commission finds that the Postal Service made significant 

progress in reducing the number of suspended post offices during FY 2017. The 

Commission also finds that the Postal Service complied with the Commission’s 

directives in the FY 2016 ACD to significantly reduce the number of suspended post 

offices, file quarterly updates on suspended post offices, and explain why the Postal 

Service was unable to meet the FY 2017 timeline for resolving suspended post offices.

See FY 2016 ACD at 151. The Commission appreciates that the Postal Service filed 

quarterly suspension updates on time and also proposed a timeline for resolving the 

remaining suspended post offices in FY 2018 and FY 2019. FY 2017 ACD, Chapter 5 at 

164.

Customer Satisfaction:

 The Commission directs the Postal Service to provide an analysis in the FY 2018 ACR 

and explain why large business customer satisfaction declined between FY 2015 and 

FY 2017. The Postal Service must also discuss the reasons for any further declines in 

customer satisfaction for residential, small/medium business, and large business 

customers.

The Commission finds that the Postal Service should take appropriate steps to improve 

customer satisfaction with Market Dominant products for all customers as outlined in 

the FY 2017 ACR. The Commission recommends that the Postal Service monitor the 

areas identified by the Public Representative to ensure that these concerns are 

addressed in FY 2018. In the FY 2018 ACR, the Postal Service must describe actions 

taken to improve customer satisfaction in FY 2018 and explain whether actions were 

effective. FY ACD, Chapter 5 at 171.

STATUS OF KEY COMMISSION FINDINGS AND DIRECTIVES REQUIRING POSTAL 

SERVICE ACTION FOR FUTURE ANNUAL COMPLIANCE REPORTS (FY 2016 ACD) 

Periodicals Pricing Efficiency: 

 The Commission directs the Postal Service to include an updated version of the 120-

day Report in its FY 2017 ACR. The report must include an analysis of how the removal 

of FSS pricing in Docket No. R2017-1 impacted the cost, contribution, and revenue of 
Docket No. ACR2017 Appendix B

 Page 10 of 14

Periodicals in FY 2017 and whether the removal improved the efficiency of Periodicals 

pricing in FY 2017. FY 2016 ACD, Chapter 2 at 23. 

 In the FY 2017 ACD, the Commission finds that the Postal Service 

meaningfully responds to the Commission’s directive. In the Periodicals 

Pricing Report, the Postal Service provided a robust narrative and 

workpapers containing quantitative analyses. FY 2017 ACD, Chapter 2 at 24.

Special Services: 

 The Postal Service must investigate the accuracy of the incremental costing method 

with respect to mail processing costs attributed to Money Orders. In future Market 

Dominant price adjustments, the Postal Service shall improve cost coverage through 

above-average price increases for this product until such time that cost coverage 

reaches 100 percent of attributable costs. FY 2016 ACD, Chapter 3 at 61.



 The Postal Service’s investigation “determined that incremental costs had 

been overstated” and that “Money Orders would have covered its costs in FY 

2017, except for another costing adjustment” that attributed debit card fees 

to Money Orders. FY 2017 ACR at 45. The Commission directs the Postal 

Service to continue to improve the accuracy of costing for Money Orders in 

FY 2018. FY 2017 ACD, Chapter 3 at 64.

 The Commission finds that FY 2016 revenue for COD was not sufficient to cover 

attributable cost. The Commission recognizes the difficulty of generating accurate 

costs for products with low volume and the statistical variation in small sample sizes. 

The Postal Service shall report in the FY 2017 ACR on the number of In-Office Cost 

System (IOCS) tallies for the COD product and include the confidence interval for the 

cost coverage. FY 2016 ACD, Chapter 3 at 62.

 The Postal Service provided this information in FY 2017 ACR and cost 

coverage was above 100 percent. 

 The Commission finds that FY 2016 revenue for Stamped Envelopes was not sufficient 

to cover attributable cost. If the Postal Service deems it appropriate to include 

premium options and shipping fees with Stamped Envelopes, it should realign its 

revenue and cost calculations for Stamped Envelopes. The Postal Service must improve 

the product’s cost coverage through realignment or above-average price increases in 

future Market Dominant price adjustments until such time that cost coverage reaches 

100 percent of attributable costs. FY 2016 ACD, Chapter 3 at 63.

 The cost coverage for Stamped Envelopes was above 100 percent in FY 2017.
Docket No. ACR2017 Appendix B

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ICRA:

 The Postal Service used a methodology for the ICRA that was not approved by the 

Commission. If the Postal Service intends to use this methodology in its FY 2017 ACR, it 

should file the proposed methodology in a rulemaking proceeding.

