Financial Analysis of 

United States Postal Service

Financial Results and 10-K Statement

Fiscal Year 2018

April 19, 2019

Postal Regulatory Commission

Submitted 4/19/2019 4:21:31 PM

Filing ID: 108855

Accepted 4/19/2019
TABLE OF CONTENTS

Page

CHAPTER I. REPORT OVERVIEW..........................................................................................................1

Financial Changes.......................................................................................................................................... 1

CHAPTER II. POSTAL SERVICE FINANCIAL STATUS ................................................................................5

Introduction .................................................................................................................................................. 5

Analysis of Income Statements..................................................................................................................... 6

 Market Dominant Revenue Compared to Prior Year................................................................................ 9

 Competitive Product Revenue Compared to Prior Year ......................................................................... 11

Expense Analysis as Compared to Prior Year.............................................................................................. 12

 Personnel Expenses as Share of Total Expenses..................................................................................... 13

 Personnel Expenses................................................................................................................................. 14

 Non-Personnel Expenses......................................................................................................................... 20

 Total Factor Productivity ......................................................................................................................... 21

Comparison of Postal Service Actual to Operating Plan............................................................................. 22

Analysis of Balance Sheets.......................................................................................................................... 25

 Assets........................................................................................................................................................ 28

 Liabilities.................................................................................................................................................... 29

Analysis of Statements of Cash Flows......................................................................................................... 30

CHAPTER III. VOLUME, REVENUE, AND COST TRENDS........................................................................32

Overview..................................................................................................................................................... 32

Overall Volume, Revenue, and Cost Trends ............................................................................................... 32

Attributable and Institutional Cost Relationships....................................................................................... 32

Market Dominant Products and Services ................................................................................................... 34

Market Dominant Volume Trends.............................................................................................................. 35

Market Dominant Revenue and Cost Trends.............................................................................................. 36

Competitive Products and Services ............................................................................................................ 37

Market Dominant Volume, Revenue, and Cost Trends by Class ................................................................ 40

First-Class Mail ............................................................................................................................................ 40

 First-Class Mail Letters Compared with FY 2017...................................................................................... 40

 Trends in First-Class Mail Letters ............................................................................................................. 42

 First-Class Mail Flats Compared with FY 2017 ......................................................................................... 44

 Trends in First-Class Mail Flats................................................................................................................. 45

 Other First-Class Mail Compared with FY 2017........................................................................................ 47

USPS Marketing Mail .................................................................................................................................. 48

 USPS Marketing Mail Letters Compared with FY 2017 ............................................................................ 48

 Trends in USPS Marketing Mail Letters.................................................................................................... 49

 USPS Marketing Mail Flats Compared with FY 2017................................................................................ 51

 Trends in USPS Marketing Mail Flats ....................................................................................................... 52

Periodicals................................................................................................................................................... 55

 Periodicals Compared with FY 2017......................................................................................................... 55

 Trends in Periodicals................................................................................................................................ 56

Package Services......................................................................................................................................... 59

 Market Dominant Special Services........................................................................................................... 61

Competitive Volume, Revenue, and Cost by Product................................................................................. 62

 Trends in Competitive Products............................................................................................................... 64
CHAPTER IV. SUSTAINABILITY, LIQUIDITY, ACTIVITY, AND FINANCIAL SOLVENCY ...............................67

Introduction ................................................................................................................................................ 67

Financial Sustainability Analysis.................................................................................................................. 68

 Debt Ratio............................................................................................................................................... 68

 Fixed Asset to Net Worth Ratio.............................................................................................................. 69

 Current Liability Ratio............................................................................................................................. 69

Financial Liquidity Analysis ......................................................................................................................... 70

 Current Ratio .......................................................................................................................................... 70

 Quick Ratio ............................................................................................................................................. 71

 Cash Ratio............................................................................................................................................... 71

 Working Capital Analysis........................................................................................................................ 71

Financial Activity Analysis........................................................................................................................... 72

 Trend Analysis ........................................................................................................................................ 72

Financial Solvency Analysis......................................................................................................................... 76

 Altman Z-Score ....................................................................................................................................... 76

Deconstructing the Altman Z-Score............................................................................................................ 79

 Working Capital to Total Assets .............................................................................................................. 79

 Retained Earnings to Total Assets........................................................................................................... 80

 Earnings to Total Assets .......................................................................................................................... 81

 Capital to Total Liabilities........................................................................................................................ 82

 Shift in Altman Z-Score............................................................................................................................ 83

Appendix A—Fiscal Year 2018 Volume, Revenue, Incremental Cost, and Cost Coverage by Class, Current 

Classification (Products)
FY 2018 Financial Analysis Report - 1 -

Chapter I. Report Overview

Financial Changes

In FY 2018, the Postal Service recorded a net loss from operations1 of $2.1 billion. The net 

loss from operations is largely due to declining Market Dominant volume and higher 

operating expenses. The net operating loss is nearly $748 million more than the FY 2017 

$1.3 billion operating loss. However, when the Non-operating Expenses (NOEs) are 

included,2 the FY 2018 total net loss is $3.9 billion—a decline of $1.2 billion compared to 

FY 2017. This decline results from a $1.8 billion increase in operating expenses and an 

$823 million increase in the non-cash change to workers’ compensation expense, offset by 

a $1 billion increase in operating revenue and a combined $400 million decrease in 

retirement-related expenses.

Figure I-1 shows net income (loss) and net operating income (loss) results for the last 10

years.

Figure I-1

Postal Service Income/(Loss), FY 2008 – FY 2018

($ in Millions)

Source: Postal Service FY 2008 to FY 2018 Forms 10-K and USPS Annual Reports.

These continuing losses have negatively affected the financial position of the Postal Service, 

creating a substantial gap between the Postal Service’s assets and liabilities. During FY 

2018, total assets decreased by $0.7 billion while total liabilities increased by $3.2 billion. 

 

1 Net income or loss from operations is also referred to as net operating income (loss).

2 NOEs include all non-cash workers’ compensation costs, accruals to retirement accounts, and one-time adjustments.

(20,000)

(15,000)

(10,000)

(5,000)

0

5,000

2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Net Income (Loss) ($ in Millions)

Fiscal Year

Net Income (Loss) Net Operating Income (Loss)
FY 2018 Financial Analysis Report - 2 -

At the end of FY 2018 the Postal Service recorded total assets of $26.7 billion and total 

liabilities of $89.3 billion.

Total assets and liabilities are comprised of current and noncurrent portions. Current 

assets are the sum of cash and cash equivalents, receivables, and supplies and 

prepayments, which can be easily converted to cash for financing operations. Non-current 

assets are mainly buildings and equipment and are more difficult to convert to cash in the 

short term. Current liabilities are obligations that will come due within one year while 

noncurrent liabilities are long-term financial obligations. Current liabilities consist largely 

of missed payments for statutorily required prefunding of the Retirement Health Benefits 

Fund (RHBF) and amortization of unfunded RHB obligations, defaulted payments for 

amortization of unfunded CSRS and FERS obligations and short-term borrowing. In FY 

2018 the Postal Service continued to accrue unpaid RHB expenses. At the end of FY 2018 

the unpaid amount, which includes accruals for FY 2012 through FY 2018, amortization 

payments on the unfunded obligation and normal costs, totaled $42.6 billion.

In FY 2018, the Postal Service had current assets of $11.6 billion and current liabilities of 

$69.5 billion. If current assets are insufficient to meet its short-term liabilities the Postal 

Service could have problems paying its creditors in the short term. As seen in Figure I-2, 

the gap between current assets and current liabilities has increased substantially since FY 

2008.

Figure I-2

Current Assets and Liabilities FY 2008 – FY 2018 ($ in Millions)

Source: Postal Service FY 2008 to FY 2018 Forms 10-K and USPS Annual Reports.
FY 2018 Financial Analysis Report - 3 -

The Postal Service’s liquidity continued to improve in FY 2018. For the first time since 

FY 2010, the Postal Service’s cash balance declined by $452 million. However, total 

liquidity continued to improve; for the first time since FY 2011 the Postal Service was able 

to pay down $1.8 billion of its $15 billion debt which contributed to the improvement in 

total liquidity. One reason for the improved liquidity is that the Postal Service has not made 

a payment to the RHBF since FY 2010. In addition, beginning in FY 2017, the Postal Service 

has been required by statute to begin paying the amortization of the unfunded retirement 

benefits for FERS and CSRS. Since FY 2017 the Postal Service has incurred FERS unfunded 

liability amortization expenses of $2 billion and CSRS unfunded liability expenses of $3.2 

billion. The Postal Service has not made the required payments for these unfunded pension 

liabilities.

The FY 2018 Integrated Financial Plan (IFP) included a capital investment budget of $2.1 

billion for facilities, mail processing equipment, vehicles, and information technology.3

Significant highlights of FY 2018 include:

 Consumer price index (CPI)-based price increases were not enough to offset 

revenue lost from declining volumes.

 Total Market Dominant revenue decreased 2.2 percent compared to FY 2017.

 Market Dominant products average unit revenue and average unit attributable cost 

remained unchanged at 0.33 cents and 0.20 cents.

 While volumes for Competitive products continued to grow in FY 2018, the rate of 

increase was lower than in recent years. Competitive volume increased

approximately 11 percent in FY 2018 compared to 13.4 percent in FY 2017, 13.6 

percent in FY 2016 and 16.3 percent in FY 2015.

 Competitive products attributable cost grew 11.4 percent and contribution to 

institutional cost grew 11.6 percent.

 Competitive products share of total Postal Service revenue, attributable cost, and 

contribution to institutional cost has nearly tripled since FY 2007.

 Total Factor Productivity (TFP) increased slightly compared to FY 2017.

 Accumulated net deficit is $62.6 billion, resulting from several years of net losses 

starting in FY 2007.

 Financial sustainability continues to erode due to large personnel related liabilities 

and the slow replacement of fully depreciated capital assets. Overall financial 

condition is adversely impacted by insufficient current assets (43 percent of total 

assets) to cover current liabilities (78 percent of total liabilities).

 The Postal Service’s FY 2018 working capital was negative $57.9 billion.

 The Postal Service liquidity position is at the highest level since FY 2007; although 

cash declined during FY 2018, the Postal Service recorded its first available debt 

($1.8 billion) since FY 2011. However, significant balance sheet liabilities and off-

 

3 United States Postal Service, 2018 Integrated Financial Plan, November 23, 2017, at 8 (FY 2018 IFP).
FY 2018 Financial Analysis Report - 4 -

balance sheet unfunded liabilities for pension and annuitant health benefits 

threaten the improvements in liquidity.
FY 2018 Financial Analysis Report - 5 -

Chapter II. Postal Service Financial Status

Introduction

This chapter analyzes the Postal Service’s overall financial status. The Commission 

evaluates relationships between the essential components of the Postal Service’s financial 

statements to understand the Postal Service’s viability, stability, and profitability. The 

Commission also discusses the Postal Service’s operational status and allocation of 

resources.

The Commission’s analysis, primarily based upon the Postal Service’s Form 10-K financial 

statements for FY 2018 and FY 2017, provides a basis for comparison. The Commission 

also incorporates select key financial data from the past 10 years.

The Postal Service’s Form 10-K report consists of:

 Income Statements, which review overall income and expenses and measure the 

Postal Service’s financial performance (profit and loss) over the fiscal year

 Balance Sheets, which summarize the Postal Service’s assets and liabilities held at 

the end of the fiscal year

 Statements of Changes in Net Deficiency, which combine the accumulated net deficit 

from operations and initial capital contributions and

 Statements of Cash Flows, which measure the Postal Service’s inflows and outflows 

of cash during the fiscal year

This chapter is divided into the following sections:

Analysis of Income Statements. This section reviews overall income and expenses, and 

compares current revenue and expenses with those forecasted for the current year and 

reported during the prior fiscal year. It also compares changes in Postal Service 

productivity over time.

Analysis of Balance Sheets. This section begins with a summary of the Postal Service’s assets 

and liabilities at the end of the fiscal year. The remainder of the section discusses changes 

in net deficiency, which occurs because Postal Service liabilities exceed its assets.

Analysis of Statements of Cash Flows. This section analyzes the Postal Service’s inflows and 

outflows of cash and debt during the year.
FY 2018 Financial Analysis Report - 6 -

Analysis of Income Statements

To facilitate a detailed financial analysis of the Postal Service’s Income Statements, the 

Commission separately identifies elements of reported operating revenue and operating 

expenses.

Net operating expense excludes the payments for unfunded retirement health benefits 

(RHB), the supplemental contribution to the Civil Service Retirement System (CSRS) 

annuity, the supplemental contribution to the Federal Employees Retirement System 

(FERS) annuity, and the non-cash adjustments to the workers’ compensation liability.4

These adjustments and expenses are properly recognized as accrual entries on the Postal 

Service’s Income Statements. The Commission disaggregates them to provide an in-depth 

analysis of the financial results for FY 2018. Table II-1 illustrates the Commission’s 

disaggregated version of the Income Statements.

Table II-1

Postal Service Income Statements Restated to Facilitate Analysis, FY 2018 and FY 2017

($ in Millions)

Decrease in revenue and expense is denoted by (). Increase in net loss is denoted by ().

Numbers may not add across due to rounding.

Source: Docket No. ACR2018, Library Reference USPS-FY18-5, December 28, 2018; Docket No. ACR2017, Library Reference USPS-FY17-5, 

December 29, 2017; FY 2018 Plan data from USPS Preliminary Financial Information (Unaudited), September 2018, November 15, 2018.

The Postal Service incurred a net operating loss of $2.1 billion in FY 2018. In FY 2017, the 

Postal Service had a net operating loss of $1.3 billion. The FY 2018 loss represents a $0.7 

 

4 Non-cash adjustments or change to workers’ compensation liability represents the impact of discount and inflation rate changes and the 

actuarial re-evaluation of new and existing cases.

FY 2018 $ Variance 

FY 2018 FY 2017 $ Variance Plan from Plan

Net Operating Revenue $70,660 $69,636 $1,024 $70,092 $568

Operating Expense as Reported by the Postal Service 74,445 72,210 2,235 75,215 (770)

Less: Amortization of RHB Unfunded Liability (815) (955) 140 (1,189) 374

 Amortization of CSRS Unfunded Liability (1,440) (1,741) 301 (1,736) 296

 Amortization of FERS Unfunded Liability (958) (917) (41) (917) (41)

 Non-Cash Change to Workers' Compensation Liability 1,389 2,212 (823) - 1,389

Net Operating Expense $72,621 $70,809 $1,812 $71,373 $1,248

Interest Income 123 5 8 6 5 120 3

Interest Expense 251 226 2 5 243 8

Net Income (Loss) from Operations $(2,089) $(1,341) $(748) $(1,404) $(685)

Amortization of RHB Unfunded Liability 815 955 (140) 1,189 (374)

Amortization of CSRS Unfunded Liability 1,440 1,741 (301) 1,736 (296)

Amortization of FERS Unfunded Liability 958 917 4 1 917 4 1

Non-Cash Change to Workers' Compensation Liability (1,389) (2,212) 823 - (1,389)

Net Loss $(3,913) $(2,742) $(1,171) $(5,246) $1,333
FY 2018 Financial Analysis Report - 7 -

billion decline in profitability.5 The FY 2018 net loss is largely due to higher operating 

expenses. Net operating expenses were $1.8 billion higher than in FY 2017, primarily 

driven by increases in compensation and benefits and transportation costs.

After all adjustments and expenses are included, the net operating loss of $2.1 billion 

becomes a total net loss of $3.9 billion. This is a decline of $1.2 billion compared to FY 

2017. The decline is largely driven by higher operating expenses and an increase in the 

non-cash adjustment to workers’ compensation expense resulting from a lower discount 

rate. Higher operating revenue of approximately $1.0 billion is not enough to offset the 

increase in overall expenses. Table II-2 details unpaid retirement expenses6 for FY 2018 

and FY 2017.

Table II-2

Postal Service Unpaid Retirement Expenses, FY 2018 and FY 2017

($ in Millions)

 Decrease in expenses is denoted by ().

 Numbers may not add across due to rounding.

 Source: Postal Service FY 2018 Form 10-K at 20.

During FY 2018, the Postal Service filed two requests in accordance with the Postal 

Accountability and Enhancement Act (PAEA) requiring the Commission to procure 

actuarial services to review various Office of Personnel Management (OPM) assumptions 

used in calculating Postal Service retirement-related liabilities. In the first request filed 

pursuant to Section 802(c) of the PAEA, the Postal Service asks the Commission to conduct 

a review of OPM’s determination regarding the CSRS liability.7 In particular, the Postal 

Service asks whether it is appropriate for OPM to calculate the CSRS supplemental liability 

on the basis of government-wide demographic and salary-growth assumptions, rather than 

those specific to Postal Service CSRS employees and annuitants. The Postal Service

indicates that OPM has already changed its rules going forward to use new postal-specific 

demographic assumptions.8 Thus, the Postal Service is further asking whether it would be 

appropriate to re-determine the CSRS supplemental liability payment due on September 

30, 2017, using the new assumptions.

 

5 The Commission’s calculation of net operating income (loss) differs from the controllable net income (loss) reported in Postal Service Form 10-

K by $138 million and $527 million for FY 2018 and FY 2017, respectively. The Postal Service excludes the difference in the normal cost of RHB 

from its controllable income because it is the result of changes in actuarial assumptions. Postal Service FY 2018 Form 10-K at 20.

6 Normal cost is the present value of the estimated RHB attributable to active employees’ current year of service.

7 Docket No. SS2018-1, Request of the United States Postal Service for Review of the Office of Personnel Management’s Determination 

Regarding Civil Service Retirement System Liability, November 13, 2017.

8 See 5 C.F.R. § 831.117(a).

FY 2018 FY 2017 $ Variance

Annual Amortization of CSRS Unfunded Liability $1,440 $1,741 $(301)

Annual Amortization of FERS Unfunded Liability 958 917 4 1

Amortization of RHBF Unfunded Liability 815 955 (140)

Normal Costs of Retiree Health Benefits 3,666 3,305 361

Total Retirement Expense $6,879 $6,918 $(39)
FY 2018 Financial Analysis Report - 8 -

The Commission entered into a contract with Segal Consulting to provide an independent 

actuarial analysis of the assumptions used by OPM. The analysis concludes that the current 

government-wide assumptions produce valuation results that are within the range of 

reasonable outcomes based on generally accepted actuarial principles. However, it would 

be more appropriate to use postal-specific assumptions.9

In the second request filed pursuant to 5 U.S.C. § 8909a(d)(5)(A), the Postal Service asks 

the Commission to conduct a review of OPM’s determination regarding the RHB liability.10

In particular, the Postal Service asks whether it is appropriate and consistent with the law 

for OPM to calculate RHB liabilities on the basis of government-wide assumptions, rather 

than those specific to Postal Service employees and annuitants.

The Commission entered into a contract with Segal Consulting to provide an independent 

actuarial analysis of the assumptions used by OPM. The analysis concludes that it was 

appropriate to calculate RHB liabilities on the basis of government-wide assumptions. It 

also concludes that it would be appropriate to use postal-specific assumptions in that this 

would provide a more accurate estimate of RHB liability.11

In response to the RHBF Report, OPM states that it will not be revising its calculations 

determined as of September 30, 2016, which use government-wide assumptions. OPM 

states that the actuarial and economic assumptions used in these calculations were 

consistent with the assumptions used to determine CSRS and FERS liabilities.12 However, 

OPM has issued new pension regulations that became effective October 27, 2017, which 

direct the use of postal-specific demographic assumptions going forward.13

 

9 Docket No. SS2018-1, Transmittal of the Civil Service Retirement System Demographic and Salary Assumptions Report, June 11, 2018. Postalspecific demographic assumptions are reflected in the amortization payment due in FY 2018 to liquidate CSRS and FERS unfunded liabilities 

shown in Table II-2.

10 Docket No. SS2018-2, Request of the United States Postal Service for the Commission to Conduct a Review of the Office of Personnel 

Management’s Determination Regarding Retiree Health Benefits Liability, January 30, 2018.

