2023-2028 

Strategic Plan

Contents

Message from the Chairman

Introduction

About the Postal Regulatory Commission

Snapshot of the Commission’s Role

Leadership

Organization

Foresight and Scenario Planning

2023-2028 Strategic Plan

2023-2028 Strategic Goals

Strategic Goal 1 – Anticipate and adapt to an evolving 

postal system through a responsive and trusted regulatory 

framework.

Strategic Goal 2 – Enhance and expand communication of 

accurate and relevant information to postal stakeholders, 

policymakers, and the general public.

Strategic Goal 3 – Develop an internal infrastructure to 

support and strengthen our regulatory capabilities through 

adaptive policies, efficient processes, and scalable platforms.

Strategic Goal 4 – Build an organization that will attract, 

develop, and retain a diverse workforce of experts.

Strategy Implementation

Strategy Updates

Conclusion

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2023-2028 Strategic Plan

Postal Regulatory Commission 1

Message from 

the Chairman

The postal system continues to play a central role in the economy and daily 

lives of hundreds of millions of stakeholders in every corner of America. The 

Postal Regulatory Commission is here, as it has been since 1971, to ensure 

the transparency and accountability of this vital system. Our new Strategic 

Plan for 2023-2028 leverages strategic foresight methodology. Working 

with Toffler Associates, a strategic foresight firm, the Commission analyzed 

multiple scenarios to take into account a wide range of possibilities for 

the future of the postal system and the Commission as its regulator. The 

environment enveloping the Postal Service, the Commission, and their 

stakeholders is being shaped by a number of factors:

• Economic and operational challenges posed by a long-term decline in 

letter mail volume

• Opportunities and challenges created by the increased importance of 

e-commerce

• The Postal Service Reform Act of 2022, which provided critical relief for 

the Postal Service; added measures aimed at holding the Postal Service 

accountable, such as a new service dashboard and Commission reports 

on longstanding service and operational problems; and removed the 

Commission from the appropriations process to match the budgetary 

treatment of the Postal Service

• The impact of technological innovations on the efficiency of the postal 

network, service quality, and transparency

The Strategic Plan takes into account the developments shaped by these 

key drivers and refines the role of the Commission in addressing them 

proactively. Consistent with the state of the postal system as a whole, the 

Commission’s strategy is marked by both continuity and progress. As the 

Commission enters the 2023 – 2028 period, we will be prepared to address 

multiple potential scenarios using an approach that is highly analytical, 

data-driven, and objective. 

I look forward to working with my distinguished colleagues and the 

Commission’s skilled, experienced, and multidisciplinary career staff to 

implement this plan.

Michael M. Kubayanda

Chairman

Postal Regulatory Commission

December 2022
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Postal Regulatory Commission 2

Who We Are

What We Do

The Postal Regulatory Commission (Commission) is an 

independent federal agency that regulates the United States 

Postal Service (Postal Service). The Commission ensures 

transparency and accountability of the Postal Service by providing 

objective, accurate, and timely regulatory analyses and decisions.

The Commission has exercised regulatory oversight over the Postal 

Service since its creation by the Postal Reorganization Act of 1970, 

with expanded responsibilities under the Postal Accountability and 

Enhancement Act of 2006. The Postal Service Reform Act of 2022 

augmented the Commission’s responsibilities in certain areas. 

Ensure the Postal Service complies with laws regarding the 

services that it offers

Establish and oversee the ratemaking system for the Postal 

Service’s non-competitive offerings

Provide transparency and expert guidance on the Postal 

Service’s finances, delivery speed, efficiency, and other 

aspects of postal service quality and operations

Contribute to strong postal policy within the Commission’s 

jurisdiction

Ensure that the Postal Service complies with pricing rules 

for its competitive offerings aimed at ensuring a level, 

competitive playing field

About the Postal 

Regulatory Commission

Introduction

How We Regulate Develop, amend, and enforce regulations and guidance that the 

Postal Service must follow to meet relevant statutory and other 

legal criteria 

Optimize stakeholder access and engagement through open, 

fair, and clearly defined regulatory processes

Monitor the postal system and anticipate changes to enhance 

agility, responsiveness, and effectiveness of Commission 

decisions

Provide impartial, technically rigorous, and timely analyses and 

opinions based on merit

Present data in an accessible and informative way to enhance 

understanding of Postal Service actions
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Postal Regulatory Commission 3

