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###### Postal Regulatory Commission

          - 39 CFR Part 3020
          - [Docket No. CP2009-46; Order No. 265]

# AGENCY:

Postal Regulatory Commission.

# ACTION:

Final rule.

# SUMMARY:

The Commission is making changes to the Competitive Product List, including adding a Global Plus 1 contract. This is consistent with changes in a recent law governing postal operations. Republication of the lists of market dominant and competitive products is also consistent with requirements in the new law.

# DATES:

Effective August 17, 2009 and is applicable beginning July 31, 2009.

# FOR FURTHER INFORMATION CONTACT:

                        Stephen L. Sharfman at 202-789-6820 or                         *stephen.sharfman@prc.gov.*

# SUPPLEMENTARY INFORMATION:

*Regulatory History*, 74 FR 36276 (July 22, 2009).                

I. Introduction

II. Background

III. Comments

IV. Commission Analysis

V. Ordering Paragraphs

## I. Introduction

The Postal Service proposes to add a specific Global Plus 1 contract to the Global Plus Contracts product established in Docket No. CP2008-8. For the reasons discussed below, the Commission approves the Postal Service's proposal.

## II. Background

                    On July 13, 2009, the Postal Service filed a notice, pursuant to 39 CFR 3015.5, announcing that it has entered into two additional Global Plus 1 contracts, which it states fit within the previously established Global Plus Contracts product.[1]                                          The Postal Service                           ( print page 41337)                        states that each contract is functionally equivalent to previously submitted Global Plus 1 contracts, are filed in accordance with Order No. 85, and are supported by Governors' Decision No. 08-8 filed in Docket No. CP2008-8.[2]                                          Notice at 1.                

                    The Notice also states that in Docket No. CP2008-8, the Governors established prices and classifications for competitive products not of general applicability for Global Plus Contracts.[3]                                          The Postal Service states that the instant contract is the immediate successor contract to Docket No. CP2008-9 which is to expire soon, which the Commission found to be functionally equivalent in Order No. 85.                     *Id.*                     at 2.                

                    The Postal Service contends that the instant contract should be included within the Global Plus 1 product on the Competitive Product List.                     *Id.*                     at 1.                

                    In support, the Postal Service has also filed a redacted version of each contract and related materials as Attachment 1-A. A redacted version of the certified statement required by 39 CFR 3015.5 is included as Attachment 2-A. The Postal Service requests that the instant contract “be considered the new `baseline' contract[s] for future functional equivalency analyses concerning this product.”                     *Id.*                     at 2.                

The Postal Service filed the instant contract pursuant to 39 CFR 3015.5. The contract becomes effective August 1, 2009, unless regulatory reviews affect that date, and has a one-year term.

                    The Postal Service maintains that certain portions of this contract and certified statement required by 39 CFR 3015.5(c)(2), containing names and identifying information of the Global Plus 1 customer, related financial information, as well as the accompanying analyses that provide prices, terms, conditions, and financial projections should remain under seal.                     *Id.*                     at 3.                

                    The Postal Service asserts the contract is functionally equivalent with the contract filed in Docket No. CP2009-47 because they share similar cost and market characteristics. It contends that they should be classified as a single product.                     *Id.*                     It states that while the existing contracts filed in Docket Nos. CP2008-9 and CP2008-10 exhibited minor distinctions, the new contracts are virtually identical to one another.                     *Id.*                     at 4.                

                    The Postal Service maintains these differences only add detail or amplify processes included in prior Global Plus 1 contracts. It contends because the instant contract has the same cost attributes and methodology as well as similar cost and market characteristics the differences do not affect the fundamental service being offered or the essential structure of the contract.                     *Id.*                     at 7-8. It states the contract is substantially similar both to the existing contract in Docket No. CP2008-9 and to the existing Global Plus 1 contracts and should be added to the Global Plus 1 product.                     *Id.*                     at 8.                

                    In Order No. 249, the Commission gave notice of the docket, appointed a Public Representative, and provided the public with an opportunity to comment.[4] 

On July 22, 2009, Chairman's Information Request No. 1 (CHIR No. 1) was issued with responses due by July 27, 2009. On July 24, 2009, the Postal Service provided its responses to CHIR No. 1.