11 Docket No. SS2018-2, Transmittal of the Retiree Health Benefit Fund Liability Examination Report, August 8, 2018 (RHBF Report).

12 See Statement of Federal Financial Accounting Standards 5: Accounting for Liabilities of the Federal Government, June 2018, at 33 ¶ 83

13 Docket No. SS2018-2, Letter from OPM, February 20, 2019.
FY 2018 Financial Analysis Report - 9 -

MARKET DOMINANT REVENUE COMPARED TO PRIOR YEAR

This section summarizes the overall revenue by class for Market Dominant products.14

Table II-3 shows FY 2018 and FY 2017 revenue by class.15

Table II-3

Revenue by Market Dominant Class, FY 2018 and FY 2017

($ in Millions)

 Decrease in revenue is denoted by ().

 Numbers may not add across due to rounding.

 Source: Library Reference PRC-LR-ACR2018/1, April 12, 2019; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Total Market Dominant Mail and Services revenue declined 2.6 percent from the prior year. 

First-Class Mail revenue declined by 4.1 percent and Marketing Mail revenue declined by 

0.7 percent. Periodicals revenue declined by 7.1 percent. The only Market Dominant class 

with increased revenue was Package Services. Package Service revenue increased by 3.3 

percent compared to FY 2017. CPI-based price increases were not enough to offset revenue 

lost from declining volumes.

Figure II-1 isolates the change in Market Dominant revenue due to changes in average 

revenue per piece and changes in mail volume for each year since FY 2011.16 In FY 2018, 

the decline in the overall average revenue per piece for the Market Dominant category was 

predominantly caused by the transfer of First-Class Packages – Retail to the competitive 

category and the decrease in revenue per piece for Outside County Periodicals, Bound 

Printed Matter Flats and Ancillary Services. Changes in mail mix, average weight per piece, 

and—in the case of Periodicals—changes in the editorial/advertising content also 

influenced this decline in the average revenue per piece.

 

14 Chapter III presents a more detailed discussion of revenue by class and product.

15 “Other” in Table II-3 consists of appropriations, investment income, free military mail revenue and any accounting estimates and 

adjustments.

16 The revenue effects of volume increases are calculated using the average revenue per piece of the fiscal year being evaluated, and the 

revenue effects of volume decreases are calculated using the average revenue per piece of the prior fiscal year.

FY 2018 FY 2017 $ Variance % Variance

First-Class Mail $26,016 $27,122 (1,106) (4.1%)

Marketing Mail 16,554 16,672 (117) (0.7%)

Periodicals 1,277 1,375 (98) (7.1%)

Package Services 828 801 2 7 3.3%

Ancillary and Special Services 1,725 1,792 (67) (3.7%)

Subtotal Market Dominant Mail and Services Revenue $46,400 $47,761 $(1,361) (2.8%)

Other 1,196 1,110 8 6 7.8%

Total Market Dominant Mail and Services Revenue $47,596 $48,871 $(1,275) (2.6%)
FY 2018 Financial Analysis Report - 10 -

Figure II-1

Change in Market Dominant Revenue Due to Changes

in Average Revenue per Piece and Total Mail Volumes,

FY 2011 – FY 2018

($ in Millions)

Source: Postal Regulatory Commission (PRC) derived from Postal Service Revenue, Pieces and Weight Report, FY 2011-FY 2018.

Table II-4 shows that for Market Dominant products,17 declines in both revenue per piece 

and volumes caused total revenue to decrease by $1.4 billion in FY 2018.18 For First-Class 

Mail, Marketing Mail, and Periodicals, the total revenue decline was predominantly due to 

reductions in volume.

 

17 Special Services includes Ancillary Services.

18 The $1.4 billion decrease in Market Dominant revenue excludes “Other Income” which consists of appropriations, investment income, free 

military mail revenue, and any accounting estimate adjustments.
FY 2018 Financial Analysis Report - 11 -

Table II-4

Disaggregation of Change in Market Dominant Revenue, FY 2018

($ in Millions)

Decrease in revenue is denoted by (). 

Numbers may not add across due to rounding.

Source: Docket No. ACR2018, Library Reference USPS-FY18-42, December 28, 2018; Docket No. ACR2017, Library Reference USPS-FY17-42, 

December 28, 2017.

COMPETITIVE PRODUCT REVENUE COMPARED TO PRIOR YEAR

Table II-5 compares revenue for Competitive products between FY 2018 and FY 2017. 

Competitive products’ overall revenue increased $2.4 billion or 11.3 percent. The 

Competitive products price increase (effective January 21, 2018)

19 and higher volume 

primarily contributed to the overall increase in revenue. The increase in First-Class 

Package Service revenue resulted from the transfer of First-Class Mail Retail (Single-Piece) 

from the Market Dominant to the Competitive category.20

 

19 See Docket No. CP2018-8, Order Approving Price Adjustments for Competitive Products, November 7, 2017 (Order No. 4208).

20 The Commission approved the transfer of the First-Class Mail Retail (Single-Piece) price category from the Market Dominant product list by 

adding identical services to the existing First-Class Package Service product appearing on the Competitive product list. Docket No. CP2017-230, 

Order Approving Price Adjustment for First-Class Package Service Product, August 9, 2017, at 4 (Order No. 4032).

Change in Revenue from Changes in 

Revenue Per Piece

Change in Revenue from Changes 

in Volume Net Change in Revenue

First-Class Mail $(77) $(1,029) $(1,106)

Marketing Mail 110 (227) (117)

Periodicals (18) (80) (98)

Package Services 0 2 7 2 7

Special Services (165) 9 8 (67)

Total Market Dominant $(151) $(1,210) $(1,361)
FY 2018 Financial Analysis Report - 12 -

Table II-5

Competitive Product Revenue, FY 2018 and FY 2017

($ in Millions)

Decrease in revenue is denoted by ().

Numbers may not add across due to rounding.

Source: Library Reference PRC-LR-ACR2018/1; Library Reference PRC-LR-ACR2017/1; Library Reference USPS-FY18-42.

EXPENSE ANALYSIS AS COMPARED TO PRIOR YEAR

As shown in Table II-6, total expenses increased by $2.2 billion (3.1 percent) in FY 2018. 

Total operating expenses increased by $1.8 billion due to increases in personnel ($1.2 

billion) and transportation ($0.6 billion) expenses. The significantly lower pharmaceutical 

compounding costs21 and discount rates during FY 2017 not repeated at the same level in 

FY 2018, resulted in an increase of $823 million to the workers’ compensation liability. 

These increases were partly offset by net declines in the payments related to unfunded 

retirement liabilities.

 

21 In 2016, the United States Department of Labor issued new rules for pharmaceutical compounding and for the year ended September 30, 

2017, the Postal Service recorded a $549 million decrease from the prior year.

FY 2018 FY 2017 $ Variance % Variance

Priority Mail $9,103 $8,340 $763 9.1%

Total Ground 6,912 6,194 718 11.6%

First-Class Packages 3,871 2,787 1,084 38.9%

Priority Mail Express 751 766 (15) (1.9%)

International 1,537 1,743 (206) (11.8%)

Ancillary and Special Services 883 860 2 4 2.7%

Subtotal Competitive Products Mail and Services Revenue $23,057 $20,690 $2,367 11.4%

Other Revenue 129 134 (4) (0)

Total Competitive Products Mail and Services Revenue $23,187 $20,824 $2,363 11.3%
FY 2018 Financial Analysis Report - 13 -

Table II-6

Total Expenses, FY 2018 and FY 2017

($ in Millions)

Decrease in expenses is denoted by (). NM denotes not meaningful.

Numbers may not add across due to rounding.

Source: PRC derived from Postal Service National Trial Balance September 2018, November 14, 2018; Postal Service National Trial Balance 

September 2017, November 14, 2017.

PERSONNEL EXPENSES AS SHARE OF TOTAL EXPENSES

In FY 2018, personnel expenses as a share of total expenses excluding system wide 

personnel costs for non-cash adjustment to workers’ compensation and amortization costs 

of unfunded retirement liabilities was 74.0 percent. This was a decline of 0.5 percentage 

points from FY 2017, when these expenses constituted 74.5 percent of total expenses. In FY 

2018, personnel expenses including system-wide personnel costs as a share of total 

expenses remain unchanged from the prior year. In FY 2018, the increase in the FERS

amortization and a less favorable change in the non-cash adjustment to workers’ 

compensation liability were slightly offset by declines in the amortization costs of the 

unfunded RHB and CSRS liabilities.

Other non-personnel related expenses, such as purchased transportation costs, were 10.6 

percent of total expenses—an increase in share of 0.6 percentage points from FY 2017. 

Other Expenses22 constituted the remaining 13 percent share of total expenses, which 

decreased 0.5 percentage points from the prior year.

 

22 Other expenses are comprised of supplies and services, depreciation and amortization, rent and utilities, vehicle maintenance service, 

delivery vehicle fuel, information technology and communications, rural carrier equipment maintenance, and miscellaneous costs. Postal 

Service FY 2018 Form 10-K at 40.

FY 2018 FY 2017 $ Variance % Variance FY 2018 FY 2017

 Salaries and Benefits $49,684 $48,793 $891 1.8% 66.7% 67.6%

 Workers' Compensation - Cash Outlays 1,393 1,415 (22) (1.6%) 1.9% 2.0%

 Retiree Health Benefits Normal Cost 3,666 3,305 361 10.9% 4.9% 4.6%

 Other Personnel Related 320 315 5 1.6% 0.4% 0.4%

Subtotal Personnel Expenses Excluding Systemwide Personnel Expenses $55,063 $53,828 $1,235 2.3% 74.0% 74.5%

Transportation 7,861 7,238 623 8.6% 10.6% 10.0%

Other Expenses 9,697 9,743 (46) (0.5%) 13.0% 13.5%

Total Operating Expenses $72,621 $70,809 $1,812 2.6% 97.5% 98.1%

Systemwide Personnel Expenses:

Non-Cash Change to Workers' Compensation Liability (1,389) (2,212) 823 NM (1.9%) (3.1%)

Amortization of RHB Unfunded Liability 815 955 (140) (14.7%) 1.1% 1.3%

Amortization of FERS Unfunded Liability 958 917 4 1 4.5% 1.3% 1.3%

Amortization of CSRS Unfunded Liability 1,440 1,741 (301) (17.3%) 1.9% 2.4%

Total Expenses $74,445 $72,210 $2,235 3.1% 100.0% 100.0%

Compensation & Benefits Expenses:

% of Total Expenses
FY 2018 Financial Analysis Report - 14 -

PERSONNEL EXPENSES

Figure II-2 illustrates the composition of FY 2018 personnel expenses detailed in Table II-7. 

Compensation expenses account for the largest portion of personnel expenses, 

representing 66.4 percent of total personnel costs.

Retirement-related expenses are the next largest component of total personnel expenses, at 

23.8 percent.

Figure II-2

Composition of Total Personnel Expenses, FY 2018

 Source: Postal Service FY 2017 Form 10-K at 23, 25, and 36.

Table II-7 shows that the total personnel expenses for FY 2018 increased by $1.7 billion 

from FY 2017. This was largely the result of increases in personnel operating expenses and 

less favorable non-cash adjustment to workers’ compensation liability.23 Compensation, 

retirement (service costs for FERS), and health benefits expenses all increased in FY 2018.

 

23 Workers’ compensation expense consists of cash payments, miscellaneous expenses and the net increase (decrease) in the workers’ 

compensation liability. The non-cash adjustment to workers’ compensation liability represents the impact of discount and inflation rate 

changes and the actuarial re-evaluation of new and existing cases.
FY 2018 Financial Analysis Report - 15 -

Table II-7

Breakdown of Total Personnel Expenses, FY 2018 and FY 2017

($ in Millions)

Decrease in expenses is denoted by (). NM denotes not meaningful.

Numbers may not add across due to rounding.

Source: PRC derived from Postal Service National Trial Balance September 2018; Postal Service National Trial Balance September 2017.

Total compensation is comprised of salaries for employees (full-time career, part-time 

career, and non-career), overtime and leave pay, and performance or arbitration awards. 

There are several cost drivers for compensation, including contractual pay increases, 

inflation used to calculate semi-annual Cost of Living Allowances (COLAs), number of 

overtime workhours, and the composition of the workforce. Total compensation increased 

by $0.8 billion compared to FY 2017 primarily due to contractual salary increases,24 COLAs 

and additional workhours, particularly hours for non-career employees and overtime 

hours.25

The Postal Service’s workforce is composed of career (full-time and part-time) and noncareer employees, which include postal support employees, city carrier assistants, 

mailhandler assistants, and other non-career employees. Table II-8 shows the number of 

employees by type for FY 2016, FY 2017, and FY 2018.

 

24 Postal Service FY 2018 Form 10-K at 27.

25 Id.

FY 2018 FY 2017 $ Variance % Variance

Total Compensation $37,795 $37,026 $769 2.1%

Retirement 6,720 6,604 116 1.8%

Health Benefits-Current Employees 5,169 5,163 6 0.1%

Workers' Compensation - Cash Outlays 1,393 1,415 (22) (1.6%)

Normal Costs of Retiree Health Benefits 3,666 3,305 361 10.9%

Other Compensation 320 315 5 1.6%

Total Operating Personnel Expenses $55,063 $53,828 $1,235 2.3%

Non-Cash Change to Workers' Compensation Liability (1,389) (2,212) 823 NM

Amortization of Unfunded RHB Liability 815 955 (140) (14.7%)

Amortization of Unfunded FERS Liability 958 917 4 1 4.5%

Amortization of Unfunded CSRS Liability 1,440 1,741 (301) (17.3%)

Total Personnel Expenses $56,887 $55,229 $1,658 3.0%
FY 2018 Financial Analysis Report - 16 -

Table II-8

Postal Service Employee Complement, FY 2016 – FY 2018

Decrease in amounts is denoted by ().

Numbers may not add across due to rounding.

Source: On-Roll and Paid Employee Statistics (ORPES), PP 20-2018, September 2018, October 11, 2018; ORPES, September 2017, October 6, 

2017; ORPES, September 2016, October 6, 2016.

In FY 2018, the Postal Service reduced its career workforce by approximately 6,000 

employees, or 1.2 percent, and decreased its non-career workforce by approximately 3,700 

employees, or 2.6 percent. According to the Postal Service, during the 2-year period of FY 

2018 and FY 2017, 63,000 non-career employees converted to career status to offset 

attrition of career employees, primarily through retirement.26

In April 2016, the Postal Service reached a 3-year agreement with the National Rural Letter 

Carriers’ Association, which includes general wage increases of 3.8 percent over the life of 

the contract. The contract expired in May 2018, with both parties agreeing to an extension 

beyond the deadline.27 A July 2016 agreement with the American Postal Workers Union 

includes general wage increases of 3.8 percent over the life of the contract, which expired 

in September 2018.28 Negotiations over a new contract are in a dispute resolution process. 

In May 2017, the Postal Service reached a 40-month agreement with the National 

Association of Letter Carriers that includes general wage increases totaling 2.5 percent 

over the life of the contract. This contract will expire in September 2019.29 Figure II-3 

illustrates the change in workhours since FY 2004.

 

26 Postal Service FY 2018 Form 10-K at 27.

27 Id. at 6.

28 Id.

29 Id.

FY 2018 FY 2017

Change FY 2018 

over FY 2017

FY 2016

Change FY 2017 

over FY 2016

Career Employees 497,157 503,103 (5,946) 508,908 (5,805)

Postal Support Employees (PSE) 26,386 26,823 (437) 26,368 455

City Carrier Assistants (CCA) 42,115 44,486 (2,371) 40,436 4,050

Mailhandler Assistants (MHA) 6,274 6,463 (189) 5,280 1,183

Other Non-Career 62,515 63,249 (734) 58,797 4,452

Total On-Roll Employees 634,447 644,124 (9,677) 639,789 4,335
FY 2018 Financial Analysis Report - 17 -

Figure II-3

Change in Workhours, FY 2004 – FY 2018

 

 

 Source: Postal Service FY 2004 to FY 2018 Forms 10-K and USPS Annual Reports.

After 9 years of declines beginning in FY 2006, the last 4 years have seen workhours start 

to increase. Total workhours increased by approximately 6 million during FY 2018, which 

the Postal Service states is primarily due to an increase of 1.2 million delivery points and 

growth in shipping and packages volume.30 As shown in Table II-9, in FY 2018, workhours 

increased in City Delivery (0.8 percent), Rural Delivery (3.7 percent), Vehicle Maintenance 

(3.9 percent), and Other (0.5 percent) categories.31 Workhours declined in Mail Processing 

(2.0 percent), Customer Service (0.8 percent), and Plant & Equipment (1.8 percent).

 

30 Postal Service FY 2018 Form 10-K at 28.

31 The “Other” category represents Operations Support, Finance, Human Resources, Administration, Training, and Rehabilitation workhours.
FY 2018 Financial Analysis Report - 18 -

Table II-9

Workhours by Function (Thousands of Workhours), FY 2016 – FY 2018

Decrease in amounts is denoted by ().

Numbers may not add across due to rounding.

Source: Docket No. ACR2018, Library Reference USPS-FY18-7, December 28, 2018; Docket No. ACR2017, Responses of the United States Postal 

Service to Questions 1-19 of Chairman’s Information Request No. 2, January 17, 2018, question 3, Excel file “ChIR.2.Q.3.LDC.Workhours -

FY17.xlsx;” Docket No. ACR2016, Responses of the United States Postal Service to Questions 1-2, 4-9, 11-13, 15-19, 23, 28, and 31-33 of 

Chairman’s Information Request No. 3, January 13, 2017, question 1, Excel file “ChIR.3.Q.1.LDC.Workhours.xlsx.”

The productive hourly wage rates32 are shown in Table II-10. The productive hourly wage 

rate for clerks increased 2.3 percent compared to the prior year. The productive hourly 

wage rate for both mailhandlers and city delivery carriers increased by 2.2 percent 

compared to the prior year. For the 2-year period between FY 2016 and FY 2018, the 

productive hourly wage rate has increased in every category.

 

32 The productive hourly wage rate is the total compensation and benefits divided by the weighted workhours by craft.

% Variance % Variance

FY 2018 FY 2017 FY 2018 over FY 2017 FY 2016 FY 2017 over FY 2016

Mail Processing 198,029 202,069 (2.0%) 204,403 (1.1%)

Customer Service 169,372 170,725 (0.8%) 170,377 0.2%

 City Delivery 426,353 422,811 0.8% 416,646 1.5%

 Rural Delivery 204,874 197,574 3.7% 191,806 3.0%

 Plant & Equipment 63,302 64,477 (1.8%) 65,946 (2.2%)

 Vehicle 29,990 28,877 3.9% 28,637 0.8%

 Other 77,697 77,345 0.5% 80,281 (3.7%)

Total Workhours 1,169,617 1,163,878 0.5% 1,158,096 0.5%

Delivery Service:

Maintenance:
FY 2018 Financial Analysis Report - 19 -

Table II-10

Productive Hourly Wage Rates ($ per Workhour), FY 2016 – FY 2018

Decrease in amounts is denoted by ().

Numbers may not add across due to rounding.

Source: Library Reference USPS-FY18-7, December 28, 2018; Docket No. ACR2017, Library Reference PRC-ACR2017/1; Docket No. ACR2016, 

Library Reference PRC-ACR2016/1.

Workers’ compensation expenses increased by $0.8 billion in FY 2018. Workers’ 

compensation expenses consist of a cash payment and a non-cash change in long-term 

workers’ compensation liability. The cash payment is made to the Department of Labor for 

the current year’s cost of medical and compensation benefits payment and an 

administrative fee. The non-cash change in long-term workers’ compensation liability 

includes actuarial revaluations of existing cases and new cases, initial costs of new cases for 

the year, and any changes in the discount rate used to estimate the amount of current funds 

needed to settle all claims in the current year. In FY 2018, the non-cash change in long-term 

workers’ compensation liability resulted in a $1.4 billion increase in the liability. Table II11 disaggregates components factoring into the workers’ compensation expense for the 

past 2 years.