Additionally, such filing should include a discussion of the following: 

1. The Postal Service’s ability to disaggregate the international mail cost pools 

between Market Dominant and Competitive products for the incremental cost 

calculation

2. The accuracy of and potential improvement to the costing system for International 

Mail, specifically addressing the following points: 

a. The availability of International Service Center (ISC)-level Management 

Operating Data System data 

b. Machine productivity at ISC versus non-ISC facilities 

c. The proportion of sacked versus non-sacked mail arriving at ISCs

d. The proportion of properly labeled versus improperly labeled 

mail arriving at ISCs

e. The number of IOCS tallies for International Mail products

FY 2016 ACD, Chapter 3 at 65.

 The Postal Service proposed a new methodology for the ICRA in Docket 

No. RM2017-6. The Postal Service also provided updates on the items 

discussed in the directive. The Commission approved a new methodology 

for the ICRA at the conclusion of Docket No. RM2017-6.

Inbound Letter Post:

 The Commission finds that FY 2016 revenue for Inbound Letter Post was not sufficient 

to cover attributable cost. The Commission’s directive in section III.8.a above with 

respect to the ICRA is intended to address costing issues with Inbound Letter Post. In

addition, the Commission recommends that the Postal Service continue to pursue 

compensatory terminal dues in the UPU and to pursue bilateral agreements that 

contain Inbound Letter Post rates that are more compensatory than UPU terminal 

dues. FY 2016 ACD, Chapter 3 at 67.
Docket No. ACR2017 Appendix B

 Page 12 of 14

 The Postal Service has continued to pursue more compensatory bilateral 

agreements. However, the cost coverage of Inbound Letter Post declined in 

FY 2017.

 The Commission directs the Postal Service to provide a report on Inbound Letter Post 

service performance as part of the FY 2017 ACR. This report shall include monthly 

service performance reports for Inbound Letter Post, aggregations of weekly failure 

reports, as well as an analysis of the failures and steps being taken to improve service 

performance. FY 2016 ACD, Chapter 3 at 68.

 The Postal Service provided the requested Service Performance data in the 

FY 2017 ACR.

International NSAs:

 The Commission finds that the Inbound Market Dominant Multi-Service Agreements 

with Foreign Postal Operators 1 and Inbound Market Dominant Exprès Service 

Agreement 1 products satisfy 39 U.S.C. § 3622. The Commission directs the Postal 

Service, in future ACR filings, to provide financial documentation to demonstrate that 

noncompensatory bilateral agreements improve the net financial position of the Postal 

Service over UPU default terminal dues rates. FY 2016 ACD, Chapter 3 at 69. 

 The Postal Service provided this information in the FY 2017 ICRA.

International Ancillary Services:

 The Commission finds that International Ancillary Services covered its cost as a whole, 

but that Inbound Registered Mail failed to cover its cost. The Commission urges the 

Postal Service to promote greater participation by foreign postal operators in the 

Inbound Market Dominant Registered Service Agreement 1, which provides more 

compensatory prices for Inbound Registered Mail from participating foreign postal 

operators. FY 2016 ACD, Chapter 3 at 70.

 More countries have entered into the Registered Services Agreement, 

although Registered Mail remains noncompensatory.

PHI NSA:

 The Commission finds that the PHI NSA did not meet the criteria of 39 U.S.C. § 

3622(c)(10)(A) in Contract Year 2. However, continuation of the contract may help 

offset the negative contribution from Contract Year 2. The Postal Service shall report 

on its forecast for the remainder of the PHI NSA within 90 days of the issuance of this 

ACD. The report shall include an updated estimate of PHI volume and any amendments 

to the contract. FY 2016 ACD, Chapter 3 at 74.
Docket No. ACR2017 Appendix B

 Page 13 of 14

 The Postal Service responded in a timely manner on June 26, 2017.13 The 

Postal Service suspended the PHI NSA on December 8, 2017.14

Parcel Return Service: 

 In FY 2016, every Competitive domestic product with rates of general applicability, 

except Parcel Return Service, covered its attributable cost and thereby satisfied the 

statutory requirements of 39 U.S.C. § 3633(a)(2). The Commission directs the Postal 

Service to report within 90 days on the results of its investigation into the Parcel 

Return Service cost estimates in FY 2016. The Postal Service must discuss the 

corrective actions that it has taken and plans to take to improve cost coverage. FY 

2016 ACD, Chapter 4 at 80.

 The Postal Service provided a detailed discussion of the issues with the nonNSA Parcel Return Service (PRS) in its Second Response to ACD 2016. All 

Competitive domestic products with rates of general applicability covered 

attributable cost in FY 2017. FY 2017 ACD, Chapter 4 at 83.