## III. Comments

                    Comments were filed by the Public Representative.[5]                                          No other interested parties submitted comments. The Public Representative states the individual contracts appear to satisfy the statutory criteria, but because of the timeframe to provide comments and information identified in CHIR No. 1, his response is not an unqualified recommendation in support of each contract's approval.                     *Id.*                     at 2. He notes that relevant provisions of 39 U.S.C. 3632, 3633 and 3642 appear to be met by these additional Global Plus 1 contracts.                     *Id.*                     The Public Representative states that he believes the contracts are functionally equivalent to the existing Global Plus Contracts product. He also determines that the Postal Service has provided greater transparency and accessibility in its filings.                     *Id.*                     at 3.                

                    The Public Representative notes that the general public benefits from the availability of these contracts in several ways: Well prepared international mail adds increased efficiency in the mailstream, enhanced volume results in timeliness in outbound shipments to all countries including those with small volume, and the addition of shipping options may result in expansion of mail volumes, particularly with the incentives for Postal Qualified Mailers (PQMs) and increased efficiency in existing postal capacity.                     *Id.*                     at 4-5.                

                    Finally, he discusses the need for self-contained docket filings. In particular, he notes that the instant contract relies on data from the most recent International Cost and Revenue Analysis (ICRA), which was filed under seal in another docket. He suggests that the Postal Service should identify the location of the ICRA utilized and cited in that docket.                     *Id.*                     at 6.                

## IV. Commission Analysis

The Postal Service proposes to add an additional contract under the Global Plus Contracts product that was created in Docket No. CP2008-8. As filed, this docket presents two issues for the Commission to consider: (1) Whether the contract satisfies 39 U.S.C. 3633, and (2) whether the contract is functionally equivalent to previously reviewed Global Plus 1 contracts. In reaching its conclusions, the Commission has reviewed the Notice, the contract and the financial analyses provided under seal, supplemental information, and the Public Representative's comments.

*Statutory requirements.*                     The Postal Service contends that the instant contract and supporting documents filed in this docket establish compliance with the statutory provisions applicable to rates for competitive products (39 U.S.C. 3633). Notice at 2. J. Ron Poland, Manager, Statistical Programs, Finance Department asserts Governors' Decision No. 08-8 for Global Plus Contracts establishes price floor and ceiling formulas issued on May 28, 2008. He certifies that the pricing in the instant contract meets the Governors' pricing formula and meets the criteria of 39 U.S.C. 3633(a)(1), (2) and (3). He further states that the prices demonstrate that the contract and the included ancillary services should cover their attributable costs, preclude the subsidization of competitive products by market dominant products, and should not impair the ability of competitive products on the whole to cover an appropriate share of institutional costs.                     *Id.,*                     Attachment 2-A.                

For his part, the Public Representative indicates that the contract appears to satisfy 39 U.S.C. 3633. Public Representative Comments at 1-3.

                    Based on the review of the data submitted, including the supplemental                           ( print page 41338)                        information, the Commission finds that the contract should cover its attributable costs (39 U.S.C. 3633(a)(2)), should not lead to the subsidization of competitive products by market dominant products (39 U.S.C. 3633(a)(1)), and should have a positive effect on competitive products' contribution to institutional costs (39 U.S.C. 3633(a)(3)). Thus, an initial review of the contract indicates that it comports with the provisions applicable to rates for competitive products.                

*Functional equivalence.*                     The Postal Service asserts that the instant contract is functionally equivalent to the contract filed in the companion proceeding, Docket No. CP2009-47, as well as with Global Plus 1 contracts filed previously because they share similar cost and market characteristics. Notice at 4. The Postal Service states that the customers under the existing and proposed contracts are the same. In addition, it notes that existing contracts exhibited some differences, the contracts proposed in Docket No. CP2009-46 and CP2009-47 are virtually identical.                     *Id.*

Having reviewed the contracts filed in the instant proceeding and in Docket No. CP2009-47, and the Postal Service's justification, the Commission finds that the two contracts may be treated as functionally equivalent.

*New baseline.*                     The Postal Service requests that the contracts filed in Docket Nos. CP2009-46 and 2009-47 be included in the Global Plus 1 product and “considered the new `baseline' contracts for purposes of future functional equivalency analyses concerning this product.” Notice at 2. Currently, the Global Plus 1 product consists of two existing contracts that will be superseded by the contracts in Docket Nos. CP2009-46 and CP2009-47. Under those circumstances, the new contracts need not be designated as a new product. Accordingly, the new contracts in Docket Nos. CP2009-46 and CP2009-47 will be included in the Global Plus 1 product and become the “baseline” for future functional equivalency analyses regarding that product.                

*Self-contained docket filings.*                     The Public Representative reiterates a point made in Order No. 247 regarding the need for self-contained docket filings. In particular, he points to the difficulty in obtaining IRCA data relied on to support the instant contract but filed under seal in another docket. He suggests that “filings that reference the ICRA should include a pointer to the location of the ICRA utilized and cited in that docket.” Public Representative Comments at 6.                