Table II-11

Components of Workers’ Compensation Expense, FY 2018 and FY 2017

($ in Millions)

Decrease in expenses is denoted by (). 

Numbers may not add across due to rounding.

Source: Postal Service FY 2018 Form 10-K at 38.

% Change % Change

Segment/Subsegment FY 2018 FY 2017 FY 2018 over FY 2017 FY 2016 FY 2017 over FY 2016

Supervisors & Technicians $52.52 $51.54 1.9% $50.65 1.8%

Clerks 40.87 39.94 2.3% 39.29 1.7%

Mailhandlers 41.27 40.37 2.2% 40.44 (0.2%)

City Delivery Carriers 41.31 40.43 2.2% 40.90 (1.1%)

Vehicle Drivers 45.67 45.61 0.1% 43.44 5.0%

Rural Carriers 36.72 36.48 0.7% 36.42 0.2%

Building Services 43.37 41.67 4.1% 39.60 5.2%

Operating Equipment 55.32 54.24 2.0% 53.55 1.3%

Building Equipment 51.36 50.40 1.9% 49.43 2.0%

Motor Vehicle Service 49.86 48.65 2.5% 47.34 2.8%

Headquarters 68.07 67.72 0.5% 64.24 5.4%

FY 2018 FY 2017 $ Variance % Variance

Medical and Compensation Claims Payments $1,312 $1,264 $48 3.8%

Administrative Fee 8 1 151 (70) (46.4%)

Cash Outlays $1,393 $1,415 $(22) (1.6%)

(Decrease) Increase in Long Term Workers' Compensation Obligation (1,389) (2,212) 823 (37.2%)

Workers' Compensation Expense $ 4 ($797) $801 (100.5%)
FY 2018 Financial Analysis Report - 20 -

NON-PERSONNEL EXPENSES 

Table II-12 shows transportation costs by category, which is a major component of nonpersonnel related expenses, and which accounted for 10 percent of total costs. See infra

Table II-6.

Table II-12

Purchased Transportation Costs by Category, FY 2018 and FY 2017

($ in Millions)

 Decrease in expenses is denoted by ().

 Numbers may not add across due to rounding.

 Source: Postal Service FY 2018 Form 10-K at 39.

Total transportation expenses increased by 8.6 percent from FY 2017. Highway 

transportation costs increased by 6.1 percent, while air transportation costs increased by 

16.6 percent from the prior year. According to the Postal Service, these increases were 

primarily due to higher prices per mile on contract routes, higher package volume, national 

shortage of long-haul truck drivers and an increase in the average price of diesel and jet 

fuel.33 Expenses for fuel comprise 3.4 percent of total operating expenses.34 These increases 

offset slightly a $20 million decline in international transportation costs.

Table II-13 shows all other non-personnel related expenses decreased by $46 million in 

FY 2018. This decrease was primarily driven by the decline in miscellaneous other 

expenses, which was partially offset by increases in rent and utilities, delivery vehicle fuel,

and rural carrier equipment maintenance expenses. According to the Postal Service, the 

27.5 percent decline in miscellaneous other expenses is the result of a reduction in 

expenses associated with contingent liabilities pertaining to labor and employment 

matters.35 Miscellaneous other expenses consist mainly of travel, training, repairs and 

contingency accounts. The largest increase was in rent and utility expenses, which 

increased by $104 million in FY 2018. According to the Postal Service, this was the result of 

an increase in fuel-related utility costs.36

 

33 Postal Service FY 2018 Form 10-K at 39.

34 Id. at 12.

35 Id. at 40.

36 Id.

FY 2018 FY 2017 $ Variance % Variance

Highway Transportation $4,319 $4,070 $249 6.1%

Air Transportation 2,892 2,481 411 16.6%

International Transportation 611 631 (20) (3.2%)

Other Transportation 3 9 5 6 (17) (30.4%)

Total Transportation $7,861 $7,238 $623 8.6%
FY 2018 Financial Analysis Report - 21 -

Table II-13

Other Non-Personnel Expenses, FY 2017 and FY 2018

($ in Millions)

Decrease in expenses in denoted by ().

Numbers may not add across due to rounding.

Source: Postal Service FY 2018 Form 10-K at 40.

TOTAL FACTOR PRODUCTIVITY 

Total Factor Productivity (TFP) is a measure of Postal Service productivity for any given 

year. TFP is calculated as the ratio of Workload (outputs and network) to Inputs. The 

inputs index includes a combination of labor (workhours), capital, and materials. The 

outputs index is the weighted average of mail volumes and miscellaneous outputs. The 

network index represents the delivery network and is the number of possible deliveries. 

Finally, the workload index is a combination of the outputs and the network indices.

TFP measures the rate at which resources are used to handle workload. Change in TFP is 

equal to the net change in workload less the net change in resource. Components of 

workload are: 1) weighted mail volume; 2) miscellaneous output; and 3) delivery points. 

Components of resource usage are: 1) labor; 2) materials; and 3) capital. TFP increased 

slightly by 0.1 percent in FY 2018 compared to an unfavorable 0.6 percent in FY 2017. 

Total workload declined by 0.6 percent in FY 2018, a slightly lower decline than the usage 

of resources 0.7 percent for the same period. Lower outputs including weighted mail 

volume fully offset the growth in delivery points. In FY 2018, capital inputs decreased 1.6 

percent and investment in buildings and equipment also declined. Labor input declined by 

1.1 percent. The growth in shipping and packages increased materials usage. In FY 2018, 

other factors such as level of employment and price of labor also contributed to the slight 

increase in the TFP. Figure II-4 shows the trend in TFP from FY 1972 through FY 2018.

FY 2018 FY 2017 $ Variance % Variance

Supplies and Services $2,991 $2,980 $11 0.4%

Depreciation and Amortization 1669 1677 (8) (0.5%)

Rent and Utilities 1694 1590 104 6.5%

Vehicle Maintenance Services 629 640 (11) (1.7%)

Delivery Vehicle Fuel 502 409 9 3 22.7%

Information Technology and Communications 913 914 (1) (0.1%)

Rural Carrier Equipment Maintenance 552 503 4 9 9.7%

Miscellaneous Other 747 1030 (283) (27.5%)

Total Other Non-Personnel Expenses $9,697 $9,743 $(46) (0.5%)
FY 2018 Financial Analysis Report - 22 -

Figure II-4

Postal Service Total Factor Productivity, FY 1972 – FY 2018

Comparison of Postal Service Actual to Operating Plan

The Postal Service’s FY 2018 Operating Plan, as outlined in its 2018 IFP, projected a net 

loss of $5.2 billion in FY 2018.37 The actual total net loss of $3.9 billion was $1.3 billion less 

than the Postal Service estimated. Total revenue was $0.6 billion more than planned while 

total operating expenses were $1.3 billion more than planned. However, because 

retirement accruals were $0.6 billion less than anticipated and the favorable change of $1.4 

billion in the noncash change to workers’ compensation liability was not included in the 

plan, the Postal Service’s net loss was smaller than it had initially projected. Table II-14 

compares actual FY 2018 results with the estimated results in the Operating Plan.

 

37 United States Postal Service Fiscal Year 2018 Integrated Financial Plan, December 2, 2017, at 3 (Postal Service 2018 Integrated Financial Plan). 

See also USPS Preliminary Financial Information (Unaudited), September 2018, November 14, 2018.

Source: Docket No. ACR2018, Response of United Postal Service to Question 2 of Chairman’s Information Request No. 1, January 

11, 2019.
FY 2018 Financial Analysis Report - 23 -

Table II-14

Actual and Operating Plan Income Statements, FY 2018

($ in Billions)

Decrease in revenue and expense is denoted by (). Increase in net loss is denoted by ().

Numbers may not add across due to rounding.

Source: USPS Preliminary Financial Information (unaudited), September 2017, November 14, 2017, file "September 2018 Monthly Financial 

Report to the PRC.pdf."

As seen in Table II-15, total revenue from Market Dominant mail was lower than expected. 

However, revenue from Competitive mail and Other Parcels was $1.1 billion greater than 

projected, which partially offset declines in the other categories. International mail revenue 

was $0.1 billion less than planned.

Table II-15

Actual and Operating Plan Revenue broken down by categories shown in IFP,38 FY 2018

($ in Billions)

 Decrease in revenue is denoted by ().

 Numbers may not add across due to rounding.

 Source: November 15, 2018, Preliminary Financial Information, file “September 2018 Monthly Financial Report to the PRC.pdf.”

Total volume was 1.5 billion pieces more than expected, primarily due to higher than 

expected volume in First-Class and Marketing Mail. Competitive and Other Parcels also 

exceeded expectations, with 0.1 billion more pieces than expected. Table II-16 compares 

volumes for FY 2018 with the volume projected in the Operating Plan.

 

38 The Postal Service FY 2018 IFP isolates volume from International and Parcels from the other categories. See Postal Service FY 2018 IFP at 5.

FY 2018 Actual FY 2018 Operating Plan $ Variance

Total Revenue $70.8 $70.2 $0.6

Total Operating Expense 72.9 71.6 1.3

Net Operating Income/(Loss) $(2.1) $(1.4) $(0.7)

Workers' Compensation Liability (1.4) - (1.4)

RHBF Unfunded Liability Amortization 0.8 1.2 (0.4)

FERS Unfunded Liability Amortization 1.0 0.9 0.0

CSRS Unfunded Liability Amortization 1.4 1.7 (0.3)

Total Net Income/(Loss) $(3.9) $(5.2) $1.3

FY 2018 Actual FY 2018 Operating Plan $ Variance

First-Class Mail $25.0 $24.8 $0.2

Periodicals 1.3 1.3 (0.0)

Marketing Mail 16.5 16.2 0.3

Other 2.9 3.8 (0.9)

Competitive and Other Parcels 22.5 21.4 1.1

International 2.6 2.7 (0.1)

Total Mail Revenue $70.8 $70.2 $0.6
FY 2018 Financial Analysis Report - 24 -

Table II-16

Actual and Operating Plan Volume broken down by categories shown in IFP,39 FY 2018

(in Billions)

Decrease is denoted by ().

Numbers may not add across due to rounding.

Source: November 15, 2018, Preliminary Financial Information, file “September 2018 Monthly Financial Report to the PRC.pdf.”

 

Total expenses were $0.8 billion less than anticipated. Operating expenses were $1.2 billion 

greater than expected, offset by lower than expected non-operating expenses of $2.0 

billion. As shown in Table II-17, the compensation and benefits expense was $1.1 billion 

more than planned, primarily due to greater than expected workhours.

Total non-personnel expenses were $0.2 billion more than projected, the only negative 

variance being for supplies and services expenses ($0.2 billion) and rent and utilities ($0.1 

billion). Transportation expenses and depreciation slightly exceeded what was planned.

 

39 The Postal Service FY 2018 IFP isolates revenue from International and Parcels from the other categories. See FY 2018 IFP at 5.

FY 2018 Actual FY 2018 Operating Plan Variance

First-Class Mail 56.7 56.3 0.4

Periodicals 5.0 5.0 (0.0)

Marketing Mail 77.3 76.1 1.2

Other 0.3 0.4 (0.1)

Competitive and Other Parcels 6.2 6.1 0.1

International 0.9 1.0 (0.1)

Total Mail Volume 146.4 144.9 1.5
FY 2018 Financial Analysis Report - 25 -

Table II-17

Actual and Operating Plan Expenses, FY 2018

($ in Billions)

Decrease in amounts is denoted by ().

Numbers may not add across due to rounding.

Source: November 15, 2018, Preliminary Financial Information, file “September 2018 Monthly Financial Report to the PRC.pdf.”

Analysis of Balance Sheets

This section analyzes the Postal Service’s financial situation and use of resources based on 

Balance Sheets data prepared according to U.S. Generally Accepted Accounting Principles. 

The analysis compares two points in time, September 30, 2018 (FY 2018) and

September 30, 2017 (FY 2017).

Table II-18 compares certain categories in the Postal Service’s asset and liability structure 

for FY 2018 with FY 2017. This analysis is derived from the Postal Service’s Balance Sheets.

FY 2018 Actual FY 2018 Operating Plan $ Variance

Compensation & Benefits $55.1 $54.0 $1.1

Transportation 7.9 7.4 0.5

Supplies & Services 3.0 3.2 (0.2)

Depreciation and Amortiation 1.7 1.7 0.0

Rent/Utilities/Other 5.0 5.2 (0.1)

Total Operating Expenses $72.6 $71.4 $1.2

Workers' Compensation Adj. (1.4) 0.0 (1.4)

RHB Unfunded Amortization 0.8 1.2 (0.4)

FERS Unfunded Amortization 1.0 0.9 0.0

CSRS Unfunded Amortization 1.4 1.7 (0.3)

Total Expenses $74.4 $75.2 $(0.8)
FY 2018 Financial Analysis Report - 26 -

Table II-18

Structure of Assets and Liabilities, FY 2018 and FY 2017

($ in Millions)

Decrease in amounts is denoted by ().

Numbers may not add across due to rounding.

Source: Postal Service FY 2018 Form 10-K at 54; PRC derived from September 2018 National Trial Balance.

Current assets are the sum of cash and cash equivalents, receivables, and supplies and 

prepayments, which can be easily converted to cash for financing operations. Non-current 

assets, mainly buildings and equipment (capital assets), are more difficult to convert to 

cash in the short term.

Liabilities at the end of FY 2018 totaled $89.3 billion, 77.8 percent of which were current 

liabilities. Current liabilities are obligations that will come due within 1 year while 

noncurrent liabilities are long-term financial obligations. Current liabilities consist largely 

of missed payments for statutory RHBF prefunding and amortization of unfunded RHB 

obligations, defaulted payments for amortization of unfunded CSRS and FERS obligations 

and short-term borrowing. The Postal Service continued to accrue unpaid RHB expenses, 

which totaled $42.6 billion at the end of FY 2018. This includes accruals for FY 2012 

through FY 2018 when the Postal Service was unable to pay down the obligation along with 

the amortization payments on the RHB unfunded obligation and normal costs. This 

obligation is 61.4 percent of current liabilities. Liabilities consist of the missed payments 

for retirement-related obligations, workers’ compensation liability ($15.0 billion), and the 

total net debt owed to the Federal Financing Bank ($13.2 billion).

FY 2018 FY 2017 $ Variance FY 2018 FY 2017

Assets

Cash and Cash Equivalents (includes Restricted $10,336 $10,804 $(468) 38.7% 39.4%

Receivables 1,094 1,127 (33) 4.1% 4.1%

Supplies and Prepayments 153 134 19 0.6% 0.5%

 Total Current Assets 11,583 12,065 (482) 43.4% 44.0%

 Noncurrent Assets 15,105 15,329 (224) 56.6% 56.0%

Total Assets $26,688 $27,394 $(706) 100.0% 100.0%

FY 2018 FY 2017 $ Variance FY 2018 FY 2017

Liabilities

Unfunded Retirement Benefits $42,641 $38,160 $4,481 47.7% 44.3%

Current Portion of Long-Term Debt 11,000 10,100 900 12.3% 11.7%

Deferred Revenue-Prepaid Postage 2,066 2,168 (102) 2.3% 2.5%

Other Current Liabilities 13,763 11,399 2,364 15.4% 13.2%

 Total Current Liabilities 69,470 61,827 7,643 77.8% 71.8%

Workers' Compensation Costs, Noncurrent 15,026 16,397 (1,371) 16.8% 19.0%

Noncurrent Portion of Long-Term Debt 2,200 4,900 (2,700) 2.5% 5.7%

Other Noncurrent Liabilities 2,629 2,994 (365) 2.9% 3.5%

 Total Noncurrent Liabilities 19,855 24,291 (4,436) 22.2% 28.2%

Total Liabilities $89,325 $86,118 $3,207 100.0% 100.0%

% of Total Assets

% of Total Liabilities
FY 2018 Financial Analysis Report - 27 -

On the Balance Sheets, net deficiency represents the difference between total assets and 

total liabilities. This indicates whether assets were financed by borrowing (liability) or by 

capital contributions and accumulated earnings from prior years. Net deficiency occurs 

when liabilities are greater than assets.

At the end of FY 2018, the Postal Service recorded a $62.6 billion net deficit consisting of an 

accumulated deficit of $65.8 billion offset by capital contributions of $3.1 billion. This is 

primarily the result of several years of net operating losses starting in FY 2007. Negative 

net worth indicates that the Postal Service has spent both its initial capital and also the 

capital of its creditors. Its debts are no longer secured by its assets.

Figure II-5 shows the mix of the Postal Service’s asset and liability structure as of 

September 30, 2018. The shortage of current assets (43 percent of total assets) to cover 

current liabilities (78 percent of total liabilities) adversely affects the Postal Service’s 

financial condition. Noncurrent assets comprise 57 percent of total assets, while 

noncurrent liabilities only comprise 22 percent of total liabilities.

Figure II-5

Categories of Assets and Liabilities, FY 2018

Working capital is the difference between current assets and current liabilities. In FY 2018, 

the Postal Service’s working capital was negative $57.9 billion.

During FY 2018, total assets decreased by $0.7 billion primarily from a $0.5 billion 

decrease in the cash balance. Aging capital assets and the continued restrictions on capital 

Source: Id. at 54.
FY 2018 Financial Analysis Report - 28 -

investment resulted in depreciation costs in excess of investments, which resulted in a net 

decrease in fixed assets of $0.3 billion.

Total liabilities increased by $3.2 billion dollars mainly due to personnel-related liabilities 

such as the accrual for the unpaid retirement expenses for FY 2018.

Assets

During FY 2018, total assets decreased by $0.7 billion, primarily from a decrease in cash of 

$0.5 billion. Aging capital assets and the continued restriction in capital investment 

resulted in a decline in net property plant and equipment of $0.3 billion. Figure II-6 

illustrates the trend in the Postal Service’s net capital assets since FY 2008.

Figure II-6

Percent Change in Capital Assets, FY 2008 – FY 2018

 Source: Postal Service FY 2008 to FY 2018 Forms 10-K.

-8.0%

-7.0%

-6.0%

-5.0%

-4.0%

-3.0%

-2.0%

-1.0%

0.0%

FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 FY 2018
FY 2018 Financial Analysis Report - 29 -

The Postal Service continues to limit its capital expenditures to necessary safety, customer 

support, and high-return investments.

40 Figure II-7 shows the breakdown of the Postal 

Service assets as of September 30, 2018.

Figure II-7

Postal Service Asset Structure, September 30, 2018

 

 

 

 

Liabilities

In FY 2018, total liabilities increased by $3.2 billion, largely due to a higher balance in 

current liabilities. RHB accrual increased by $4.5 billion.

The long-term portion of workers’ compensation declined by $1.4 billion in FY 2018. The 

long-term portion of workers’ compensation liability is highly sensitive to discount and 

inflation rates in actuarial adjustment and to new and existing claims. Figure II-8 shows the 

current breakdown of the Postal Service’s liabilities as of September 30, 2018.

 

40 Postal Service FY 2018 Form 10-K at 43.

Source: Postal Service FY 2018 Form 10-K at 54; PRC derived from September 2018 National Trial Balance.
FY 2018 Financial Analysis Report - 30 -

Figure II-8

Postal Service Liabilities Structure, September 30, 2018

 

In addition to the liabilities recorded on the Postal Service’s Balance Sheets, there are other 

liabilities not recognized in the Postal Service’s financial statements. These liabilities are 

controlled and administered by OPM and relate to the assets and liabilities attributed to the 

Civil Service Retirement and Disability Fund (CSRDF) and the RHBF.41 The CSRDF provides 

pension benefits to retired and disabled Federal employees, including Postal Service 

employees covered by CSRS and FERS.42

In addition, the PAEA requires the Postal Service to report certain disclosures provided by 

OPM regarding the funded status of the CSRDF, specifically for postal employees and the 

Postal Service RHBF. This information is reported on the Postal Service Form 10-K 

statements.