How We Operate

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Postal Regulatory Commission 3

Who Are Our 

Stakeholders

Approach our regulatory responsibilities using a 

multidisciplinary, data-driven, and highly analytical 

framework

Enable a collegial, professional, and respectful environment 

for all individuals working for or with the Commission

Cultivate staff expertise to ensure that the Commission is a 

center for excellence in postal regulatory matters 

Embody a spirit of excellent customer service to recipients 

of our analyses and other work, as well as in relationships 

within the Commission

Maintain open lines of communication with the Postal 

Service, Congress, and all other stakeholders

Ensure efficient use of our limited resources

Value integrity and adaptability across changing 

environments

Users of the mail: individual and organizational mailers and 

mail recipients who rely on a stable and universal postal 

system

Entities that support, compete with, analyze, or are impacted 

by the postal system

Congress

Executive Branch policymakers, including the Postal Service 

Board of Governors
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Postal Regulatory Commission 4

Snapshot of the Commission’s Role

The Commission is unique as a regulator: everything we do involves regulation of a single 

entity, the Postal Service. Our role is limited and defined by the responsibilities that Congress 

has given to us. This role frequently generates questions related to the Commission’s scope 

and authorities. The following table provides an overview of the Commission’s role across a 

variety of topics.

The Postal Regulatory 

Commission does...

The Postal Regulatory 

Commission does not...

Regulate and approve postal rates for 

consistency with legal criteria.

Regulate and approve changes, consistent 

with legal criteria, in the services that the 

Postal Service offers.

Hear appeals on whether the Postal Service 

followed proper procedures when closing 

or consolidating post offices.

Advise Postal Service decision-makers 

considering changes that affect postal 

service on a nationwide or substantially 

nationwide level.

Regulate and approve the methods used to 

measure Postal Service costs and service 

performance.

Collect and publish cost and service 

performance data.

Hear complaints about Postal Service 

compliance with certain statutory 

requirements governing rates, service, and 

competition.

Advise the U.S. Department of State on 

treaty matters affecting postal rates and 

services.

Study and report on the value of the Postal 

Service’s universal service obligation and 

postal monopolies.

Analyze and report on the Postal Service’s 

strategic plans and finances.

Set postal rates. 

Within jurisdictional bounds, make business 

or policy decisions about what services the 

Postal Service should offer. 

Make or override Postal Service policy 

decisions about facility closings and 

consolidations.

Make or override operational/network 

decisions, even for major nationwide 

changes.

Make Postal Service leadership decisions, 

including the selection of the Postmaster 

General.

Determine Postal Service compensation, 

benefits, organizational structure, or other 

personnel-related matters.

Make U.S. foreign policy regarding 

international postal affairs.

Change the statutory scope of the Postal 

Service’s universal service obligation or 

postal monopolies.

Make, approve, or modify the Postal 

Service’s strategic and financial plans.

Oversee postal law enforcement by the 

Postal Inspection Service.

Oversee the Postal Service’s purchasing, 

leasing, or sustainability initiatives. 
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Postal Regulatory Commission 5

The Commission is composed of five Commissioners, each of whom 

is appointed by the President, by and with the advice and consent 

of the Senate, for a term of six years. A Commissioner may continue 

to serve after the expiration of his or her term for up to one year or 

until a successor is confirmed. Not more than three Commissioners 

may be adherents of the same political party. The President 

designates one of the Commissioners to serve as Chairman. The 

Chairman directs all the executive and administrative functions of 

the Commission.

Leadership

From left to right: Vice Chairman Ann 

C. Fisher, Commissioner Robert G. Taub, 

Commissioner Ashley E. Poling, Chairman 

Michael M. Kubayanda, and Commissioner 

Mark Acton
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Postal Regulatory Commission 6

Assisting the Commission is a staff with expertise in law, economics, finance, statistics, 

and cost accounting. The Commission is currently organized into four operating offices:

Office of Accountability & Compliance

The Office of Accountability & Compliance is 

responsible for technical analysis and formulating 

policy recommendations for the Commission on 

domestic and international matters.