The Public Representative point is well taken. The Commission does not wish to burden the Postal Service with extraneous filing requirements, nor does it intend for the process of reviewing Postal Service filings to become labyrinthine. Recognizing that Postal Service filings are electronic, the Commission will adopt the following policy: 1. The redacted Governors' Decision on which the contract is based should be included with the filing; 2. an html link should be provided to the document filed by the Postal Service that notices that the unredacted Governors' Decision is being filed under seal; and 3. all other confidential data relied on to support the specific contract should be filed in the docket in which that specific contract is filed.

*Other considerations.*                     If the agreement terminates earlier than anticipated, the Postal Service shall promptly inform the Commission of the new termination date.                

In conclusion, the Commission finds that the negotiated service agreement submitted in Docket No. CP2009-46 is appropriately included within the Global Plus Contracts product.

## V. Ordering Paragraphs

*It is ordered:*

1. The contract filed in Docket No. CP2009-46 is included within the Global Plus 1 product (CP2008-8 and CP2009-46).

2. The existing Global Plus 1 product (CP2008-9 and CP2008-10) is removed from the product list.

3. As discussed in the body of this order, future contract filings which rely on materials filed under seal in other dockets should be self-contained.

4. The Postal Service shall notify the Commission if the termination date changes as discussed in this order.

# List of Subjects in 39 CFR Part 3020

      - Administrative practice and procedure; Postal Service

Issued: July 31, 2009.

By the Commission.

Judith M. Grady,

Acting Secretary.

For the reasons stated in the preamble, under the authority at 39 U.S.C. 503, the Postal Regulatory Commission amends 39 CFR part 3020 as follows:

# PART 3020—PRODUCT LISTS

1. The authority citation for part 3020 continues to read as follows: 

Authority: 39 U.S.C. 503; 3622; 3631; 3642; 3682.

2. Revise Appendix A to Subpart A of Part 3020—Mail Classification Schedule to read as follows: 

# Appendix to Subpart A of Part 3020—Mail Classification Schedule

#### Part A—Market Dominant Products

#### 1000 Market Dominant Product List

First-Class Mail

Single-Piece Letters/Postcards

Bulk Letters/Postcards

Flats

Parcels

Outbound Single-Piece First-Class Mail International

Inbound Single-Piece First-Class Mail International

Standard Mail (Regular and Nonprofit)

High Density and Saturation Letters

High Density and Saturation Flats/Parcels

Carrier Route

Letters

Flats

Not Flat-Machinables (NFMs)/Parcels

Periodicals

Within County Periodicals

Outside County Periodicals

Package Services

Single-Piece Parcel Post

Inbound Surface Parcel Post (at UPU rates)

Bound Printed Matter Flats

Bound Printed Matter Parcels

Media Mail/Library Mail

Special Services

Ancillary Services

International Ancillary Services

Address List Services

Caller Service

Change-of-Address Credit Card Authentication

Confirm

International Reply Coupon Service

International Business Reply Mail Service

Money Orders

Post Office Box Service

Negotiated Service Agreements

HSBC North America Holdings Inc. Negotiated Service Agreement

Bookspan Negotiated Service Agreement

Bank of America Corporation Negotiated Service Agreement

The Bradford Group Negotiated Service Agreement

Inbound International 

Canada Post—United States Postal Service Contractual Bilateral Agreement for Inbound Market Dominant Services

#### Market Dominant Product Descriptions

First-Class Mail 

[Reserved for Class Description]

Single-Piece Letters/Postcards 

[Reserved for Product Description]

Bulk Letters/Postcards 

[Reserved for Product Description]

Flats 

[Reserved for Product Description]

Parcels 

[Reserved for Product Description]

Outbound Single-Piece First-Class Mail International 

[Reserved for Product Description]

Inbound Single-Piece First-Class Mail International 

[Reserved for Product Description]

Standard Mail (Regular and Nonprofit) 

[Reserved for Class Description]

High Density and Saturation Letters 

                            [Reserved for Product Description]                                  ( print page 41339)    

High Density and Saturation Flats/Parcels 

[Reserved for Product Description]

Carrier Route 

[Reserved for Product Description]

Letters 

[Reserved for Product Description]

Flats 

[Reserved for Product Description]

Not Flat-Machinables (NFMs)/Parcels 

[Reserved for Product Description]

Periodicals 

[Reserved for Class Description]