Analysis of Statements of Cash Flows 

At the end of FY 2018, the Postal Service’s cash and cash equivalents total excluding $0.3 

billion in restricted cash was $10.1 billion. Cash and cash equivalents total excluding 

restricted cash was $0.5 billion lower than at the end of FY 2017. For the first time since 

FY 2012 the Postal Service has available borrowing authority ($1.8 billion), resulting from 

fourth quarter payments to the Federal Financing Bank that reduced its debt below the 

PAEA mandated debt ceiling of $15 billion. Table II-19 compares the Postal Service’s cash 

flows from FY 2010 to FY 2018.

 

41 See 5 U.S.C. § 8909a.

42 See 5 U.S.C. § 8348.

Source: Postal Service FY 2018 Form 10-K at 54; PRC derived from September 2018 National Trial Balance.
FY 2018 Financial Analysis Report - 31 -

Table II-19

Postal Service Statements of Cash Flows, FY 2010 – FY 2018

($ in Millions)

Numbers may not add across due to rounding.

Source: Postal Service FY 2010 to FY 2018 Forms 10-K.

Table II-20 illustrates the current liquidity position of the Postal Service. The Postal 

Service’s liquidity is limited to cash and cash equivalents excluding restricted cash and 

available borrowing authority. For the first time since FY 2012, the Postal Service paid 

down a portion of its debt, allowing for $1.8 billion in available borrowing authority.

Table II-20

Total Postal Service Liquidity

End of FY 2018 Compared to FY 2017

 Source: Id. at 54.

FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 FY 2018

Net Income/(Loss) $(8,505) $(5,067) $(15,906) $(4,977) $(5,508) $(5,060) $(5,591) $(2,742) $(3,913)

Non-Cash Items and Other Cash Flows 5,213 5,561 15,474 5,912 8,822 7,939 8,327 6,565 6,680

Cash Flows from Investing Activities:

 Decrease (Increase) in Restricted Cash (10) (28) (79) 6 6 1 3 (20) (38) 1 6

 Purchase of Property and Equipment (1,393) (1,190) (705) (667) (781) (1,222) (1,428) (1,344) (1,409)

 Proceeds from Sale of Property and Equipment 7 0 137 148 158 129 120 206 5 8 3 2

Net Cash Used in Investing Activities (1,323) (1,063) (585) (588) (586) (1,089) (1,242) (1,324) (1,361)

Cash Flows from Financing Activities:

 Increase (Decrease) in Debt 1,800 1,000 2,000 - - - - - (1,800)

 Payments for Capital Leases (50) (51) (51) (59) (58) (62) (51) (63) (58)

 U.S. Government Appropriations - Expensed (63) (63) (129) (48) (90) - - - -

Net Cash (used) Provided by Financing Activities 1,687 886 1,820 (107) (148) (62) (51) (63) (1,858)

Net Increase/(Decrease) in Cash (2,928) 317 803 240 2,580 1,728 1,443 2,436 (452)

Cash Balance Beginning of Year 4,089 1,161 1,283 2,086 2,326 4,906 6,634 8,077 10,513

Cash Balance End of Year $1,161 $1,283 $2,086 $2,326 $4,906 $6,634 $8,077 $10,513 $10,061

Debt Outstanding $12,000 $13,000 $15,000 $15,000 $15,000 $15,000 $15,000 $15,000 $13,200

FY 2018 FY 2017

Cash and Cash Equivalents $10,061 $10,513

Current Portion of Debt 11,000 10,100

Long-Term Debt 2,200 4,900

Total Debt $13,200 $15,000

Statutory Debt Limit 15,000 15,000

Available Debt 1,800 0

Total Liquidity (Cash + Available Debt) $11,861 $10,513
FY 2018 Financial Analysis Report - 32 -

Chapter III. Volume, Revenue, and Cost 

Trends

Overview

This chapter presents an in-depth analysis of volume, revenue, and cost trends in three 

sections.

The first section describes the calculation of attributable cost, institutional cost, changes in 

cost attribution methodology, and changes in institutional cost as a percentage of total cost, 

referred to as institutional cost share. It also examines the overall trends for Market 

Dominant and Competitive products and services.

The second and third sections analyze the Market Dominant (organized by class) and 

Competitive products, respectively. These sections provide comparisons of volume, 

revenue, and cost between FY 2017 and FY 2018;43 trend analyses that highlight changes in 

volume, revenue, and cost that have occurred since FY 2007;44 and analyses by cost 

segment.

Overall Volume, Revenue, and Cost Trends

Attributable and Institutional Cost Relationships

39 U.S.C. § 3622(c)(2) defines attributable cost as the “direct and indirect postal costs 

attributable to each class or type of mail service through reliably identified causal 

relationships plus that portion of all other costs of the Postal Service reasonably assignable 

to such class or type[.]” In Order No. 3506, the Commission revised the methodology for 

determining attributable cost to include inframarginal costs developed as part of the 

estimation of incremental costs.45 Previously, attributable cost only included the sum of 

volume-variable costs,46 which in the aggregate, increase as volume increases and decrease 

as volume decreases, and product-specific fixed costs, which are costs caused by a specific 

product or class but do not vary with volume (Volume-Variable plus Product-Specific).

In FY 2017, the Postal Service implemented the revised methodology of cost attribution 

discussed in Order No. 3506 in its CRA Report. The Commission also uses the revised 

 

43 FY 2017 volume, revenue, and cost data that is not depicted in tables in this section can be found in the corresponding section of the FY 2017 

Financial Report.

44 For most comparisons, FY 2007 is used as the base year because it reflects the mail reclassifications that resulted from the PAEA. Other 

comparisons use more recent fiscal years.

45 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 (Order No. 3506).

46 Total volume-variable cost is calculated by multiplying total cost by the volume variability ratio for each cost segment.
FY 2018 Financial Analysis Report - 33 -

methodology of attributable cost to evaluate product and class costs in this chapter for 

both FY 2017 and FY 2018. Under the revised methodology, attributable costs are equal to 

incremental costs, which reflect the total marginal costs of the volume in a class or 

product.47 While the change in methodology impacts comparisons of attributable cost over 

time, attributed inframarginal costs make up less than 4 percent of each product’s 

attributable cost.

The Commission also analyzes changes in cost for certain cost segments.48 Unlike product 

level costs, in FY 2017, the Commission analyzed component level costs using VolumeVariable plus Product-Specific cost. However, for its FY 2018 analyses, the Commission 

uses average unit attributable segment costs, which include applicable inframarginal 

costs.49 Attributable cost is distributed to products using distribution keys that reflect the 

underlying cost driver.50

Institutional cost cannot be attributed to a specific product or service and is equal to total 

cost minus total attributable cost. While sometimes referred to as “fixed cost,” it is more 

accurately characterized as “common cost” because it includes costs that are variable but 

not causally related to an individual product or class. Institutional cost includes costs for 

carrier network travel time, amortization of RHB unfunded liability, amortization of CSRS 

unfunded liability apportioned to prior years, and various administrative costs. The 

institutional cost share is the ratio of total institutional cost to total costs. Holding all else 

equal, a higher mail volume results in a lower institutional cost share and a lower mail 

volume results in a higher institutional cost share.51

The Commission has previously discussed how the institutional cost share changes as 

volume increases and decreases. The Commission has also discussed how changes in 

operational factors such as volume mix and volume weighted by the average attributable 

cost of individual products will also change the institutional cost share. Non-volume 

operational factors such as changes in the number of delivery points also affect 

institutional costs. There are also non-operational factors such as Generally Accepted 

Accounting Principles changes in the law and Commission-approved costing methodologies 

which have an effect on the ratio of total institutional cost to total costs. Id. Annual changes 

in institutional cost are primarily driven by accruals for retirement-related expenses, 

workers’ compensation, and delivery network costs. Therefore, institutional cost will 

increase or decrease depending on changes to retirement obligations (initiated by OPM), 

interest rate fluctuations that impact the workers’ compensation liability, and increases in 

 

47 Incremental costs are sub-additive, meaning that the sum of the attributable costs of all products in a class is not equal to the attributable 

cost of the class as a whole. The Postal Service generally exhibits declining marginal costs. As a result, the incremental cost of a class includes 

additional inframarginal costs that are not included in the incremental cost of the individual products within the class. For this reason, product 

attributable costs do not add to total attributable cost in Tables III-21, III-24, and III-26.

48 The analysis of a product’s unit costs by cost segment is intended to provide insight into the cost of the activities performed in handling each 

mailpiece. For this reason, these costs are piggybacked to include the indirect costs of each activity.

49 The impact of the change in methodology is noted in the relevant discussions.

50 The Postal Service assigns these costs to each product according to methodologies approved by the Commission. Changes to those 

methodologies are reviewed by the Commission in informal rulemaking proceedings, and members of the general public are given the 

opportunity to comment in such proceedings.

51 Postal Regulatory Commission Financial Analysis of United States Postal Service Financial Results and 10-K Statement, Fiscal Year 2014, April 

1, 2015, at 35-37 (FY 2014 Postal Regulatory Commission Financial Report).
FY 2018 Financial Analysis Report - 34 -

delivery points or changes due to restructuring routes. Table III-1 shows the causes of the 

changes in institutional cost each year since FY 2010. The largest drivers of the year-toyear changes have been workers’ compensation and annuitant health benefits, and 

amortization on unfunded retirement funds rather than changes in operational costs. Over 

time, the institutional cost of city and rural carriers has generally increased in a manner 

consistent with the steady increase in the number of delivery points.52

Table III-1

Main Sources of Change in Institutional Cost,53 FY 2010 – FY 2018

Source: The Postal Regulatory Commission derived from Postal Service Cost Segment and Component Reports, FY 2010 to FY 2018.

Market Dominant Products and Services

Table III-2 illustrates the changes in total volume, revenue, attributable cost, and 

contribution to institutional cost for Market Dominant products and services between 

FY 2017 and FY 2018.

Table III-2

Market Dominant Volume, Revenue, and Cost, FY 2018 and FY 2017

Negative values are denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Total Market Dominant revenue decreased by 2.8 percent in FY 2018, due to a decrease in 

Market Dominant volume, resulting in part from the transfer of single-piece retail parcels 

 

52 See Docket No. ACR2018, Annual Compliance Determination, April 12, 2019, at 202-203 for a discussion of recent changes in the number of 

delivery points and volume per delivery point.

53 For this analysis, the Commission uses the Postal Service’s institutional cost figures, which reflect attribution of incremental costs before the 

product level, and the class level.

FY 2018 FY 2017 FY 2016 FY 2015 FY 2014 FY 2013 FY 2012 FY 2011 FY 2010

($ 000) ($ 000) ($ 000) ($ 000) ($ 000) ($ 000) ($ 000) ($ 000) ($ 000)

Workers' Compensation 1,001,539 (3,419,553) 965,985 (654,814) 1,290,341 (2,600,835) (99,435) (48,990) 1,189,647

Annuitant Health Benefits 13,942 (4,913,951) 388,908 27,737 332,737 (5,124,055) 11,471,877 (5,109,985) 4,460,307

CSRS Supplemental Liability (269,554) 1,549,748 - - - - - - -

City and Rural Carriers 366,526 476,736 412,202 480,678 (109,145) 29,037 270,852 240,636 103,512

FERS Supplemental Liability 41,629 668,715 149,024 102,998 2,664 407 309 (276) 563

Transportation 98,572 579,903 103,181 (31,117) (23,560) 15,148 21,239 46,419 7,033

Supplies and Services 3,306 73,733 116,728 19,641 43,336 113,029 (56,587) 114,221 (100,798)

Clerks and Mailhandlers 47,675 40,987 116,610 243,895 69,139 39,877 (34,660) (110,561) (206,751)

Other (441,994) (7,065) 424,112 (442,208) (546,099) 84,464 (515,960) 458,194 (197,967)

Total Change 861,641 (4,950,746) 2,676,750 (253,189) 1,059,414 (7,442,928) 11,057,636 (4,410,343) 5,255,547

FY 2018 FY 2017 Variance

Volume (Millions) 140,738 144,387 (2.5)%

Revenue ($ Millions) 46,432 47,788 (2.8)%

Attributable Cost ($ Millions) 28,437 28,794 (1.2)%

Contribution to Institutional Cost ($ Millions) 17,995 18,994 (5.3)%
FY 2018 Financial Analysis Report - 35 -

from the Market Dominant product list to the First-Class Package Service product on the 

Competitive product list.54 On a unit basis, revenue remained unchanged from FY 2017 at 

$0.33 per piece.

Total attributable cost for Market Dominant products decreased by 1.2 percent from FY 

2017. The average unit attributable cost remained unchanged from FY 2017 at $0.20 per 

piece.

Total Market Dominant contribution to institutional cost decreased by $999 million or 5.3 

percent in FY 2018, as Market Dominant volume decreased by 3.6 billion pieces or 2.5 

percent.

Market Dominant products accounted for 96.1 percent of total mail volume, a drop of 0.5 

percentage points from FY 2017. Revenue from these products as a percentage of total 

revenue from mail and services decreased from 68.7 percent to 65.8 percent. Market 

Dominant attributable cost as a percentage of total attributable cost decreased from 67.4 

percent in FY 2017 to 64.7 percent in FY 2018.

Several Market Dominant products failed to generate sufficient revenue to cover 

attributable cost, resulting in negative contribution for these products. The total negative 

contribution to institutional cost from these products amounted to $1.6 billion, about $139 

million more than in FY 2017. Five domestic mail products failed to cover their attributable 

cost: USPS Marketing Mail Flats ($751.5 million), USPS Marketing Mail Parcels ($30.4 

million), Periodicals Outside County ($586.2 million), Periodicals In-County ($26.7 million), 

and Package Services Media Mail/Library Mail ($84.0 million). In addition, the Stamped 

Envelopes service, as well as Inbound Letter Post, had a negative contribution in FY 2018.

Market Dominant Volume Trends

Figure III-1 shows the total volume for Market Dominant products over the last 12 years. 

Since FY 2007, volume for Market Dominant products has declined by 69.9 billion pieces.

 

54 Docket No. MC2015-7, Order Conditionally Approving Transfer, July 20, 2017 (Order No. 4009).
FY 2018 Financial Analysis Report - 36 -

Figure III-1

Market Dominant Volume, FY 2007 – FY 2018

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, PRC-LR-ACR2017/1; Docket No. ACR2016, PRC-LR-ACR2016/1; Docket 

 No. ACR2015, Library Reference PRC-LR-ACR2015/1; FY 2007-FY 2014 ACD; Library Reference PRC-LR-1.

In FY 2018, First-Class Mail and USPS Marketing Mail accounted for 95.8 percent of total 

Market Dominant volume. First-Class Mail volume has declined by 38.8 billion pieces since 

FY 2007, representing a 40 percent loss in volume. USPS Marketing Mail volume has also 

declined considerably, by 26.2 billion pieces (25.3 percent) since FY 2007.

Market Dominant Revenue and Cost Trends

Total Market Dominant revenue and attributable cost have also declined since FY 2007. 

Total revenue declined by 26.5 percent while total attributable cost declined by 24.2 

percent. Figure III-2 compares revenue and attributable cost since FY 2007.

0.0

50.0

100.0

150.0

200.0

250.0

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Billions of Pieces

Fiscal Year

First-Class Mail Marketing Mail All Other Mail
FY 2018 Financial Analysis Report - 37 -

Figure III-2

Market Dominant Revenue and Attributable Cost, FY 2007 – FY 2018

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library

Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRCLR-ACR2014/1; FY 2007- FY 2013 ACD; Library Reference PRC-LR-1.

Competitive Products and Services

Both volume and revenue for Competitive products increased in FY 2018. Table III-3 

compares the total volume, revenue, and cost of these products and services between 

FY 2017 and FY 2018.

Table III-3

Competitive Volume, Revenue, and Cost, FY 2018 and FY 2017

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Library Reference USPS-FY18-42.

FY 2018 FY 2017 Variance

Volume (Millions) 5,663 5,103 11.0%

Revenue ($ Millions) 23,059 20,690 11.5%

Attributable Cost ($ Millions) 15,466 13,884 11.4%

Contribution to Institutional Cost ($ Millions) 7,593 6,806 11.6%
FY 2018 Financial Analysis Report - 38 -

Volume grew 11.0 percent in FY 2018 compared with 13.4 percent in FY 2017. About a 

third of the increase in FY 2018 is due to the transfer of the First-Class Mail Parcels product 

from the Market Dominant product list to the Competitive product list. On September 3, 

2017, the First-Class Mail Parcels product became a new “Retail” rate category within the 

existing First-Class Package Service product.

Revenue in FY 2018 increased by 11.5 percent or $2.4 billion. However, unit revenue 

remained nearly unchanged, increasing by 0.4 percent. Similarly, attributable cost 

increased by 11.4 percent in FY 2018, while unit attributable cost increased by just 0.4 

percent. Contribution to institutional cost increased both in the aggregate and on a unit 

basis. In FY 2018, contribution to institutional cost increased by 11.6 percent, and by 0.5 

percent on a unit basis.

As shown in Figure III-3, the Competitive products’ share of total Postal Service revenue 

and attributable cost has increased nearly threefold since FY 2007. Competitive products’ 

share of contribution to institutional cost has also steadily increased from just 5.2 percent 

in FY 2007 to 28.5 percent in FY 2018.

Figure III-3

Competitive Percentage Share of Total Postal Service Revenue, Cost,

and Contribution to Institutional Cost, FY 2007 – FY 2018

 

 Source: Postal Service Cost and Revenue Analysis (CRA) Reports, FY 2007-FY 2018.
FY 2018 Financial Analysis Report - 39 -

Figure III-4 illustrates the changes in average unit revenue and cost from FY 2007 to 

FY 2018. Competitive products are required to collectively cover 5.5 percent of the Postal 

Service’s institutional costs.55 The minimum required contribution is shown in Figure III-4 

as an average cents per piece. Since FY 2007, average unit revenue for Competitive 

products and services exceeded the combined average unit attributable cost and required 

contribution per piece.

Figure III-4

Competitive Average Unit Revenue and Cost, FY 2007 – FY 2018

Total contribution to institutional cost from Competitive products continues to exceed the 

required contribution to institutional cost.56 As shown in Figure III-5, the contribution of 

Competitive products has increased significantly in recent years, although the increase in 

FY 2018 is more modest than in FY 2017.

 

55 39 C.F.R. § 3015.7(c).

56 Order No. 4963 amended Part 3015 of Title 39, Code of Federal Regulations, replacing the minimum 5.5 percent appropriate share with a 

formula-based approach. Had amendments been in place in FY 2018, the Postal Service’s Competitive products would have had to contribute 

8.6 percent of institutional cost in FY 2018, less than the Postal Service contributed in FY 2018.

Source: Postal Service CRA Reports, FY 2007-FY 2018.
FY 2018 Financial Analysis Report - 40 -

Figure III-5

Competitive Contribution to Institutional Cost, FY 2007 – FY 2018

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRC-LRACR2014/1; FY 2007-FY 2013 ACD; Library Reference PRC-LR-1.

Market Dominant Volume, Revenue, and Cost 

Trends by Class

First-Class Mail

Five products are assigned to First-Class Mail: Single-Piece Letters/Postcards; Presorted 

Letters/Postcards; Flats; Outbound Single-Piece First-Class Mail International; and 

Inbound Letter Post. For comparison purposes in this report, the products are grouped into 

letters, flats, and “all other.”57

FIRST-CLASS MAIL LETTERS COMPARED WITH FY 2017

Table III-4 summarizes the FY 2018 change in total volume and revenue for First-Class Mail 

letters. First-Class Mail letters volume continued to decline in FY 2018, although at a slower 

rate than in FY 2017. For single-piece letters, the rate of decline was 5.6 percent compared 

to 5.7 percent in FY 2017. Presorted letters volume decreased 2.4 percent in FY 2018, 

compared to 2.8 percent in FY 2017.