Competitive NSAs: 

 The Commission finds that Priority Mail Contract 70, Priority Mail Contract 108, 

Priority Mail Contract 109, Priority Mail Contract 128, Priority Mail Contract 135, 

Priority Mail Contract 150, Priority Mail Contract 160, Priority Mail Contract 166, 

Priority Mail Contract 169, Priority Mail Contract 183, Priority Mail Contract 214, 

Priority Mail Contract 228, and Parcel Return Service Contract 10 were not in 

compliance with 39 U.S.C. § 3633(a)(2) in FY 2016. The Commission directs the Postal 

Service to report within 30 days on the result of the Postal Service’s renegotiation 

efforts and evaluations relating to Priority Mail Contract 150, Priority Mail Contract 

160, and Parcel Return Service Contract 10. The Postal Service shall discuss the 

corrective actions taken or the actions the Postal Service plans to take to improve cost 

coverage. FY 2016 ACD, Chapter 4 at 82.

 The Postal Service provided a detailed discussion of its actions in its First 

Response to the ACD.15 Of these NSAs, those that were active in FY 2017 

covered costs.

 

13 Docket No. ACR2016, Second Response of the United States Postal Service to Commission Requests for Additional Information in the FY 2016 

Annual Compliance Determination, June 26, 2017.

14 See Docket Nos. MC2014-21 and R2014-6, Notice of the United States Postal Service of Temporary Suspension of Agreement, December 8, 

2017.

15 Docket No. ACR2016, First Response of the United States Postal Service to Commission Requests for Additional Information in the FY 2016 

Annual Compliance Determination, April 27, 2017.
Docket No. ACR2017 Appendix B

 Page 14 of 14

 The Commission is required to review each NSA product to determine compliance with 

39 U.S.C. § 3633(a)(2). Therefore, for those Competitive domestic NSAs that are not 

active or are paying published rates, the Postal Service should file a notice of 

termination so that any such contracts are removed from the competitive product 

list.243 Furthermore, the Commission directs the Postal Service to identify each NSA 

product that had no mailpieces shipped under the contract when it files future ACRs. 

FY 2016 ACD, Chapter 4 at 83.

 In Library Reference USPS–FY17–NP27, the Postal Service filed a list of NSAs 

that had no mailpieces in FY 2017.16 The Postal Service also explained why 

each listed NSA lacked volume.

IMTS—Inbound:

 The Commission finds that IMTS—Inbound was not in compliance with 39 U.S.C. § 

3633(a)(2) in FY 2016. The Commission recommends the Postal Service request a 

delegation of authority from the Department of State under the Circular 175 process 

to terminate or renegotiate the agreements that comprise the IMTS—Inbound 

product. FY 2016 ACD, Chapter 4 at 84.

 The Postal Service did not make this request in FY 2017.

 

16 Library Reference USPS–FY17–NP27, December 29, 2017, Excel file “NSAsWNoVolume_FY17.xlsx.”
Docket No. ACR2017 Appendix C

 Page 1 of 2

Appendix C: Commenters

2017 Annual Compliance Determination

Commenter Comment Citation Citation Short Form

Amazon.com Services, Inc. 

(Amazon)

Reply Comments of Amazon.com Services, 

Inc., February 12, 2018 Amazon Reply Comments

American Catalog Mailers 

Association (ACMA)

Initial Comments of the American Catalog 

Mailers Association (ACMA), February 1, 

2018

ACMA Comments

American Consumer Institute 

Center for Citizen Research (ACI)

Comments of American Consumer Institute 

Center for Citizen Research Regarding Docket 

No. ACR2017 Submitted to the Postal 

Regulatory Commission, January 30, 2018

ACI Comments

Association for Postal Commerce 

(PostCom)

Comments of the Association for Postal 

Commerce, February 1, 2018 PostCom Comments

Frontiers of Freedom Reply Comments by Frontiers of Freedom, 

February 1, 2018

Frontiers of Freedom 

Comments

Greeting Card Association (GCA) Reply Comments of the Greeting Card 

Association, February 12, 2018 GCA Reply Comments

National Postal Policy Council 

(NPPC); National Association of 

Presort Mailers (NAPM); Major 

Mailers Association (MMA)

(collectively, First-Class Business 

Mailers)

Comments of the National Postal Policy 

Council, the National Association of Presort 

Mailers, and the Major Mailers Association, 

February 1, 2018

First-Class Business Mailers

Comments

National Taxpayers Union (NTU) Comments of: Pete Sepp, President, National 

Taxpayers Union, February 1, 2018 NTU Comments
Docket No. ACR2017 Appendix C

 Page 2 of 2

Commenter Comment Citation Citation Short Form

Parcel Shippers Association (PSA) 

and American Catalog Mailers 

Association, Inc. (ACMA) (jointly, 

PSA & ACMA)