Office of the General Counsel

The Office of the General Counsel ensures the 

Commission fulfills its statutory and regulatory 

obligations by providing legal guidance on matters 

involving the Commission’s responsibilities. 

Office of Public Affairs & 

Government Relations

The Office of Public Affairs & Government 

Relations facilitates prompt and responsive 

communications with the public, Congress, 

federal agencies, the Postal Service, and the 

media.

Office of the Secretary & Administration

The Office of the Secretary & Administration 

records the Commission’s official actions; manages 

the Commission’s records, human resources, 

budget and accounting, and information 

technology; and provides other support services.

Organization
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Postal Regulatory Commission 7

Foresight and 

Scenario Planning

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Postal Regulatory Commission 7

The Commission’s recognition and anticipation of 

a potentially significant degree of change to the 

postal system and the Postal Service during the 

strategic planning period led to a foresight-based 

strategic planning process that explored multiple 

future scenarios.

To support a foresight-based strategic planning 

effort, the Commission engaged Toffler Associates, 

a strategic advisory firm that assists civilian and 

defense government organizations and commercial 

entities with scenario planning.
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Postal Regulatory Commission 8

Using scenario planning during strategy development helps an organization prepare for a 

variety of future scenarios rather than develop a strategic plan based on one predicted future. 

The process begins with an external perspective of the changes, trends, and disruptions that 

could occur across the entire postal system environment, then examines the impact of those 

changes on the Commission. This approach ensures the Strategic Plan is resilient to both 

probable and plausible events outside of the Commission’s control.

Scenario Planning Approach

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Postal Regulatory Commission 8

The result of the scenario planning exercise was an appreciation for the range 

of plausible situations that may emerge and the degree of change in the 

postal system over the 2023-2028 strategic planning period. There was also 

recognition that, in all scenarios, there will likely be meaningful change in the 

postal system over the next five years, requiring a commensurate change in 

how the Commission should operate as a regulator.

Insights from the scenario planning exercise then informed the development 

of a resilient 2023-2028 Strategic Plan designed to be applicable, relevant, and 

impactful across a variety of potential future scenarios.

Results

Insights
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Postal Regulatory Commission 9

In recognition that the future may be very different than the past, the 

Commission has developed a Strategic Plan that is designed to support the 

evolution of the Commission as a relevant and adaptive regulatory agency. 

There are three core elements 

that define the Strategic Plan: 

Strategic Goals 

These are the targeted areas of focus 

for the Commission over the next five 

years to prepare for and adapt to a 

changing postal system.

Strategic Objectives

These provide more specificity on the 

elements within each Strategic Goal, 

and they inform the actions needed 

to achieve the Goal.

Performance Indicators

These are the primary measures to 

assess progress of each Objective, 

which then support attainment of 

their respective Goal. 

Together, 

these elements 

provide the 

strategic focus 

and priorities for 

the Commission.

2023-2028 

Strategic Plan
2023-2028 Strategic Plan

Postal Regulatory Commission 10

2023-2028 Strategic Goals

The four Strategic Goals 

balance an external focus on 

adapting the Commission’s 

regulatory framework 

to a transforming Postal 

Service with an internal 

focus on strengthening the 

Commission’s capabilities to 

be an effective and efficient 

regulator through that 

transformation.

Anticipate and adapt to 

an evolving postal system 

through a responsive 

and trusted regulatory 

framework.

Enhance and expand 

communication of accurate 

and relevant information 

to postal stakeholders, 

policymakers, and the 

general public.

Develop an internal 

infrastructure to support and 

strengthen our regulatory 

capabilities through 

adaptive policies, efficient 

processes, and scalable 

platforms.

Build an organization that 

will attract, develop, and 

retain a diverse workforce 

of experts.