 

57 “All other” includes cards, Outbound Single-Piece First-Class Mail International, Inbound Letter Post, and Inbound International NSAs.
FY 2018 Financial Analysis Report - 41 -

Revenue for First-Class Mail letters decreased by 2.5 percent in FY 2018, due primarily to 

loss of volume. Unit revenue remained at 42 cents per piece. As single-piece letters volume 

declined more than presorted letters volume, the decrease in total revenue for single-piece 

letters was more significant than the decrease in total revenue for presorted letters, 3.7 

percent and 1.7 percent, respectively.

Table III-4

First-Class Mail Letters Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-5 summarizes the FY 2018 change in total attributable cost for First-Class Mail 

letters. Total attributable cost for First-Class Mail letters decreased by $50 million from FY 

2017. However, the decrease in attributable cost did not keep pace with the loss of volume. 

Consequently, average unit attributable cost increased 3.0 percent. On a unit basis, 

attributable cost for both single-piece letters and presorted letters increased in FY 2018, 

3.9 percent and 3.6 percent, respectively. The loss of volume for single-piece letters caused 

single-piece letters total attributable cost to decrease despite an increase in unit cost. In 

contrast, total attributable cost for presorted letters increased because the decrease in 

volume for presort letters was not enough to offset the increase in unit cost. These changes 

are discussed in further detail in the following section.

Table III-5

First-Class Mail Letters Attributable Cost and Average Unit Attributable Cost,

FY 2018 and FY 2017

Negative values denoted by ()

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Single-Piece 16,830 17,832 (1,002) -5.6% 8,480 8,804 (324) -3.7%

Presorted 35,796 36,670 (874) -2.4% 13,812 14,054 (242) -1.7%

Total Letters 52,626 54,502 (1,876) -3.4% 22,292 22,857 (566) -2.5%

(Millions) ($ in Millions)

Mail Volume Mail Revenue

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Single-Piece 5,217 5,318 (101) -1.9% 31.0 29.8 1.2 3.9%

Presorted 4,456 4,405 51 1.2% 12.4 12.0 0.4 3.6%

Total Letters 9,673 9,723 (50) -0.5% 18.4 17.8 0.5 3.0%

($ in Millions) (Cents per Piece)

Attributable Cost Unit Attributable Cost
FY 2018 Financial Analysis Report - 42 -

TRENDS IN FIRST-CLASS MAIL LETTERS

Customer “migration toward electronic communication and transaction alternatives” 

continues to erode First-Class Mail letters volume.58 Figure III-6 illustrates the rate of 

decline for First-Class Mail letters volume. In FY 2018, the rate of decline for single-piece 

letters decreased slightly compared with FY 2017, but it still exceeds the rates of decline in 

the 3 years preceding FY 2017, when the rate of decline remained consistently close to 4 

percent.

The volume of First-Class Mail presorted letters has decreased every year since FY 2007. 

The rate of decline for First-Class Mail presorted letters volume decreased to 2.4 percent in 

FY 2018 from 2.8 percent in FY 2017; however, it is still relatively high compared with FY 

2014, FY 2015, and FY 2016.

Figure III-6

First-Class Mail Letters Percentage Change in Volume, FY 2008 – FY 2018

Figure III-7 shows the change in the average unit attributable cost for First-Class Mail 

letters. First-Class Mail single-piece letters average unit attributable cost has increased 

each year for the last 3 years, increasing 4.7 percent in FY 2016, 6.0 percent in FY 2017, 

and 3.9 percent in FY 2018.

There is no perceivable trend for changes in the average unit attributable cost for FirstClass Mail presorted letters. Unit attributable cost for First-Class Mail presorted letters 

increased in both FY 2017 and FY 2018, after a large decrease in FY 2016.59 The FY 2018 

increase is the largest since FY 2012.

 

58 Postal Service FY 2018 Form 10-K at 22.

59 The increases and decreases for FY 2016 are atypical because in FY 2016, the Postal Service corrected an In-Office Cost System (IOCS) coding 

error that shifted costs from First-Class Mail presorted letters to First-Class Mail single-piece letters.

Source: Postal Service Revenue, Pieces and Weight (RPW) Reports, FY 2008-FY 2018.
FY 2018 Financial Analysis Report - 43 -

Figure III-7

First-Class Mail Letters Percentage Change in Average Unit Attributable Cost,

FY 2010 – FY 2018

Table III-6 compares the average unit attributable cost for presorted letters, by cost 

segment, for FY 2013 through FY 2018. This unit attributable cost includes all of the 

indirect cost that is piggybacked to the direct cost.60 Mail processing unit cost increased 

significantly in FY 2018, representing the largest annual increase in mail processing cost 

over that period. City carrier in-office unit costs for presorted letters increased by 8.3 

percent in FY 2018, after 2 consecutive years of decreases. Both of these segments 

represent mail processing activities, as carrier in-office cost is largely comprised of time 

spent sorting mail for delivery. The average unit attributable cost for city carrier street 

increased 5.6 percent from FY 2017. However, the increase is due entirely to the change in 

cost attribution methodology. As the table also shows, rural carrier unit cost increased by 

2.2 percent in FY 2018, a much smaller increase than in FY 2017.

 

60 In addition to the direct costs, there are other “indirect” costs associated with the direct cost component or cost segment. Some examples of 

these indirect costs are Cost Segment 3 Administrative Clerks, Cost Segment 12 Vehicle Service Costs, Cost Segment 15 Rents and Fuel and 

Utilities, and Cost Segment 18 Service-wide Labor Costs (such as, workers’ compensation, etc.). These “indirect” costs are referred to as 

“piggybacked” costs and are developed in Library Reference USPS-FY18-24. The unit attributable cost by cost segment presented in this report 

are “piggybacked” costs, unless stated otherwise.

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRCLR-ACR2014/1; FY 2007- FY 2013 ACD; Library Reference PRC-LR-1.
FY 2018 Financial Analysis Report - 44 -

Table III-6

First-Class Mail Presorted Letters Average Unit Attributable Cost by Segment, 

FY 2013 – FY 2018

Source: The Postal Regulatory Commission derived from Postal Service Cost Segment and Component Reports, FY 2013 to FY 2018.

FIRST-CLASS MAIL FLATS COMPARED WITH FY 2017

Table III-7 shows the total volume and revenue for First-Class Mail Flats. First-Class Mail 

single-piece flats volume declined 4.4 percent in FY 2018 compared to a 10.0 percent 

decline in FY 2017. First-Class Mail presorted flats volume declined 4.8 percent in FY 2018, 

minimally exceeding the decrease in FY 2017 (4.2 percent).

Total revenue for First-Class Mail Flats also declined compared with FY 2017. The decrease 

in FY 2018 is more modest than the decrease in FY 2017, 3.9 percent versus 9.7 percent.

Table III-7

First-Class Mail Flats Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-8 summarizes the FY 2018 change in attributable cost. Total attributable cost for 

First-Class Mail Flats increased by 1.4 percent. However, on a unit basis, costs increased 

more significantly, by 6.3 percent. The average unit attributable cost for single-piece flats 

and presorted flats increased by 4.3 percent and 10.9 percent, respectively.

FY 2018 FY 2017 FY 2016 FY 2015 FY 2014 FY 2013 FY 2018 FY 2017 FY 2016 FY 2015 FY 2014

Mail Processing 5.51 5.26 5.18 5.87 5.55 5.49 4.8% 1.5% -11.8% 1.2% -5.0%

City Carrier In-Office 1.57 1.45 1.47 1.54 1.52 1.40 8.3% -1.4% -4.5% 8.7% -5.6%

City Carrrier Street 2.45 2.32 2.32 2.21 2.38 2.41 5.6% 0.0% 5.2% -1.6% 2.1%

Rural carriers 0.91 0.89 0.83 0.82 0.81 0.78 2.2% 7.2% 0.7% 4.1% -14.2%

Transportation 1.42 1.36 1.34 1.27 1.17 1.22 4.4% 1.2% 6.1% -4.3% -0.4%

All Other 0.59 0.57 0.53 0.58 0.58 0.59 3.5% 7.5% -8.6% -7.2% -14.4%

Cost Segment

Unit Attributable Cost Change in Unit Attributable Cost 

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Single-Piece 827 865 (38) -4.4% 1,365 1,405 (41) -2.9%

Presorted 555 583 (28) -4.8% 549 586 (37) -6.3%

Total Flats 1,382 1,448 (66) -4.6% 1,914 1,992 (77) -3.9%

Mail Volume Mail Revenue

(Millions) ($ in Millions)
FY 2018 Financial Analysis Report - 45 -

Table III-8

First-Class Mail Flats Attributable Cost and Average Unit Attributable Cost,

FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

TRENDS IN FIRST-CLASS MAIL FLATS

First-Class Mail Flats volume has been declining for years. Figure III-8 compares the 

percentage change in First-Class Mail Flats volume from FY 2008 to FY 2018. Since 

FY 2007, First-Class Mail Flats volume decreased by 65.2 percent. Single-piece flats volume 

continues its downward trend. Although both presorted flats and single-piece flats lost 

volume since FY 2007, most of the First-Class Mail Flats volume loss occurred in First-Class 

Mail single-piece flats. Since FY 2007, single-piece flats have decreased 73.8 percent, 

compared to a 32.2 percent volume decrease for presorted flats.

Figure III-8

Percentage Change in First-Class Mail Flats Volume, FY 2008 – FY 2018

Figure III-9 compares the average unit attributable cost for First-Class Mail single-piece 

and presorted flats since FY 2008. The average unit attributable cost for First-Class Mail 

single-piece flats has increased every year since FY 2014. However, the FY 2018 increase is 

the smallest over that period. Conversely, for First-Class Mail presorted flats, the increase 

in average unit attributable cost was greater in FY 2018 than any year since FY 2012.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Single-Piece 1,081 1,084 (3) -0.3% 130.7 125.4 5.4 4.3%

Presorted 473 449 25 5.5% 85.3 76.9 8.3 10.9%

Total Flats 1,554 1,533 21 1.4% 112.5 105.8 6.6 6.3%

($ in Millions) (Cents per Piece)

Attributable Cost Unit Attributable Cost

Source: Postal Service RPW Reports, FY 2008 – FY 2018.
FY 2018 Financial Analysis Report - 46 -

Figure III-9

First-Class Mail Flats Average Unit Attributable Cost, FY 2008 – FY 2018

Table III-9 compares the average unit attributable cost by cost segment of First-Class Mail 

single-piece and presorted flats for FY 2017 and FY 2018.

For all cost segments except city carrier in-office and rural carrier, in FY 2018, average unit 

attributable cost for First-Class Mail single-piece flats exceeded the average unit 

attributable cost for First-Class Mail presorted flats. With few exceptions, compared to FY 

2017, the average unit attributable cost for both First-Class Mail single-piece flats and 

First-Class Mail presorted flats increased in all cost segments. One exception is 

transportation, which decreased for both the single-piece and presorted categories. For 

First-Class Mail single-piece flats, the average unit attributable cost for rural carrier cost 

also decreased in FY 2018.

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, 

Library Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library 

Reference PRC-LR-ACR2014/1; FY 2008- FY 2013 ACD; Library Reference PRC-LR-1.
FY 2018 Financial Analysis Report - 47 -

Table III-9

First-Class Mail Flats Average Unit Attributable Cost by Segment,

FY 2017 and FY 2018

Source: The Postal Regulatory Commission derived from Postal Service Cost Segment and Component Reports, FY 2017 and FY 2018.

OTHER FIRST-CLASS MAIL COMPARED WITH FY 2017

Table III-10 shows the volume and revenue for “all other” First-Class Mail. The volume of 

Cards, Outbound Single-Piece First-Class Mail International and Inbound International 

NSAs each decreased in FY 2018. Only Inbound Letter Post volume increased, likely due to 

volume shifting to this product from Inbound International NSAs when bilateral 

agreements with foreign postal administrations expired and were not replaced.

Revenue increased for both of the inbound international products. Inbound Letter Post 

revenue increased considerably compared with FY 2017. In comparison, inbound NSA 

revenue increased just minimally. The loss in Outbound Single-Piece First-Class Mail 

International revenue is similar in magnitude to the decreases in FY 2017. Revenue for 

cards revenue decreased just slightly in FY 2018, compared to a 9 percent decrease in 

FY 2017.

Table III-10

All Other First-Class Mail Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Single-Piece Presort Diff. Single-Piece Presort Diff.

Mail Processing 71.3 42.0 29.3 75.4 47.5 27.9

City Carrier In-Office 12.7 12.1 0.6 13.9 14.6 (0.7)

City Carrrier Street 7.9 4.2 3.7 8.1 4.4 3.7

Rural Carriers 4.2 3.0 1.2 3.1 3.3 (0.2)

Transportation 19.4 12.3 7.1 19.0 12.1 6.9

All Other 9.9 2.7 7.2 11.3 2.7 8.6

Total 125.4 76.4 49.0 130.7 84.8 45.9

Cost Segment

FY 2017 FY 2018

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Total Cards 2,706 2,796 (91) -3.2% 770 787 (18) -2.2%

Outbound Single-Piece First-Class Mail 

International 132 152 (20) -13.2% 198 231 (33) -14.3%

Inbound Letter Post 444 401 44 10.9% 422 293 129 44.1%

Inbound International NSAs 178 243 (65) -26.7% 420 414 5 1.3%

Total Other First-Class Mail 3,460 3,592 (132) -3.7% 1,810 1,726 84 4.9%

Mail Volume Mail Revenue

(Millions) ($ in Millions)
FY 2018 Financial Analysis Report - 48 -

Table III-11 presents the changes in total attributable cost and average unit attributable 

cost for “all other” First-Class Mail between FY 2017 and FY 2018. On a unit basis, the 

attributable cost of First-Class Mail cards and Inbound Letter Post decreased slightly from 

FY 2017. The unit attributable cost for the other two categories increased considerably. For 

the inbound international products the change in unit attributable cost reflects the 

movement of lower-cost NSA volume to the Inbound Letter Post category.

Table III-11

Other First-Class Mail Attributable Cost and Average Unit Attributable Cost,

FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

USPS Marketing Mail

USPS Marketing Mail is comprised of seven products: Letters, Flats, Parcels, Carrier Route, 

High Density and Saturation Letters, High Density and Saturation Flats/Parcels, and Every 

Door Direct Mail—Retail (EDDM-R). For comparison purposes, the products have been 

grouped into letters and flats.

USPS MARKETING MAIL LETTERS COMPARED WITH FY 2017

Table III-12 summarizes the FY 2018 change in volume and revenue of letter-shaped USPS 

Marketing Mail. High Density and Saturation Letters revenue increased considerably in 

FY 2018 due to a combination of higher prices and increased volume. For USPS Marketing 

Mail Letters, revenue increased slightly in FY 2018, despite a decrease in volume compared 

with FY 2017.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Total Cards Outbound Single-Piece First-Class Mail 354 374 (20) -5.2% 13.1 13.4 (0.3) -2.0%

International 139 139 0 0.1% 105.7 91.6 14.1 15.3%

Inbound Letter Post 504 463 41 8.9% 113.4 115.6 (2.1) -1.8%

Inbound International NSAs 258 278 (20) -7.3% 144.8 114.5 30.3 26.5%

Total Other First-Class Mail 1,256 1,254 1 0.1% 36.3 34.9 1.4 3.9%

Attributable Cost Unit Attributable Cost

($ in Millions) (Cents per Piece)
FY 2018 Financial Analysis Report - 49 -

Table III-12

USPS Marketing Mail Letters Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-13 summarizes the FY 2018 change in attributable cost for USPS Marketing Mail 

letters. Attributable cost for both the Letters and the High Density and Saturation Letters 

products increased in the aggregate and on a unit basis. Total attributable cost for lettershaped USPS Marketing Mail increased 1.8 percent in FY 2018. The attributable cost of 

High Density and Saturation Letters increased considerably (8.8 percent); however, it is a 

relatively low volume product compared with USPS Marketing Mail Letters.

Table III-13

USPS Marketing Mail Letters Attributable Cost and Average Unit Attributable Cost

FY 2018 and FY 2017

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

TRENDS IN USPS MARKETING MAIL LETTERS

As shown in Figure III-10, changes in USPS Marketing Mail letters volume have been more 

moderate in recent years. High Density and Saturation Letters volume increased every year 

since FY 2012. But, increases in the past 2 years were relatively small. USPS Marketing Mail 

Letters volume decreased slightly in FY 2018, marking the second annual decrease in a 

row.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Letters 46,517 46,973 (456) -1.0% 9,678 9,600 78 0.8%

High Density and Saturation 

Letters 7,265 7,094 171 2.4% 1,157 1,093 64 5.8%

Total Letters 53,782 54,067 (285) -0.5% 10,835 10,693 142 1.3%

Mail Volume Mail Revenue

(Millions) ($ in Millions) Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Letters 4,963 4,912 51 1.0% 10.7 10.5 0.2 2.0%

High Density and Saturation Letters 560 515 45 8.8% 7.7 7.3 0.4 6.2%

Total Letters 5,523 5,427 96 1.8% 10.3 10.0 0.2 2.3%

Attributable Cost Unit Attributable Cost

($ in Millions) (Cents per Piece)
FY 2018 Financial Analysis Report - 50 -

Figure III-10

Percent Change in USPS Marketing Mail Letters Volume, FY 2008 – FY 2018

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

 Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference 

 PRC-LR-ACR2014/1; FY 2007- FY 2013 ACD; Library Reference PRC-LR-1.

Figure III-11 shows the average unit attributable cost for USPS Marketing Mail letters since 

FY 2009. The average unit attributable cost for USPS Marketing Mail Letters has remained 

relatively stable since FY 2009; annual unit attributable cost changes were less than 0.5 

cent every year. The average unit attributable cost for High Density and Saturation Letters 

increased for the last 5 years.
FY 2018 Financial Analysis Report - 51 -

Figure III-11

USPS Marketing Mail Letters Average Unit Attributable Cost, FY 2009 – FY 2018

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

 Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRC-

 LR-ACR2014/1; FY 2009 - FY 2013 ACD; Library Reference PRC-LR-1.

USPS MARKETING MAIL FLATS COMPARED WITH FY 2017

Table III-14 summarizes the FY 2017 changes in volume and revenue for flat-shaped USPS 

Marketing Mail.61 Volume for most flat-shaped USPS Marketing Mail declined in FY 2018. 

USPS Marketing Mail Flats experienced the largest decline (17.7 percent), with 876 million 

fewer pieces in FY 2018 than in FY 2017. Carrier Route and EDDM-R volume decreased 

more modestly, 3.1 percent and 6.0 percent, respectively. Only the volume of High Density 

and Saturation Flats/Parcels increased in FY 2018.

Revenue for flat-shaped USPS Marketing Mail declined 4.3 percent in FY 2018. The 

decrease in Flats volume resulted in a 13.3 percent decrease in Flats revenue. Carrier Route 

and EDDM-R revenue also declined, reflecting the loss of FY 2018 volume. High Density and 

Saturation Flats/Parcels revenue increased 2.5 percent in FY 2018.

 

61 Some products include parcels, however those products contain predominantly flat-shaped mailpieces.
FY 2018 Financial Analysis Report - 52 -

Table III-14

USPS Marketing Mail Flat Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-15 summarizes the FY 2018 change in USPS Marketing Mail flats attributable cost. 

Total attributable cost for flat-shaped USPS Marketing Mail increased 2.7 percent in FY 

2018. Average unit attributable cost for all flat-shaped USPS Marketing Mail products 

increased in FY 2018. Due to large decreases in volume, the total attributable cost for Flats 

and EDDM-R decreased in FY 2018 despite higher attributable cost on a unit basis.