Reply Comments of Parcel Shippers 

Association and American Catalog Mailers 

Association, Inc., February 12, 2018

PSA & ACMA Reply Comments

Pitney Bowes Inc. (Pitney Bowes) Comments of Pitney Bowes Inc., February 1, 

2018 Pitney Bowes Comments

Public Representative (PR) Public Representative Comments, February 1, 

2018 PR Comments

Small Business & Entrepreneurship 

Council (SBE Council)

Comments Related to Inbound Letter Post, 

February 20, 2018 SBE Council Comments

United Parcel Service, Inc. (UPS)

Initial Comments of United Parcel Service, 

Inc. on United States Postal Service’s Annual 

Compliance Report for Fiscal Year 2017, 

February 1, 2018

UPS Comments

United States Postal Service (Postal 

Service)

Reply Comments of the United States Postal 

Service, February 12, 2018

Postal Service Reply 

Comments

United States Postal Service (Postal 

Service)

Reply Comments of the United States Postal 

Service on Inbound Letter Post, February 27, 

2018

Postal Service Reply 

Comments on Inbound Letter 

Post

Valpak Franchise Association, Inc. 

(Valpak)

The Valpak Franchise Association, Inc. Reply 

Comments on the United States Postal 

Service FY 2017 Annual Compliance Report, 

February 12, 2018

Valpak Reply Comments
Docket No. ACR2017 Appendix D

 Page 1 of 2

Appendix D: Acronyms and 

Abbreviations

Acronym/Abbreviation Meaning

AADC Automated area distribution center

ACD Annual Compliance Determination

ACMA American Catalog Mailer Association

ACR Annual Compliance Report

ADC Area distribution center

AFSM Automated Flats Sorting Machine

APWU American Postal Workers Union

BPM Bound Printed Matter

BSN Business Service Network

CAGU Citizens Against Government Waste

Carlson Douglas F. Carlson

CEM Customer Experience Measurement

C.F.R. Code of Federal Regulations

CHIR Chairman’s Information Request 

CI Customer Insights

CPI Consumer price index

CPI-U Consumer price index for all urban consumers 

CPO Community Post Office

CPU Contract postal unit

CRA Cost and Revenue Analysis

DDU Destination delivery unit

DFSS Destination Flats Sequencing System

Discover Discover Financial Services

DNDC Destination network distribution center

DSCF Destination sectional center facility

ECSI Educational, cultural, scientific or informational (value)

EMS Express Mail Service

EPG E-Parcel Group

EXFC External First-Class Measurement

FedEx Federal Express Corporation

FSS Flats Sequencing System

FY Fiscal Year

GCA Greeting Card Association

GEPS Global Expedited Package Service

GREPS Global Reseller Expedited Package Service
Docket No. ACR2017 Appendix D

 Page 2 of 2

Acronym/Abbreviation Meaning

ICRA International Cost and Revenue Analysis

iMAPS Intelligent Mail Accuracy and Performance System

IMb Intelligent Mail barcode

IMMS International Mail Measurement System

IMTS-Inbound International Money Transfer Service-Inbound

IMTS-Outbound International Money Transfer Service-Outbound

Mixed ADC Mixed area distribution center

MPA & ANM Magazine Publishers of America, Inc., and Alliance of Nonprofit Mailers

IOCS In-Office Cost System

NAPM National Association of Presort Mailers

NDC Network distribution center

NPPC National Postal Policy Council

NSA Negotiated service agreement

NTU National Taxpayers Union

PAEA Postal Accountability and Enhancement Act

PHI PHI Acquisitions, Inc.

Pitney Bowes Pitney Bowes Inc.

POS Point of Sale

PostCom Association for Postal Commerce

PTS Product Tracking System

PR Public Representative

Progressive Progressive Direct Mail Advertising

QBRM Qualified Business Reply Mail

SASP Seamless Acceptance and Service Performance

SFS Stamp Fulfillment Services

TPA Taxpayers Protection Alliance

UFSM Upgraded Flats Sorting Machine

UHCC Utah Hispanic Chamber of Commerce

U.S.C. United States Code

UPS United States Parcel Service

UPU Universal Postal Union 

Valassis Valassis Direct Mail, Inc.

Valpak Valpak Direct Marketing Systems, Inc. and Valpak Dealers’ Association, Inc.

VPO Village Post Office
HELP US IMPROVE THIS REPORT

In connection with Section 2 of the Plain Writing Act of 2010, the Postal 

Regulatory Commission is committed to providing communications that are 

valuable to our readers.

We would like to hear your comments on what you find useful about our Annual 

Compliance Determination report and how we can improve its readability and 

value.

Please contact the Commission’s Office of Public Affairs and Government 

Relations to provide your feedback.

Postal Regulatory Commission

Office of Public Affairs and Government Relations

901 New York Avenue, NW

Suite 200

Washington, DC 20268

Phone: 202-789-6800

Fax: 202-789-6891

Email: PRC-PAGR@prc.gov