Strategic 

Goal

Strategic 

Goal

Strategic 

Goal

Strategic 

Goal

1

2

3

4
2023-2028 Strategic Plan

Postal Regulatory Commission

Strategic 

Goal 1

11

STRATEGIC 

OBJECTIVE

Strategic 

Goal

STRATEGIC 

OBJECTIVE

STRATEGIC 

OBJECTIVE

STRATEGIC 

OBJECTIVE

Increase, refine, and curate publicly-accessible postal data 

to improve the quality of analysis by the Commission and 

external stakeholders.

Performance Indicators:

• Time from when data is available to the Commission 

to when it is available to stakeholders through reports, 

dashboards, or downloadable files

• Percentage of postal data held by the Commission 

made available to stakeholders through reports, 

dashboards, and other visualizations

• Stakeholder input on accessibility of data

Handle routine matters faster without compromising 

quality.

Performance Indicators:

• Established processes, roles, and capabilities to 

categorize cases and identify those that are routine

• Time from when a routine case is submitted to when it 

is completed

1.3

1.4

Determine potential responses to emerging issues, aligned 

with limitations set by the Commission’s legal authority.

Performance Indicator: 

• Established processes, roles, and capabilities to 

review and facilitate Commission-wide consensus on 

anticipated issues

1.2

Monitor for emerging issues to consider 

regulatory actions or exploratory processes 

ahead of postal system changes.

Performance Indicator:

• Established processes, roles, and 

capabilities that allow the Commission 

to anticipate potential issues

1.1

Anticipate and adapt to an evolving 

postal system through a responsive 1 and trusted regulatory framework.
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Postal Regulatory Commission 12

Strategic 

Goal

STRATEGIC 

OBJECTIVE

STRATEGIC 

OBJECTIVE

STRATEGIC 

OBJECTIVE

Cultivate and foster relationships with interagency and non-governmental partners

Performance Indicators: 

• Relationships maintained with primary interagency partners

• Relationships maintained with primary nongovernmental partners

2.3

2.2

Engage with stakeholders through understandable 

and accessible work products using the most 

effective communication methods.

Performance Indicators: 

• Level of stakeholder engagement across 

channels

• Stakeholder use of communications

Identify and monitor the Commission’s key 

stakeholders and their content needs and 

communication preferences.

Performance Indicators:

• Updated communications plan

• Established processes, roles, and capabilities 

to monitor stakeholder content needs and 

communications preferences

2.1

Enhance and expand communication 

of accurate and relevant information to 

postal stakeholders, policymakers, and 2 the general public.
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Postal Regulatory Commission 13

Strategic 

Goal

STRATEGIC 

OBJECTIVE

Utilize technology and data infrastructure to support 

scalable, informative, and efficient operations.

Performance Indicators: 

• Standardized tools and software for functions 

and processes

• Operational process and employee output 

efficiency

• Established foundational data infrastructure to 

capture, store, and secure data

• Established data sharing agreements between 

the Commission and the Postal Service

3.3

STRATEGIC 

OBJECTIVE

Determine the acquisition requirements for developing 

and operating the internal infrastructure necessary to 

support operational and regulatory needs.

Performance Indicators: 

• Established acquisition requirements and 

timeframes for needed capabilities

• Established hiring plan for development and 

implementation support

• Benchmarks of the Commission’s budget to 

comparable government agencies

3.4

STRATEGIC 

OBJECTIVE

Define and improve processes to optimize operational 

and regulatory activities.

Performance Indicator: 

• Established processes, roles, and capabilities 

to consider, develop, update, and communicate 

necessary operational and/or regulatory activities

3.2 STRATEGIC 

OBJECTIVE

Ensure operational policies support an evolving 

postal system and efficient execution of regulatory 

activities.

Performance Indicators: 

• Completed future state operating model 

design

• Established processes, roles, and capabilities, 

where necessary, to develop, review, update, 

store, and communicate operational policies

• Updated and documented operational policies

3.1

Develop an internal infrastructure to 

support and strengthen our regulatory 

capabilities through adaptive policies, 3 efficient processes, and scalable platforms.
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Postal Regulatory Commission 14

Strategic 

Goal

4.4 STRATEGIC 

OBJECTIVE

4.3 STRATEGIC 

OBJECTIVE

Engage with Commission employees by 

providing regular and quality communications 

and facilitating relevant information sharing.