Table III-15

USPS Marketing Mail Flats Attributable Cost and Average Unit Attributable Cost, 

FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

TRENDS IN USPS MARKETING MAIL FLATS

Total volume for flat-shaped USPS Marketing Mail has declined 30 percent since FY 2009, 

with FY 2018 contributing to the loss. As shown in Figure III-12, since FY 2012, volume 

changes for High Density and Saturation Flats/Parcels remained relatively small. Even so, 

FY 2018 marks the greatest increase in volume for that product since the enactment of 

PAEA. Although both Flats and Carrier Route volumes continued their downward trends in 

FY 2018, Flats volume decreased substantially more than in previous years.62

 

62 Large volume changes in FY 2016 and FY 2017 were due in large part to changes to the pricing structure of the Flats and Carrier Route 

products. See FY 2017 Financial Analysis Report at 53-54.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

High Density and Saturation 

Flats/Parcels 11,621 11,252 369 3.3% 2,039 1,989 49 2.5%

Carrier Route 7,074 7,297 (223) -3.1% 1,860 1,903 (43) -2.3%

Flats 4,079 4,955 (876) -17.7% 1,651 1,906 (254) -13.3%

Every Door Direct Mail--Retail 713 758 (46) -6.0% 127 134 (7) -5.5%

Total 23,486 24,262 (776) -3.2% 5,677 5,932 (255) -4.3%

(Millions) ($ in Millions)

Mail Volume Mail Revenue

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

High Density and Saturation 

Flats/Parcels 1,404 1,263 142 11.2% 12.1 11.2 0.9 7.7%

Carrier Route 1,712 1,531 181 11.9% 24.2 21.0 3.2 15.4%

Flats 2,403 2,574 (172) -6.7% 58.9 52.0 6.9 13.4%

Every Door Direct Mail - Retail 47 50 (3) -5.1% 6.7 6.6 0.1 0.9%

Total 5,567 5,418 149 2.7% 23.7 22.3 1.4 6.1%

Attributable Cost Unit Attributable Cost

($ in Millions) (Cents per Piece)
FY 2018 Financial Analysis Report - 53 -

Figure III-12

USPS Marketing Mail Flats Percent Change in Volume, FY 2010 – FY 2018

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

 Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference 

 PRC-LR-ACR2014/1; FY 2009- FY 2013 ACD; Library Reference PRC-LR-1.

The average unit attributable cost of each flat-shaped USPS Marketing Mail product has 

increased significantly over the last decade. The annual changes in average unit 

attributable cost are illustrated in Figure III-13. Although unit costs increased for all flatshaped USPS Marketing Mail products nearly every year, increases in unit costs accelerated 

in the last 2 years.
FY 2018 Financial Analysis Report - 54 -

Figure III-13

USPS Marketing Mail Flats Percent Change in Average Unit Attributable Cost,

FY 2009 – FY 2018

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

 Reference PRC-LR-ACR2016/1;Docket No. ACR2016, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference 

 PRC-LR-ACR2014/1; FY 2008- FY 2013 ACD; Library Reference PRC-LR-1.

Table III-16 compares the change in the average unit attributable cost between FY 2017 

and FY 2018. With the exception of USPS Marketing Mail Flats, city carrier street unit cost 

increased for all USPS Marketing Mail flats products. The extension of the incremental 

costing methodology to component level costs contributed to the increases in city carrier 

street and in-office unit costs.
FY 2018 Financial Analysis Report - 55 -

Table III-16

Change in USPS Marketing Mail Flats Average Unit Attributable Cost by Cost Segment,

FY 2018 and FY 2017

Source: The Postal Regulatory Commission derived from Library Reference USPS-FY18-24; Docket No. ACR2017, Library Reference USPS-FY17-

24.

Periodicals

The Periodicals class is comprised of two products: In-County and Outside County. InCounty is typically used by newspapers with smaller weekly circulations for distribution 

within the county of publication. Outside County consists of publications with a wide 

variety of circulation sizes, distribution patterns, and frequencies.

PERIODICALS COMPARED WITH FY 2017

Table III-17 summarizes the FY 2018 changes in volume and revenue for Periodicals. In FY 

2018, Periodicals volume declined by 307 million pieces, or 5.8 percent, with most of the 

decrease occurring in Outside County publications. In FY 2018, Outside County volume 

decreased 6.3 percent compared to a 1.2 percent decrease in In-County volume. Total 

revenue for Periodicals declined 7.1 percent in FY 2018. Most of the decline in total 

High Density and 

Saturation Carrier Route Flats EDDM

Mail Processing

FY 2018 1.5165 7.4566 31.0590 0.1096

FY 2017 1.2797 6.2086 27.8954 0.0718

% Change 18.5% 20.1% 11.3% 52.7%

City Carrier In-Office

FY 2018 1.3993 6.4537 13.3815 1.3360

FY 2017 1.2983 5.6614 10.8220 1.2623

% Change 7.8% 14.0% 23.7% 5.8%

City Carrier Street

FY 2018 5.1971 4.9641 4.7222 4.3192

FY 2017 4.7631 4.0644 5.5164 4.2718

% Change 9.1% 22.1% -14.4% 1.1%

Rural Carriers

FY 2018 3.3270 3.7054 3.5460 0.5251

FY 2017 3.1156 3.5998 2.9040 0.5043

% Change 6.8% 2.9% 22.1% 4.1%
FY 2018 Financial Analysis Report - 56 -

revenue is due to the loss of volume, however, unit revenue also declined slightly for both 

Outside County and In-County Periodicals.

Table III-17

Periodicals Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-18 compares total attributable cost and average unit attributable cost for 

Periodicals for FY 2017 and FY 2018. Total Periodicals attributable cost decreased by $93 

million, or 4.7 percent. The decrease in Outside County accounted for 99 percent of the 

overall decrease. However, on a unit basis, In-County attributable cost decreased while 

Outside County did not in FY 2018.

Table III-18

Periodicals Attributable Cost and Average Unit Attributable Cost, 

FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

TRENDS IN PERIODICALS

As shown in Figure III-14, Periodicals volume has continued to decline, in large part due to 

the availability of electronic alternatives. The decline in FY 2018 is similar to the declines 

seen in recent years.

Increase or Percent Increase or Percent 

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

In-County 510 516 (6) -1.2% 57 58 (1) -2.5%

Outside County 4,483 4,784 (301) -6.3% 1,220 1,317 (97) -7.3%

Total 4,993 5,301 (307) -5.8% 1,277 1,375 (98) -7.1%

Mail Volume Mail Revenue

(Millions) ($ in Millions) Increase or Percent Increase or Percent 

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

In-County 83 85 (1) -1.6% 16.3 16.4 (0.1) -0.4%

Outside County 1,806 1,898 (92) -4.8% 40.3 39.7 0.6 1.6%

Total 1,890 1,983 (93) -4.7% 37.9 37.4 0.4 1.2%

Attributable Cost Unit Attributable Cost

($ in Millions) (Cents per Piece)
FY 2018 Financial Analysis Report - 57 -

Figure III-14

Periodicals Percent Change in Volume, FY 2008 – FY 2018

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

 Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRC-LR-

 ACR2014/1; FY 2007- FY 2013 ACD; Library Reference PRC-LR-1.

The percentage change in the average unit attributable cost for In-County and Outside 

County Periodicals is shown in Figure III-15. Both In-County and Outside County average 

unit attributable cost changes have been more moderate in recent years. Over the last 5 

years, unit attributable costs for Outside County increased 1 to 3 percent annually. Unit 

attributable costs for In-County Periodicals decreased for the first time since FY 2013.
FY 2018 Financial Analysis Report - 58 -

Figure III-15

Periodicals Percent Change in Average Unit Attributable Cost, FY 2008 – FY 2018

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library 

Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRC-LRACR2014/1; FY 2007- FY 2013 ACD; Library Reference PRC-LR-1.

Table III-19 disaggregates the average unit attributable cost of Outside County Periodicals 

for FY 2016 to FY 2018. As shown in the table, the average city carrier in-office unit cost 

and average mail processing unit cost decreased in FY 2018 after a substantial increase in 

FY 2017. Unit costs for both transportation and delivery increased in FY 2018.

Table III-19

Outside County Periodicals Average Unit Attributable Cost by Segment, FY 2016 – FY 2018

Source: The Postal Regulatory Commission derived from Postal Service Cost Segment and Component Reports, FY 2016 to FY 2018.

-10.0%

-5.0%

0.0%

5.0%

10.0%

15.0%

20.0%

2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Percent Change

Fiscal Year

In-County Outside County

Cost Segment 2016 2017 2018 2017 2018

Mail Processing 19.09 20.19 20.07 5.8% -0.6%

City Carrier In-Office 6.14 6.76 6.60 10.1% -2.4%

City Carrrier Street 4.09 4.10 4.29 0.2% 4.6%

Rural carriers 3.36 3.55 3.89 5.7% 9.6%

Transportation 4.65 3.57 4.09 -23.2% 14.6%

All Other 1.28 1.40 1.24 9.4% -11.4%

Average Unit Attributable Cost

Change in Average Unit 

Attributable Cost
FY 2018 Financial Analysis Report - 59 -

Package Services

The Package Services class consists of four products: Alaska Bypass Service; Bound Printed 

Matter (BPM) Flats; Bound Printed Matter (BPM) Parcels; and Media Mail/Library Mail. 

Table III-20 summarizes the FY 2018 changes in volume and revenue for Package Services. 

Overall, Package Services volume increased 3.3 percent in FY 2018. With the exception of 

Alaska Bypass, volumes of Package Services products were all higher compared with FY 

2017. The volume of Alaska Bypass remained virtually unchanged.

Despite revenue decreases for Alaska Bypass and BPM Flats, Package Services revenue 

increased in FY 2018. Unit revenue increased slightly for all Package Services products 

except BPM Flats. BPM Flats unit revenue decreased 2.1 percent in FY 2018.

Table III-20

Package Services Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

As shown in Table III-21, attributable cost increased in the aggregate for all Package 

Services products compared with FY 2017. In FY 2018, Alaska Bypass Service cost, which 

consists entirely of Cost Segment 14 transportation, increased both in the aggregate and on 

a unit basis, 7.4 percent and 11.5 percent, respectively. For FY 2018, BPM Flats attributable 

cost increased 0.4 percent in the aggregate and remained unchanged from FY 2017 on a 

unit basis. The attributable cost of BPM Parcels increased 8.2 percent due to both an 

increase in volume and an increase in unit cost (1.9 percent) compared with FY 2017. 

Media Mail/Library Mail, the only Package Services product with a decrease in unit 

attributable cost, experienced a 2.2 percent increase in attributable cost in FY 2018.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Alaska Bypass 1 1 (0) -3.7% 33 34 (1) -2.3%

Bound Printed Matter Flats 265 264 1 0.3% 198 202 (4) -1.8%

Bound Printed Matter Parcels 295 278 17 6.2% 319 299 20 6.7%

Media Mail/Library Mail 79 76 2 3.2% 276 267 9 3.5%

Total 640 620 21 3.3% 826 801 25 3.1%

Mail Volume Mail Revenue

(Millions) ($ in Millions)
FY 2018 Financial Analysis Report - 60 -

Table III-21

Package Services Attributable Cost and Average Unit Attributable Cost,

FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-22 shows the FY 2018 percent change in unit attributable cost for selected cost 

segments. As shown in the table, BPM Flats unit costs increased in FY 2018 for all segments 

depicted except city carrier street and transportation. Transportation unit cost decreased 

26.2 percent in FY 2018, while city carrier street unit cost decreased by just 0.1 percent.

For BPM Parcels, unit costs increased in all major cost segments in FY 2018. For this 

product, motor vehicles service unit cost increased 39.2 percent, the largest increase of any 

segment.

Despite increases in carrier costs and transportation, the overall unit cost of Media 

Mail/Library Mail decreased slightly in FY 2018. Unit costs for mail processing, vehicle 

service driver and motor vehicle service decreased considerably in FY 2018, by 10.4 

percent, 9.2 percent, and 6.1 percent, respectively.

Table III-22

Package Services Percent Change in Average Unit Attributable Cost by Segment, FY 2018

Source: The Postal Regulatory Commission derived from Postal Service Cost Segment and Component Reports, FY 2017-FY 2018.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Alaska Bypass 19 17 1 7.4% 1,488.5 1,334.7 153.7 11.5%

Bound Printed Matter Flats 133 133 0 0.4% 50.1 50.1 0.0 0.0%

Bound Printed Matter Parcels 292 270 22 8.2% 99.2 97.4 1.8 1.9%

Media/Library Mail 360 353 8 2.2% 456.4 461.1 (4.7) -1.0%

Total 805 774 32 4.1% 125.8 124.8 0.9 0.8%

Attributable Cost Unit Attributable Cost

 ($ in Millions) (Cents per Piece)

BPM Flats BPM Parcels Media Mail/ Library Mail

Mail Processing 0.7% 5.3% -10.4%

City Carrier In-Office 1.3% 15.2% 51.7%

City Carrier Street -0.1% 1.9% 2.1%

Vehicle Service Driv. 2.2% 39.2% -9.2%

Rural Carriers 14.3% 14.6% 15.0%

Motor Vehicle Service 5.0% 10.1% -6.1%

Transportation -26.2% 23.6% 19.4%

All Other 158.2% -7.3% -5.0%

Total Attributable Cost 0.0% 1.9% -1.0%
FY 2018 Financial Analysis Report - 61 -

Market Dominant Special Services

The Special Services class consists of 11 products: 8 domestic products and 3 international 

products. Three Special Services products, Ancillary Services,63 Address Management 

Services, and International Ancillary Services, include a number of distinctive services.

Special Services includes Certified Mail, Insurance, Money Orders, Post Office Box Service, 

and other services that enhance Market Dominant products. As shown in Table III-23, total 

revenue for Special Services declined $60 million in FY 2018. Revenue decreased for five 

services in FY 2018: Certified Mail (8.0 percent), COD (4.7 percent), Registered Mail (4.1 

percent), Stamped Envelopes and Cards (10.4 percent), and Other Ancillary Services (7.4 

percent).

Table III-23

Market Dominant Ancillary Services and Special Services Revenue,

FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-24, shows that attributable cost for Special Services decreased $4 million in FY 

2018, following a $122 million increase in FY 2017. The decrease in attributable cost is 

primarily due to decreases in attributable cost for Certified Mail and Money Orders.

 

63 One category included in Ancillary Services is “Other Ancillary Services,” which consists of USPS Tracking, Return Receipts, Restricted Delivery, 

Signature Confirmation, Bulk Parcel Return Service, and Special Handling.

Increase or Percent 

FY 2018 FY 2017 Decrease Change

Certified Mail 614 667 (53) -8.0%

COD 4 4 (0) -4.7%

Insurance 79 74 5 6.3%

Registered Mail 29 30 (1) -4.1%

Stamped Envelopes & Cards 12 13 (1) -10.4%

Other Ancillary Services 402 434 (32) -7.4%

Money Orders 159 152 6 4.0%

Post Office Box 287 279 9 3.2%

Other Services 173 165 9 5.3%

Total Services 1,759 1,818 (60) -3.3%

Revenue

($ in Millions)
FY 2018 Financial Analysis Report - 62 -

Table III-24

Market Dominant Ancillary Services and Special Services Attributable Cost,

FY 2018 and FY 2017

 Negative values denoted by ().

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Competitive Volume, Revenue, and Cost by 

Product

Competitive products consist of both domestic and international products. Domestic 

Competitive products include 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; Premium 

Forwarding Service; Post Office Box Service; and Shipping and Mailing Supplies. There was 

also a total of 885 Domestic Competitive NSA products in effect during FY 2018.

International Competitive products include Outbound International Expedited Services; 

Outbound Priority Mail International; Inbound Air Parcel Post (at UPU rates); Outbound 

Single-Piece First-Class Package International Service; International Surface Air Lift; 

International Priority Airmail; International Direct Sacks—M-Bags; International Money 

Transfer Service—Outbound; International Money Transfer Service—Inbound; and 

International Ancillary Services. In FY 2018 there were also 901 International Outbound 

NSAs and 13 International Inbound NSAs.

To facilitate comparisons, the products have been grouped into several broad categories. 

Table III-25 summarizes the FY 2018 changes in volume and revenue for Competitive 

products and services. Total volume for Competitive products increased 11.0 percent in FY 

2018, as every category except Priority Mail Express and Competitive International Mail 

experienced volume growth. The product with the largest increase in volume was FirstFY 2018 FY 2017

Increase or 

Decrease

Percent 

Change

Certified Mail 530 559 (29) -5.1%

COD 3 3 0 9.3%

Insurance 48 47 2 3.3%

Registered Mail 18 22 (4) -17.1%

Stamped Envelopes & Cards 12 8 4 48.6%

Other Ancillary Services 230 219 11 4.9%

Money Orders 147 156 (10) -6.2%

Post Office Box 255 231 24 10.3%

Other Services 79 79 1 0.7%

Total Services 1,343 1,347 (4) -0.3%

Attributable Cost ($ in Millions)
FY 2018 Financial Analysis Report - 63 -

Class Package Service, which increased 32.8 percent in FY 2018, in part due to the transfer 

of single-piece retail parcels from the Market Dominant product list to a new “Retail” rate 

category within the First-Class Package Service product. Priority Mail and ground parcels64

volume increased more modestly in FY 2018, 5.0 percent and 7.5 percent, respectively.

Total Competitive product revenue increased 11.5 percent, or $2.4 billion, in FY 2018. 

Revenue for every domestic Competitive product except Priority Mail Express increased,

consistent with the increases in volume. On a unit basis, revenue increased by 

approximately 4 percent for all domestic Competitive products.

Table III-25

Competitive Products Volume and Revenue, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Table III-26 summarizes the FY 2018 changes in attributable cost. Total attributable cost 

for Competitive products increased 11.4 percent, or approximately $1.6 billion, in FY 2018. 

The primary reason for the increase in attributable cost is volume growth. The largest 

increases in attributable costs were in Priority Mail (10.4 percent) and First-Class Package 

Service (39.0 percent). The average unit attributable cost increased for every category 

except for ground parcels.

 

64 Ground parcels include Standard Post, Parcel Select, and Parcel Return Service.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Priority Mail Express 28 30 (2) -5.2% 751 766 (15) -1.9%

First-Class Package Service 1,275 960 315 32.8% 3,871 2,787 1,084 38.9%

Priority Mail 1,074 1,023 52 5.0% 9,103 8,340 763 9.1%

Ground Parcels 3,099 2,884 216 7.5% 6,913 6,194 719 11.6%

International 187 207 (21) -10.0% 1,544 1,749 (206) -11.8%

Domestic Services 877 853 24 2.8%

Total Competitive 5,663 5,103 560 11.0% 23,059 20,690 2,370 11.5%

Mail Volume Mail Revenue

(Millions) ($ in Millions)
FY 2018 Financial Analysis Report - 64 -

Table III-26

Competitive Products Attributable Cost and Unit Attributable Cost, FY 2018 and FY 2017

Negative values denoted by ().

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1.

Trends in Competitive Products

Competitive product volume growth has exceeded 10 percent each year since FY 2012, 

driven by consumers' continued use of online shopping,65 Figure III-16 highlights the 

growth in Competitive categories since FY 2007.

 

65 Postal Service FY 2018 Form 10-K at 24.

Increase or Percent Increase or Percent

FY 2018 FY 2017 Decrease Change FY 2018 FY 2017 Decrease Change

Priority Mail Express 315 329 (14.6) -4.4% 1,116 1,107 9.0 0.8%

First-Class Package Service 2,692 1,936 755.8 39.0% 211 202 9.4 4.7%

Priority Mail 6,983 6,324 659.9 10.4% 650 618 31.8 5.1%

Ground Parcels 3,721 3,550 170.3 4.8% 120 123 (3.1) -2.5%

International 1,025 1,053 (28.4) -2.7% 549 508 41.1 8.1%

Domestic Services 441 429 11.9 2.8%

Total Competitive 15,466 13,884 1,582.1 11.4% 273 272 1.0 0.4%

Attributable Cost Unit Attributable Cost

($ in Millions) (Cents per Piece)
FY 2018 Financial Analysis Report - 65 -

Figure III-16

Competitive Volume by Product, FY 2012 – FY 2018

Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; Docket No. 

ACR2016, Library Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference PRC-LR-ACR2015/1; Docket 

No. ACR2014, Library Reference PRC-LR-ACR2014/1; FY 2012 and FY 2013 ACD; Library Reference PRC-LR-1.