Within County Periodicals 

[Reserved for Product Description]

Outside County Periodicals 

[Reserved for Product Description]

Package Services 

[Reserved for Class Description]

Single-Piece Parcel Post 

[Reserved for Product Description]

Inbound Surface Parcel Post (at UPU rates) 

[Reserved for Product Description]

Bound Printed Matter Flats 

[Reserved for Product Description]

Bound Printed Matter Parcels 

[Reserved for Product Description]

Media Mail/Library Mail 

[Reserved for Product Description]

Special Services 

[Reserved for Class Description]

Ancillary Services 

[Reserved for Product Description]

Address Correction Service 

[Reserved for Product Description]

Applications and Mailing Permits 

[Reserved for Product Description]

Business Reply Mail 

[Reserved for Product Description]

Bulk Parcel Return Service 

[Reserved for Product Description]

Certified Mail 

[Reserved for Product Description]

Certificate of Mailing 

[Reserved for Product Description]

Collect on Delivery 

[Reserved for Product Description]

Delivery Confirmation 

[Reserved for Product Description]

Insurance 

[Reserved for Product Description]

Merchandise Return Service 

[Reserved for Product Description]

Parcel Airlift (PAL) 

[Reserved for Product Description]

Registered Mail 

[Reserved for Product Description]

Return Receipt 

[Reserved for Product Description]

Return Receipt for Merchandise 

[Reserved for Product Description]

Restricted Delivery 

[Reserved for Product Description]

Shipper-Paid Forwarding 

[Reserved for Product Description]

Signature Confirmation 

[Reserved for Product Description]

Special Handling 

[Reserved for Product Description]

Stamped Envelopes 

[Reserved for Product Description]

Stamped Cards 

[Reserved for Product Description]

Premium Stamped Stationery 

[Reserved for Product Description]

Premium Stamped Cards 

[Reserved for Product Description]

International Ancillary Services 

[Reserved for Product Description]

International Certificate of Mailing 

[Reserved for Product Description]

International Registered Mail 

[Reserved for Product Description]

International Return Receipt 

[Reserved for Product Description]

International Restricted Delivery 

[Reserved for Product Description]

Address List Services 

[Reserved for Product Description]

Caller Service 

[Reserved for Product Description]

Change-of-Address Credit Card Authentication 

[Reserved for Product Description]

Confirm 

[Reserved for Product Description]

International Reply Coupon Service 

[Reserved for Product Description]

International Business Reply Mail Service 

[Reserved for Product Description]

Money Orders 

[Reserved for Product Description]

Post Office Box Service 

[Reserved for Product Description]

Negotiated Service Agreements 

[Reserved for Class Description]

HSBC North America Holdings Inc. Negotiated Service Agreement 

[Reserved for Product Description]

Bookspan Negotiated Service Agreement 

[Reserved for Product Description]

Bank of America Corporation Negotiated Service Agreement

The Bradford Group Negotiated Service Agreement

#### Part B—Competitive Products

### 2000 Competitive Product List

#### Express Mail

Express Mail

Outbound International Expedited Services

Inbound International Expedited Services

 Inbound International Expedited Services 1 (CP2008-7)

 Inbound International Expedited Services 2 (MC2009-10 and CP2009-12)

#### Priority Mail

Priority Mail

Outbound Priority Mail International

Inbound Air Parcel Post

 Royal Mail Group Inbound Air Parcel Post Agreement

#### Parcel Select

#### Parcel Return Service

#### International

International Priority Airlift (IPA)

International Surface Airlift (ISAL)

International Direct Sacks—M-Bags

Global Customized Shipping Services

Inbound Surface Parcel Post (at non-UPU rates) 

 Canada Post—United States Postal service Contractual Bilateral Agreement for Inbound Competitive Services (MC2009-8 and CP2009-9)

International Money Transfer Service

International Ancillary Services

#### Special Services

Premium Forwarding Service

#### Negotiated Service Agreements

Domestic

Express Mail Contract 1 (MC2008-5)

Express Mail Contract 2 (MC2009-3 and CP2009-4)

Express Mail Contract 3 (MC2009-15 and CP2009-21)

Express Mail Contract 4 (MC2009-34 and CP2009-45)

Express Mail & Priority Mail Contract 1 (MC2009-6 and CP2009-7)

Express Mail & Priority Mail Contract 2 (MC2009-12 and CP2009-14)

Express Mail & Priority Mail Contract 3 (MC2009-13 and CP2009-17)

Express Mail & Priority Mail Contract 4 (MC2009-17 and CP2009-24)