Performance Indicators: 

• Employee satisfaction and engagement

• FEVS scores on communications-related 

questions

Develop and maintain flexible workforce 

plans that meet regulatory, workforce, and 

operational requirements as the Commission 

grows and evolves.

Performance Indicators: 

• Completed organizational assessment to 

determine skill gaps and workforce needs

• Completed short-term and long-term 

workforce plan for each Office

• Established change management 

processes, roles, and capabilities

4.1 STRATEGIC 

OBJECTIVE

Attract an expert and diverse workforce through 

effective recruitment and a positive candidate 

experience.

Performance Indicators: 

• Documented and updated position descriptions

• Documented recruiting plan for Offices or 

positions as appropriate

• Established onboarding guide with preemployment details for hiring officials, 

onboarding plan, and post-onboarding survey

Build an organization that will 

attract, develop, and retain a diverse 4 workforce of experts.

STRATEGIC 

OBJECTIVE

Reinforce an inclusive, engaging, and supportive 

work environment that fosters development 

and retention of world-class experts in postal 

regulation and agency administration.

Performance Indicators: 

• Completed Learning and Development Strategy 

to ensure knowledge, skills, and abilities (KSAs) 

are trained

• Updated training policy to incorporate Learning 

and Development Strategy and plan for ongoing 

employee instructions

• Employee satisfaction and engagement scores 

within the Federal Employee Viewpoint Survey 

(FEVS)

• Employee attrition rates compared to relevant 

benchmarks

• Documented and updated compensation plans

4.2
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Postal Regulatory Commission 15

After the development of the Strategic 

Goals, Strategic Objectives, and Performance 

Indicators, the Commission created a plan to 

execute the strategy and ensure that the 2023-

2028 Strategic Plan evolves with the changes in 

the postal system during those five years.

Performance Indicators, related to the Strategic 

Objectives, are established to specifically 

monitor and assess progress. The Performance 

Indicators are designed to focus on key 

strategic activities; operational metrics will still 

be captured and tracked to monitor ongoing 

Commission operations. The Commission’s 

four operating Offices have the ownership and 

responsibility for executing the actions and 

monitoring Performance Indicators to achieve 

the 2023-2028 Strategic Plan. Their role is to 

prioritize actions, monitor progress, manage 

resources, and ensure collaboration across 

Offices to coordinate interdependencies and 

benefit from inter-Office synergies.

The Commission will report on its progress, 

major accomplishments, and challenges related 

to each Strategic Goal and Performance 

Indicator in its Annual Report to the President 

and Congress. The Annual Report will focus 

on the Commission’s Strategic Goals, thereby 

promoting transparency and alignment of the 

Commission’s activities.

Strategic plans are based on certain assumptions and operating parameters about the external 

environment. Therefore, the Commission will actively monitor changes in the postal system and 

within the Postal Service to determine if changes to the 2023-2028 Strategic Plan are necessary, to 

ensure the Commission’s priorities remain relevant to the external conditions. To accomplish this, the 

Commission will establish an annual strategy review process, emphasizing changes in the external 

environment, to identify meaningful changes that may impact the Commission’s Strategic Plan.

Strategy Implementation

Strategy Updates

With a resilient Strategic Plan, effective assessment of 

progress toward Strategic Goals, and monitoring of the 

external postal system, the Commission is prepared to 

ensure transparency and accountability of the Postal 

Service as the postal system changes and operates 

within an increasingly competitive industry. By being 

at the forefront of the evolution of the world’s largest 

postal system, the Commission’s Strategic Plan reinforces 

its position as an impartial organization that attracts, 

develops, and retains world-class postal expertise.

The amount of change anticipated over the next five 

years requires the Commission to remain firmly focused 

on being an effective and objective regulator that is 

trusted by the American public, policymakers, and all 

interested stakeholders.

Conclusion

2023-2028 Strategic Plan

Postal Regulatory Commission 15
Postal Regulatory Commission

2023 – 2028 Strategic Plan

901 New York Avenue NW, Suite 200

Washington, DC 20268-0001

(202) 789-6800

www.prc.gov