Competitive products attributable cost has grown rapidly over the last decade, and now 

comprises 35 percent of total attributable cost. However, analysis of total attributable cost 

over time is complicated by mail classification changes that resulted in transfers of 

products from the Market Dominant to the Competitive product list. These include the 

transfer of Commercial First-Class Mail Parcels to a new Lightweight Commercial Parcels 

category, USPS Marketing Mail lightweight parcels to the Competitive ground parcels 

category, and single-piece Parcel Post from Market Dominant products to the Competitive 

Standard Post product. Most recently, First-Class Mail single-piece retail Parcels were 

transferred to the First-Class Package Service product.

Figure III-17 shows the average unit attributable cost by category from FY 2012 to FY 

2018. Average unit attributable cost increased for all Competitive parcel categories since 

FY 2012 except Priority Mail Express. With the exception of ground parcels, average unit 

attributable costs for Competitive products have generally trended upward in recent years. 

The average unit attributable cost of ground parcels decreased for the fourth year in a row.
FY 2018 Financial Analysis Report - 66 -

Figure III-17

Competitive Average Unit Attributable Cost by Category, FY 2012 – FY 2018

 

 Source: Library Reference PRC-LR-ACR2018/1; Docket No. ACR2017, Library Reference PRC-LR-ACR2017/1; 

 Docket No. ACR2016, Library Reference PRC-LR-ACR2016/1; Docket No. ACR2015, Library Reference 

 PRC-LR-ACR2015/1; Docket No. ACR2014, Library Reference PRC-LR-ACR2014/1; FY 2012 and FY 2013 ACD; 

 Library Reference PRC-LR-1.

Figure III-18 shows the percent change in average unit attributable cost by category from 

FY 2012 to FY 2018. Changes in average unit attributable costs have grown smaller in 

recent years.

Figure III-18

Competitive Percent Change in Average Unit Attributable Cost by Category,

FY 2012 – FY 2018

 

 

Source: Library Reference PRC-LR-ACR2017/1; Docket No. ACR2016, Library Reference PRC-LRACR2016/1; Docket No. ACR2015 Library Reference PRC-LR-ACR2015/1; Docket No. ACR2014, 

Library Reference PRC-LR-ACR2014/1; FY 2012 and FY 2013 ACD; Library Reference PRC-LR-1.
FY 2018 Financial Analysis Report - 67 -

Chapter IV. Sustainability, Liquidity, 

Activity, and Financial Solvency

Introduction

The financial status of the Postal Service is affected by a combination of environmental, 

economic, and organizational factors, including the decisions and actions of management 

and the Postal Service Board of Governors.66 This chapter analyzes the Postal Service’s 

financial status in terms of sustainability, liquidity, and performance using financial ratios.

These ratios provide a concise and systematic way to organize financial data into 

meaningful information.

Financial ratios are used to interpret accounting information. The historic accounting 

information used in ratio analysis is not adjusted for inflation. Forecasts of an entity’s 

future revenue may not reflect its actual future revenue and cash flows because of changing 

demographics, industry dynamics, and government regulation unless these factors are 

explicitly accounted for in the development of the forecast. As with any approach, 

evaluating multiple financial dimensions and indicators provides a broader understanding 

of the financial status of entities.

The Commission acknowledges that financial analyses used in the private sector are not 

directly applicable to the Postal Service as a Federal Government entity because revenue 

streams, equity structures, and management incentives differ. Due to the myriad ways 

Federal Government entities differ from the private sector, the standard measurements 

used to assess the financial health of private sector firms generally do not carry the same 

weight when applied to Federal Government entities. Additionally, in the private sector, 

stakeholders use financial analysis to make investment and credit decisions, where success 

is often measured by the company’s stock valuation. In contrast, Federal Government 

entities are mission-oriented and measure success through the provision of service and do 

not have direct shareholders. Nonetheless, the ratios provide an objective, quantitative 

measure of an entity’s financial health and its ability to satisfy its financial obligations.

Ratio analysis helps assess profitability and informs stakeholders of an entity’s 

performance based on its current earnings. For example, computing a solvency ratio, such 

as debt ratio, reveals the correlation between assets and liabilities. Both the ability to meet 

its short-term financial obligations (liquidity) and the ability to meet long-term financial 

obligations (solvency) are critical in evaluating the Postal Service’s current financial 

situation.

 

66 The Board of Governors delegated powers needed to provide for continuity of operations to a Temporary Emergency Committee (TEC) 

composed of the remaining members of the Board. See 79 Fed. Reg. 74780 (December 16, 2014). “The TEC will continue in existence until the 

Board is again able to assemble a quorum.” Postal Service FY 2018 Form 10-K at 2.
FY 2018 Financial Analysis Report - 68 -

Comparing ratios for the current fiscal year to previous years and historic averages also 

provides valuable insight when analyzing past performance and can help identify 

weaknesses and highlight improvements.

The objectives of this chapter are to:

 Compare and analyze the financial statements over a period of time67

 Measure the sustainability and liquidity of the Postal Service

 Analyze the annual growth rate and growth patterns of the Postal Service’s income 

and assets over time through trend analyses

 Analyze the Postal Service’s overall financial performance

Financial Sustainability Analysis

This section focuses on three key financial ratios which analyze the Postal Service’s overall 

financial health: debt ratio, fixed asset to net worth ratio, and current liability ratio.

Table IV-1 shows the three sustainability ratios calculated using amounts reported on the 

Postal Service’s Balance Sheets. The table then compares the FY 2018 results with the 

previous year’s value and the historical 10-year average (FY 2008–FY 2017).

Table IV-1

Sustainability Ratio Analysis of Postal Service Financial Statements

Negative amount is denoted by ().

Numbers may not add across due to rounding.

Source: Ratios computed from amounts reported on Postal Service FY 2018 Form 10-K at 54; Postal Service FY 2017 Form 10-K at 46; Postal

Service Forms 10-K, FY 2008 - FY 2017.

DEBT RATIO

Debt ratio is the amount of total liabilities the entity has on its Balance Sheets compared to 

its total assets. The higher the ratio, the greater the risk that the entity’s debt level may 

impede its ability to effectively respond to challenges and opportunities. A low debt ratio 

 

67 Historic 10-year average values are derived from financial statements for FY 2008 through FY 2017. Trend percentages and ratios are 

calculated using the last year before the PAEA in which the Postal Service reported a net income, FY 2006, as the base year.

Ratios 9/30/2018 Value 9/30/2017 Value Change Description of Ratio Postal Service Historic 10-Year 

Average Value

Debt Ratio (Debt to Assets Ratio) 3.35 3.14 0.20

This ratio is calculated by dividing total liabilities (i.e. long-term 

and short-term liabilities) by total assets. It shows how much the 

company relies on debt to finance assets. 2.35

Fixed Assets to Net Worth Ratio (0.23) (0.25) 0.02

This ratio indicates the extent to which the entity's cash is frozen 

in the form of fixed assets, such as property, plant, and 

equipment. (2.29)

Current Liability Ratio 0.78 0.72 0.06

This ratio is calculated by dividing current liabilities by total (i.e. 

current and noncurrent) liabilities. 0.58
FY 2018 Financial Analysis Report - 69 -

indicates that assets are available to secure future financing to grow operations with little 

or no financial risk.

The ratio is generally a conservative measurement because the liabilities are carried at 

estimated amounts of expected cash outflows. At the same time, some assets may be 

understated because no adjustments have been made to restate for fair value. For example, 

land or a fully depreciated building or equipment may have a higher fair market value than 

its book value. As it pertains to the Postal Service, the debt ratio provides information 

about the increasing amount of the Postal Service’s liabilities relative to its small assets 

base.

At the end of FY 2018, the debt ratio for the Postal Service increased to 3.35, from the 3.14 

debt ratio for FY 2017. The Postal Service’s FY 2018 debt ratio of 3.35 was higher than the 

average 10-year debt ratio of 2.35. The ratio indicates that the Postal Service does not 

possess sufficient capital. This lack of sufficient capital is highly relevant in light of the fact 

that the Postal Service has limited statutory borrowing capacity.68

The slight deterioration in the value of the ratio for FY 2018 is due to total liabilities, 

primarily unfunded retirement obligations, increasing at a greater percentage rate than 

total assets. To reduce its debt ratio to historic averages, the Postal Service would have to 

increase either its current cash position, investments in fixed assets, or both, and reduce its 

obligations.

FIXED ASSET TO NET WORTH RATIO

The fixed asset to net worth ratio analyzes fixed assets as a percentage of net worth to 

determine liquidity. Net worth is the residual amount representing the excess of an entity’s 

assets over its liabilities and capital contribution. The Postal Service’s fixed assets consist 

primarily of buildings and equipment which cannot be easily converted into cash.

The Postal Service accumulated deficits in excess of its fixed assets, which results in a 

negative fixed asset to net worth ratio. This signifies an inability to rapidly respond to 

financial emergencies or easily obtain cash for further investment and growth.

As shown in Table IV-1, the ratio improved slightly over the prior year, but remained 

negative in FY 2018. Accumulated net deficits from the continuous total net losses 

impacted the value of this ratio as the amount of fixed assets has remained relatively 

unchanged due to limited capital investments.

CURRENT LIABILITY RATIO

The current liability ratio is a useful measurement when reviewing an entity’s debt 

structure as it indicates the percentage of current debt required to be paid within 1 year. As 

 

68 As of September 30, 2018, the Postal Service borrowed $13.2 billion of the statutory borrowing amount of $15 billion. Postal Service FY 2018 

Form 10-K at 43.
FY 2018 Financial Analysis Report - 70 -

of September 30, 2018, the Postal Service’s short-term liabilities were 77.8 percent of total 

liabilities, an increase of 6.0 percentage points from the prior year. An increasing current 

liability ratio value is generally a sign of financial pressure because it indicates growth in 

the proportion of liabilities that must be paid within 1 year.

The accrual of the missed payments for retirement amortization, statutory RHBF 

prefunding, and RHB normal cost payments are included in current obligations, and 

account for the vast majority of current liabilities. Current liabilities include $33.9 billion in 

unpaid statutory prefunding to the RHBF, $7.3 billion in amortization of unfunded 

retirement obligations, $7.0 billion in RHB normal cost, and $11.0 billion of the $13.2 

billion in outstanding debt.

Financial Liquidity Analysis

Liquidity-related ratios focus on working capital and are one of the most widespread 

indicators of an entity’s solvency.69 There are three liquidity-related ratios: current ratio, 

quick ratio, and cash ratio. These ratios supplement the Statement of Operations and 

Statement of Cash Flows and are a measure of an entity’s ability to pay short-term 

obligations. The values of the three ratios for the Postal Service are shown in Table IV-2.

Table IV-2

Liquidity Ratio Analysis of Postal Service Financial Statements

Numbers may not add across due to rounding.

Source: Ratios computed from amounts reported on Postal Service FY 2018 Form 10-K at 54; Postal Service FY 2017 Form 10-K at 46; Postal 

Service Forms 10-K, FY 2008-FY2017.

CURRENT RATIO

The current ratio indicates the degree to which current assets meet current liabilities. The

higher the current ratio, the more likely an entity can pay its current liabilities, because it 

has a larger proportion of current assets relative to its current liabilities.

 

69 See Jamie Pratt, Financial Accounting in an Economic Context, 246 part 3 (8th ed. 2011) stating that “Dun & Bradstreet, a widely used service 

that rates the creditworthiness of a large number of U.S. businesses, includes both the current ratio and the quick ratio as solvency measures” 

and “Working capital, the current ratio and the quick ratio are also used by auditors. For example, an AICPA list of ‘red flags’ alerting auditors to 

possible management fraud includes ‘inadequate working capital.’”

Ratios 9/30/2018 Value 9/30/2017 Value Change Description of Ratio Postal Service Historic 10-Year 

Average Value

Current Ratio 0.17 0.20 (0.03)

This ratio is calculated by dividing current assets by current 

liabilities. It indicates an entity's ability to meet short term debt 

obligations. 0.16

Quick Ratio 0.16 0.19 (0.03)

This ratio is calculated by dividing liquid assets (cash, cash 

equivalents and short term investments, current receivables) by 

current liabilities. It is a measure of an entity's ability to meet its 

short term obligations using its most liquid assets (near cash or 

quick assets). 0.16

Cash Ratio 0.15 0.17 (0.03)

This ratio is calculated by dividing absolute liquid assets (cash, 

cash equivalents and short-term investments) by current 

liabilities. 0.12
FY 2018 Financial Analysis Report - 71 -

At the end of FY 2018, the current ratio was 0.17. That level is a deterioration of 0.03 from 

the end of the prior fiscal year. This is slightly higher than the 10-year historic average. 

Current liabilities increased by 12.4 percent mostly due to the accrual of the current fiscal 

year’s defaulted payment for amortization of unfunded retirement obligations and the RHB 

normal cost. At the same time, the Postal Service’s current assets decreased by 4.0 percent, 

primarily due to the decrease in cash and cash equivalents.

QUICK RATIO

The quick ratio is an indication of the liquidity of the entity and reflects whether sufficient 

funds are available to meet short-term obligations to creditors. At the close of FY 2018, the 

quick ratio equaled 0.16. This is a deterioration of 0.03 from FY 2017 and the same level as 

the 10-year historic average. This indicates that the Postal Service’s cash and accounts 

receivables increased at a slower rate than its current liabilities.

CASH RATIO

The cash ratio measures the amount of cash, cash equivalents, or short-term investments 

available to cover current liabilities. The cash ratio is calculated by dividing total liquid 

assets by current liabilities.

The FY 2018 cash ratio was 0.15—a deterioration from FY 2017. This is an improvement 

from the 10-year historic average—but as with the current ratio and quick ratio, the cash 

ratio indicates that the Postal Service does not have enough cash and/or cash equivalents 

(the most liquid assets) to meet all current liabilities.

During FY 2018, the Postal Service repaid $1.8 billion of its outstanding debt. The FY 2018 

cash ratio and quick ratio remain unchanged from previous year levels when the available 

statutory borrowing capacity of $1.8 billion is added back to the cash balance. The FY 2018 

current ratio recomputed with the available statutory borrowing capacity of $1.8 billion is 

added back to the cash balance equaled 0.19 – a deterioration of 0.01 over FY 2017.

WORKING CAPITAL ANALYSIS

Working capital is the amount by which the value of current assets exceeds current 

liabilities. Working capital is important because it is a liquidity cushion available to provide 

funds for emergencies and other unplanned needs. Positive working capital means that a 

company is able to meet its short-term obligations. Negative working capital means that a 

company’s current assets are insufficient to meet its short-term liabilities and as a result it 

could have problems paying back creditors in the short term, ultimately adversely affecting 

its financial position. Companies with healthy, positive working capital should not have 

problems paying their bills.

The Postal Service had no working capital at the end of FY 2018. The Postal Service’s FY 

2018 working capital was negative $57.9 billion. The net deterioration of $8.1 billion in 
FY 2018 Financial Analysis Report - 72 -

working capital from the prior fiscal year was largely due to the growth in employeerelated liabilities, including the accruals for payments for retirement obligations.

Figure IV-1 highlights the increasing deficit trend in retained earnings that began in FY 

2008. Available liquidity is calculated as a combination of working capital and remaining 

borrowing capacity.

Figure IV-1

Postal Service Liquidity and Retained Deficit Trends Since FY 2008

Source: Postal Service FY 2008 to FY 2018 Forms 10-K and USPS Annual Reports.

Financial Activity Analysis

TREND ANALYSIS

Trend analysis compares the Postal Service’s financial statements over a number of years 

to evaluate its performance and the changes over a period of time from a base year. FY 

2006 is used as the base year, as it is the fiscal year prior to the enactment of the PAEA and 

the last year in which the Postal Service reported a net operating income. Figure IV-2 

shows the trends for assets and liabilities since the base year. For each fiscal year, the total 

change from the base year is expressed as a percentage.

 (60,000)

 (50,000)

 (40,000)

 (30,000)

 (20,000)

 (10,000)

 -

 (70,000)

 (60,000)

 (50,000)

 (40,000)

 (30,000)

 (20,000)

 (10,000)

 -

FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY15 FY16 FY17 FY18

$ IN MILLIONS

Retained Earnings (Deficit) Liquidity Available
FY 2018 Financial Analysis Report - 73 -

Figure IV-2

Change in Assets and Liabilities Since FY 2007

Figure IV-2 shows that the trend percentage for the Postal Service’s overall assets recently 

began improving in most fiscal years following FY 2013. The improvement is mostly 

attributable to continuous increases in cash balances. At the end of FY 2018, the cash 

balance decreased as net cash generated from operations was lower by approximately $1.1 

billion compared to the prior year. During FY 2018, the Postal Service repaid a portion of 

its outstanding debt increasing net cash used in financing activities by approximately $1.9 

billion compared to prior years, resulting in a overall decrease in total assets of 6.3 percent, 

relative to base year FY 2006. This decrease was slightly greater than the decrease of 3.8 

percent in the prior year relative to base year. After taking depreciation into account, 

FY 2018 net property, plant, and equipment values decreased 36.7 percent from the base 

year. This is primarily due to reduced capital investments and because fully-depreciated 

assets have not been replaced or are being replaced at a slower rate than the estimated life 

of the predecessor asset.

The Postal Service had a higher cash balance at the end of FY 2009 due to a $4 billion 

reduction in the statutory RHBF payment due on September 30, 2009, which resulted in a 

higher balance in total assets and the improvement shown in Figure IV-2.

 Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.
FY 2018 Financial Analysis Report - 74 -

Total liabilities have risen steadily since the base year (FY 2006). The Postal Service’s total 

liabilities in FY 2018 were four times higher than those in the base year.

Figure IV-3 shows that current and noncurrent liabilities generally trended upwards from 

the base year, largely due to increasing balances in employee-related liabilities such as 

statutory retirement payments, increasing debt, and future obligations for workers’ 

compensation. The restructuring and partial repayment of debt during FY 2018 resulted in 

a slight decline in current and noncurrent liabilities and current assets for the year.

Noncurrent assets, consisting largely of property and equipment, held relatively flat with a 

slight downward trend reflecting limited capital spending and slower replacement of 

depreciating fixed assets. Figure IV-3 shows that the value of noncurrent liabilities 

increased from the base year by a substantially greater percentage than the value of the 

noncurrent assets. Similarly, the growth of current liabilities greatly outpaced the growth 

of current assets with similar maturity dates. This highlights the Postal Service’s lack of 

liquidity.

Figure IV-3

Trends in Assets and Liabilities Since FY 2006

Figure IV-4 shows the changes in revenue and expenses from the base year (FY 2006). In 

FY 2018, revenue decreased 2.7 percent from the base year, while operating expenses 

increased by 3.9 percent from the base year.

Resuming the trend of the 4 years prior to FY 2017, both revenue and expenses increased 

during FY 2018. Discount rates continued to increase during FY 2018 but at a slower rate, 

resulting in a comparatively lower decrease in the noncash portion of workers’

compensation expenses in FY 2018. The accrual of the defaulted retirement payments 

0%

100%

200%

300%

400%

500%

600%

700%

FY 06 FY 07 FY 08 FY 09 FY 10 FY 11 FY 12 FY 13 FY 14 FY 15 FY 16 FY 17 FY 18

Percentage of Base Year Amount

Fiscal Years

Current Assets Noncurrent Assets Current Liabilities Noncurrent Liabilities

Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.
FY 2018 Financial Analysis Report - 75 -

contributed to the 320.2 percent increase in retirement expenses from the base year. 

Transportation expenses increased by 30.0 percent from base year. The decrease in 

compensation and benefits excluding retirement expenses by 6.3 percent from the base 

year was not sufficient to offset the increases in the other categories of expenses.

Figure IV-4

Change in Revenue and Expenses Since FY 2006

Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.

Operating revenue has remained relatively flat since FY 2006. Similar to the growth in 

current liabilities, RHB payments have trended upwards from the base year. The spike in 

RHB payments in FY 2007 and FY 2008 was due to the recognition of the RHB payments as 

an expense. The reduction of statutory prefunding payment in FY 2009 and deferral in FY 

2011 results in dips in the trend line for those years. The upward swing in the trend line in 

FY 2013 is caused by the $11.1 billion accrual of the prior year deferral and current year 

RHB expenses. The reduction in retirement-related expenses in FY 2017 and FY 2018 

results from lower retirement health benefit expenses compared to the statutory 

prefunding of the RHBF. Higher discount rates in FY 2017 and FY 2018 are reflected in the 

decrease in noncash workers’ compensation expense for those years. See Figure IV-5.

-15%

-10%

-5%

0%

5%

10%

15%

FY 06FY 07FY 08FY 09FY 10FY 11FY 12FY 13FY 14FY 15FY 16FY 17FY 18

Percentage Change from Base Year

Fiscal Years

Total Revenue Operating expenses
FY 2018 Financial Analysis Report - 76 -

Figure IV-5

Trends in Operating Revenue and Operating Expenses Since FY 2006

*Retirement expenses consist of amortization payments on unfunded FERS, CSRS, and RHB liabilities, RHB normal costs for FY 2017 onwards, 

RHB statutory prefunded expenses, RHB premium expenses for FY 2007 through FY 2016, RHB premium expense for FY 2006.

Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.

Financial Solvency Analysis

ALTMAN Z-SCORE

The financial strength of an entity can be evaluated through the use of a variety of metrics. 

In conjunction with financial ratios, these metrics are used to gauge an entity’s long-term 

viability. The Altman Z-Score model, developed in 1968, is a tool to examine the likelihood 

that a publicly-traded private company may file for bankruptcy.70 It has since been used as 

a measure to analyze the financial health of state and local governments and continues to 

be widely accepted as a measure of an entity’s financial health.71

 

70 The Postal Service, as a government entity, is not considered a “person” who may be a debtor under the Bankruptcy Code. See 11 U.S.C. §§ 

101(41), 109(d). The Altman Z-Score is used as a metric that may be instructive in comparing the Postal Service with other business entities 

which may be subject to bankruptcy. Use of the Altman Z-Score does not suggest that the Postal Service has the potential to file for bankruptcy.

71 See Mary Fischer, et al., Fiscal Health Analysis of Texas and its Municipalities, 13 J. Bus. & Econ. Res. 4 (2015).

-200%

0%

200%

400%

600%

800%

1000%

FY 06 FY 07 FY 08 FY 09 FY 10 FY 11 FY 12 FY 13 FY 14 FY 15 FY 16 FY 17 FY 18

Percentage of Base Year Amount

Fiscal Years

Compensation and benefits Retirement expenses* Workers' compensation

Transportation Other operating expenses Operating Revenue
FY 2018 Financial Analysis Report - 77 -

The Altman Z-Score is a quantitative model designed to predict the financial distress of a 

business. It uses a blend of four traditional financial ratios and a statistical method known 

as multiple discriminant analysis. The Altman Z-Score is interpreted against discrimination 

ranges, which provide context as to what an individual Altman Z-Score means to an entity’s 

financial health. A lower Altman Z-Score reflects higher odds of bankruptcy72 and financial 

distress. In particular, the discrimination ranges divide Altman Z-Scores into three zones:

• 1.1 or Less = Distress Zone based on publicly available financial data

• 1.1 to 2.6 = Grey Zone based on publicly available financial data

• 2.6 or More = Safe Zone based on publicly available financial data

The Altman Z-Score model used in this analysis is a revised Z-Score Model adapted 

specifically for non-manufacturing firms to calculate a score, without a capital turnover 

ratio (sales/total assets), so as to minimize the potential effect of different methods of 

financing assets. The Postal Service’s Altman Z-Score provides insight into the Postal 

Service’s financial health. Cash generated from operations and borrowing availability up to 

$1.8 billion at the end of FY 2018 are the only sources of income available to satisfy daily 

operating expenses and investment in capital assets.

As shown in Table IV-3, the Postal Service’s Altman Z-Score was negative 6.8 at the end of 

FY 2018. The Postal Service’s FY 2018 Altman Z-Score was worse than the FY 2017 score of 

negative 5.9. Lower cash balances and unfunded retirement-related expenses decreased 

total assets and earnings and increased total liabilities compared to the prior year, 

resulting in deterioration of three of the four ratios.

 

72 The Postal Service is ineligible for Federal bankruptcy protection under current law. See 11 U.S.C. §§ 101(41), 109.
FY 2018 Financial Analysis Report - 78 -

Table IV-3

Altman Z-Score, FY 2018

 Negative amount is denoted by ().

 Numbers may not add across due to rounding.

 Source: Ratios computed from amounts reported on Postal Service FY 2018 Form 10-K at 54.

Prior to enactment of the PAEA, at the end of FY 2006, the Postal Service had a positive 

Altman Z-Score of 0.2 and positive scores for all ratio values except for the Working 

Capital/Total Assets ratio. See Table IV-4.

Table IV-4

Altman Z-Score, FY 2006

 Negative amount is denoted by ().

 Numbers may not add across due to rounding.

 Source: Ratios computed from amounts reported on Postal Service FY 2006 Annual Report at 42.

Ratio Calculation

Ratio Value on 

9/30/2018

Weighting 

Factor

Product (col. 

3 * col. 4)

1 2 3 4 5

T1 Working Capital/Total Assets (2.2) 1.2 (2.6)

T2 Retained Earnings/Total Assets (2.3) 1.4 (3.3)

T3 Earnings/Total Assets (0.1) 3.3 (0.5)

T4 Capital/Total Liabilities (0.7) 0.6 (0.4)

Altman Z-Score (6.8)

Ratio Calculation

Ratio Value on 

9/30/2006

Weighting 

Factor

Product (col. 

3 * col. 4)

1 2 3 4 5

T1 Working Capital/Total Assets (0.3) 1.2 (0.4)

T2 Retained Earnings/Total Assets 0.2 1.4 0.3

T3 Earnings/Total Assets 0.0 3.3 0.1

T4 Capital/Total Liabilities 0.3 0.6 0.2

Altman Z-Score 0.2
FY 2018 Financial Analysis Report - 79 -

DECONSTRUCTING THE ALTMAN Z-SCORE

WORKING CAPITAL TO TOTAL ASSETS

The Working Capital to Total Assets ratio measures a company’s efficiency and its shortterm financial health by comparing its net current assets to its total assets. Working capital 

is a company’s current assets minus its current liabilities. Therefore, a change in the total 

amount of current assets without a change of the same amount in current liabilities will 

result in a change in the amount of working capital. Similarly, a change in the total amount 

of current liabilities without an identical change in the total amount of current assets will 

cause a change in working capital.

The Postal Service’s working capital to total assets weighted ratio is shown in Figure IV-6.

Figure IV-6

Trend in Working Capital/Total Assets Weighted Ratio Since FY 2006

 

 Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.

An increasing Working Capital to Total Assets ratio over time is usually a positive sign, 

showing improving liquidity. A decreasing Working Capital to Total Assets ratio is usually a 

negative sign, indicating a greater amount of total current liabilities, and a reduced amount 

of working capital available. This ratio increased briefly for the Postal Service from FY 

2008–FY 2009 (though still negative) and has declined in succeeding fiscal years.73 The 

steep decline in this ratio after FY 2012 is the result of a higher percentage decline in 

 

73 P.L. 111-68 reduced the statutory RHBF payment due on September 30, 2009, by $4 billion, increasing the cash balance at the end of FY 2009 

and contributing to the improved value of the FY 2009 Working Capital to Total Assets Ratio. The Postal Service states that “[it] experienced 

negative cash flow from operations for two of the past three years. In 2009, [it] reduced our [RHBF] payment by $4 billion due to the passage of 

P.L. 111-68. Had this reduction not been enacted, cash flow from operations would have been negative in 2009 as well.” Postal Service FY 2009 

Form 10-K at 55.
FY 2018 Financial Analysis Report - 80 -

working capital compared to total assets, largely a result of the accrued unfunded 

retirement-related expenses.

RETAINED EARNINGS TO TOTAL ASSETS

The retained earnings of a company are the portion of net earnings retained for future 

use.74 They are “retained” to be reinvested in the firm or used to pay down debt. Retained 

earnings are calculated as follows:

• Previous year’s retained earnings + current year’s net income (net loss).

The Retained Earnings to Total Assets ratio measures the company’s effectiveness in using 

all of its assets to accumulate earnings. Retained earnings combined with the capital 

contribution of the U.S. Government75 represents the difference between assets and 

liabilities, and therefore it provides a measure of the extent to which a company relies on 

debt, or leverage. The lower the ratio of Retained Earnings to Total Assets, the more a 

company funds assets through borrowing, instead of through retained earnings. A lower 

ratio indicates an increased risk of financial distress if the firm cannot meet its debt 

obligations.

The Postal Service’s Retained Earnings to Total Assets weighted ratio is shown in Figure IV7. With the exception of the increase in FY 2017, this ratio has steadily declined for the 

Postal Service since FY 2006. A decreasing Retained Earnings to Total Assets ratio is 

usually a negative sign, indicating possible problems with a company’s profitability. As an 

entity grows and matures, this ratio is generally expected to increase. Recurring losses 

suffered after FY 2007 by the Postal Service have eroded its retained earnings, which is 

reflected in the substantial decline in this ratio. The slight uptick in the change in value for 

FY 2017 is due to the increased end-of-year cash balance resulting in an 8.6 percent growth 

in total assets.

 

74 A company may not retain all of its net income if it distributes a portion to shareholders in the form of a dividend. The Postal Service does not 

have shareholders and does not pay dividends, so all of its net income (or net loss) accumulates as retained earnings or deficits.

75 Total capital contributions of the U.S. Government are $3,132 billion as of September 30, 2017. See Postal Service FY 2018 Form 10-K at 54.
FY 2018 Financial Analysis Report - 81 -

Figure IV-7

Trend in Retained Earnings/Total Assets Weighted Ratio Since FY 2006

 Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.

EARNINGS TO TOTAL ASSETS

Earnings to Total Assets is a measure of return on assets and is calculated by dividing net 

income (net loss) by total assets. This ratio assesses a firm’s ability to generate profits from 

its assets. The Postal Service’s earnings to total assets weighted ratio is shown in 

Figure IV-8.

Figure IV-8

Trend in Earnings/Total Assets Weighted Ratio Since FY 2006

 

 Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.
FY 2018 Financial Analysis Report - 82 -

FY 2006 showed a positive ratio. This was during the Postal Reorganization Act regime 

when revenue was required to cover costs (break-even). The effects of the Great Recession 

of 2008–2009 partially offset the P.L. 111-68 reduction in the RHBF prefunding 

contribution from $4.0 billion to $1.4 billion in 2009. No similar legislation was enacted in 

2010. In 2011, P.L. 112-33 deferred the $5.5 billion payment due in 2011 to 2012. The dip 

in the ratio in 2012 is largely the result of two RHBF prefunding payments totaling $11.1 

billion. The exigent surcharge in FY 2014 improved profitability through part of FY 2016.76

The improvement in this ratio in FY 2017 results from lower retirement-related health 

benefit expenses compared to the statutory prefunding of the RHBF and the decrease in 

noncash workers’ compensation expense from higher discount rates. Discount rates 

continued to increase during FY 2018 but at a slower rate resulting in a comparatively 

lower decrease in the noncash portion of workers’ compensation expense and 

subsequently overall expenses in FY 2018. Also contributing to the slight downward trend 

in this ratio in FY 2018 is the reduction in the total assets base from repayment of $1.8 

billion of outstanding debt.

CAPITAL TO TOTAL LIABILITIES

The ratio of Capital to Total Liabilities shows the extent to which an entity’s value can 

decline before its liabilities exceed its assets. Generally, a higher capital balance indicates a 

greater likelihood of future survival. The Postal Service’s capital to total liabilities weighted 

ratio is shown in Figure IV-9.

Figure IV-9

Trend in Capital/Total Liabilities Weighted Ratio Since FY 2006

 

 Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.

 

76 See Docket No. R2013-11, Order Granting Exigent Price Increase, December 24, 2013 (Order No. 1926).
FY 2018 Financial Analysis Report - 83 -

For purposes of the Altman Z-Score, capital is calculated as the book value of equity which 

for the Postal Service is capital contributions and retained earnings. The Postal Service’s 

recurring net losses and increasing liabilities are reflected in the decline in this ratio. The 

value of this ratio remains relatively flat for the last 6 years.

SHIFT IN ALTMAN Z-SCORE

When analyzing the Altman Z-Score, it is important to analyze the trend over time. In the 

case of the Postal Service, the steady decline, as shown in Figure IV-10, is a reflection of the 

erosion of retained earnings primarily caused by consecutive net losses and accumulated 

unpaid statutory retirement expenses.

The Postal Service’s slightly declining Altman Z-Score at the end of FY 2018 is the result of: 

(1) a lower balance in total assets due to a reduction in the cash balance, likely the result of 

the partial repayment of debt; and (2) deteriorating working capital. The Postal Service 

defaulted on its FY 2018 payment of amortization on its retirement-related unfunded 

obligations and the normal costs payment for RHB.

Figure IV-10

Trend in Altman Z-Score Value Since FY 2006

-8.0

-7.0

-6.0

-5.0

-4.0

-3.0

-2.0

-1.0

0.0

1.0

FY06 FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY15 FY16 FY17 FY18

 Source: Postal Service FY 2006 to FY 2018 Forms 10-K and USPS Annual Reports.
FY 2018 Financial Analysis Report Appendix A

 Page 1 of 1

Appendix A

Fiscal Year 2018 Volume, Revenue, Incremental Cost and

Cost Coverage by Class, Current Classification (Products)

Contribution to Contribution to

Attributable Total Vol Var & Institutional Institutional

Volume Revenue (Incremental) Cost Prod Spec Cost Cost Rev./Pc. Cost/Pc. Cost/Pc. Cost

(000) ($ 000) (000) (000) ($ 000) (Cents) (Cents) (Cents) Coverage

COMPETITIVE MAIL

Priority Mail Express 28,211 751,368 314,843 314,678 436,525 2,663.385 1,116.028 1,547.357 238.6%

Priority Mail 1,074,470 9,103,194 6,983,457 6,894,343 2,119,737 847.227 649.944 197.282 130.4%

Total Ground 3,099,461 6,913,452 3,725,331 3,675,771 3,188,121 223.053 120.193 102.861 185.6%

First-Class Package Service 1,274,600 3,870,555 2,692,313 2,678,880 1,178,242 303.668 211.228 92.440 143.8%

Competitive Domestic Services 877,221 440,737 440,602 436,484 199.0%

Competitive Domestic Group Specific & Inframarginal Cost 257,864

Total Domestic Competitive Mail 5,476,742 21,515,790 14,414,545 14,004,273 7,101,246 392.857 263.196 129.662 149.3%

Competitive International Mail & Services 186,602 1,543,705 1,024,660 1,024,660 519,045 827.269 549.114 278.155 150.7%

Competitive International Non-Product Inframarginal Cost 410

Total Competitive Non-Product Inframarginal Costs 26,462

Total Competitive Mail and Services 5,663,344 23,059,495 15,466,077 15,028,933 7,593,418 407.171 273.091 134.080 149.1% MARKET DOMINANT MAIL

First-Class Mail

Single-Piece Letters and Cards 17,460,477 8,707,404 5,418,505 5,231,556 3,288,900 49.869 31.033 18.836 160.7%

Presort Letters and Cards 37,871,200 14,354,114 4,633,938 4,566,683 9,720,175 37.902 12.236 25.666 309.8%

Flats 1,381,864 1,914,323 1,554,174 1,551,207 360,150 138.532 112.469 26.063 123.2%

Parcels 0 0 0 0 0

First-Class Non-Product Inframarginal Costs 231,251

Total Domestic First-Class Mail 56,713,541 24,975,841 11,837,867 11,349,446 13,137,974 44.039 20.873 23.165 211.0% Marketing Mail

High Density & Saturation Letters 7,265,225 1,156,891 559,974 556,412 596,917 15.924 7.708 8.216 206.6%

High Density & Saturation Flats & Parcels 11,621,090 2,038,538 1,404,132 1,381,134 634,407 17.542 12.083 5.459 145.2%

Carrier Route 7,073,837 1,860,050 1,712,354 1,703,674 147,696 26.295 24.207 2.088 108.6%

Letters 46,517,167 9,677,803 4,962,861 4,853,058 4,714,943 20.805 10.669 10.136 195.0%

Flats 4,078,768 1,651,266 2,402,761 2,396,759 (751,495) 40.484 58.909 (18.425) 68.7%

Parcels 34,650 42,985 73,430 73,421 (30,445) 124.058 211.922 (87.864) 58.5%

Every Door Direct Mail - Retail 712,621 126,957 47,451 47,391 79,505 17.815 6.659 11.157 267.6%

Inbound NSA Mail Intl 0 0 0 0 Marketing Mail Non-Product Inframarginal Costs 461,069

Total Marketing Mail 77,303,357 16,554,491 11,624,032 11,011,849 4,930,459 21.415 15.037 6.378 142.4%

Periodicals Within County 510,334 56,574 83,296 83,266 (26,722) 11.086 16.322 (5.236) 67.9%

Outside County 4,482,996 1,220,126 1,806,347 1,801,243 (586,221) 27.217 40.293 (13.077) 67.5%

Periodicals Non-Product Inframarginal Costs 585

Total Periodicals 4,993,329 1,276,700 1,890,229 1,884,508 (613,528) 25.568 37.855 (12.287) 67.5%

Package Services

Alaska Bypass 1,258 32,911 18,720 18,720 14,191 2,616.788 1,488.463 1,128.325 175.8%

Bound Printed Matter Flats 265,404 198,070 133,029 133,003 65,041 74.629 50.123 24.506 148.9%

Bound Printed Matter Parcels 294,800 318,721 292,402 292,050 26,319 108.114 99.187 8.928 109.0% Media and Library Mail 78,964 276,421 360,415 359,531 (83,995) 350.061 456.432 (106.371) 76.7%

Package Services Non-Product Inframarginal Costs 925

Total Package Services 640,425 826,122 805,491 803,304 20,631 128.996 125.774 3.222 102.6%

U.S. Postal Service Mail 290,423

Free Mail 42,115 34,079 34,077 (34,079) 80.920

Total Market Dominant Mail 139,983,190 43,633,155 26,191,698 25,083,184 17,441,457 31.170 18.711 12.460 166.6% Market Dominant Services

Ancillary Services

Certified Mail 613,642 529,954 521,772 83,688 115.8%

COD 3,974 2,865 2,865 1,109 138.7%

Insurance 79,140 48,467 48,453 30,672 163.3%

Registered Mail 29,137 18,130 18,129 11,007 160.7%

Stamped Envelopes 11,164 12,051 12,040 (887) 92.6%

Stamped Cards 592 208 208 385 285.2%

Other Ancillary Services 401,654 229,705 227,621 171,950 174.9% Money Orders 158,540 146,672 145,073 11,868 108.1%

Post Office Box Service 287,485 254,646 254,575 32,840 112.9%

Caller Service 88,512 26,324 26,298 62,188 336.2%

Other Special Services 37,650 12,144 12,144 25,506 310.0% Market Dominant Services Non-Product Inframarginal Costs 20,740

Total Market Dominant Domestic Services 1,711,490 1,301,906 1,269,178 409,584

Outbound Single-Piece Mail Intl 132,032 198,140 139,496 139,496 58,644

Inbound Single-Piece Mail Intl 622,368 841,713 761,948 761,948 79,765

International Services 47,077 40,989 40,989 6,088 Market Dominant Intl Non-Product Inframarginal Costs 981 Market Dominant International Mail & Services 754,400 1,086,929 943,414 942,433 143,516

Other Income 1,108,506 1,108,506

Other International Mail Attributable 68,474 0 (68,474)

Total Mail and Services 146,400,934 70,599,576 43,971,569 42,392,202 26,628,007 48.223 30.035 18.188 160.6%

Institutional Costs 30,724,417

Appropriations: Revenue Forgone 60,527

Investment Income 122,875

Total Revenues 70,782,978

Total Costs 74,695,986

Net Income (Loss) (3,913,008)

Source: Library Reference PRC-FinRpt18-1.