Express Mail & Priority Mail Contract 5 (MC2009-18 and CP2009-25)

Express Mail & Priority Mail Contract 6 (MC2009-31 and CP2009-42)

Express Mail & Priority Mail Contract 7 (MC2009-32 and CP2009-43)

Express Mail & Priority Mail Contract 8 (MC2009-33 and CP2009-44)

Parcel Return Service Contract 1 (MC2009-1 and CP2009-2)

Priority Mail Contract 1 (MC2008-8 and CP2008-26)

Priority Mail Contract 2 (MC2009-2 and CP2009-3)

Priority Mail Contract 3 (MC2009-4 and CP2009-5)

Priority Mail Contract 4 (MC2009-5 and CP2009-6)

Priority Mail Contract 5 (MC2009-21 and CP2009-26)

Priority Mail Contract 6 (MC2009-25 and CP2009-30)

Priority Mail Contract 7 (MC2009-25 and CP2009-31)

Priority Mail Contract 8 (MC2009-25 and CP2009-32)

Priority Mail Contract 9 (MC2009-25 and CP2009-33)

Priority Mail Contract 10 (MC2009-25 and CP2009-34)

Priority Mail Contract 11 (MC2009-27 and CP2009-37)

Priority Mail Contract 12 (MC2009-28 and CP2009-38)

Priority Mail Contract 13 (MC2009-29 and CP2009-39)

Priority Mail Contract 14 (MC2009-30 and CP2009-40)

Outbound International

Direct Entry Parcels Contracts

 Direct Entry Parcels 1 (MC2009-26 and CP2009-36)

Global Direct Contracts (MC2009-9, CP2009-10, and CP2009-11)

Global Expedited Package Services (GEPS) Contracts

 GEPS 1 (CP2008-5, CP2008-11, CP2008-12, and CP2008-13, CP2008-18, CP2008-19, CP2008-20, CP2008-21, CP2008-22, CP2008-23, and CP2008-24)

Global Plus Contracts

 Global Plus 1 (CP2008-8 and CP2008-46)

 Global Plus 2 (MC2008-7, CP2008-16 and CP2008-17)

Inbound International

                            Inbound Direct Entry Contracts with Foreign Postal Administrations (MC2008-6, CP2008-14 and CP2008-15)                                  ( print page 41340)    

International Business Reply Service 

Competitive Contract 1 (MC2009-14 and CP2009-20)

#### Competitive Product Descriptions

Express Mail [Reserved for Group Description]

Express Mail [Reserved for Product Description]

Outbound International Expedited Services [Reserved for Product Description]

Inbound International Expedited Services [Reserved for Product Description]

Priority [Reserved for Product Description]

Priority Mail [Reserved for Product Description]

Outbound Priority Mail International [Reserved for Product Description]

Inbound Air Parcel Post [Reserved for Product Description]

Parcel Select [Reserved for Group Description]

Parcel Return Service [Reserved for Group Description]

International [Reserved for Group Description]

International Priority Airlift (IPA) [Reserved for Product Description]

International Surface Airlift (ISAL) [Reserved for Product Description]

International Direct Sacks—M-Bags [Reserved for Product Description]

Global Customized Shipping Services [Reserved for Product Description]

International Money Transfer Service [Reserved for Product Description]

Inbound Surface Parcel Post (at non-UPU rates) [Reserved for Product Description]

International Ancillary Services [Reserved for Product Description]

International Certificate of Mailing [Reserved for Product Description]

International Registered Mail [Reserved for Product Description]

International Return Receipt [Reserved for Product Description]

International Restricted Delivery [Reserved for Product Description]

International Insurance [Reserved for Product Description]

Negotiated Service Agreements [Reserved for Group Description]

Domestic [Reserved for Product Description]

Outbound International [Reserved for Group Description]

#### Part C—Glossary of Terms and Conditions [Reserved]

#### Part D—Country Price Lists for International Mail [Reserved]

# Footnotes

1.                             Notice of the United States Postal Service of Filing Two Functionally Equivalent Global Plus 1                                                 Contracts Negotiated Service Agreements, July 13, 2009 (Notice). While the Notice was filed jointly in Docket Nos. CP2009-46 and CP2009-47, the Commission will address the issues in these dockets in separate orders. The Postal Service requests that the two contracts be included in the Global Plus 1 product, and “that they be considered the new `baseline' contracts for future functional equivalency analyses...”                         *Id.*                         at 2.                    
        Back to Citation      

2.                                                     *See*                         Docket Nos. CP2008-8 through CP2008-10, Order Concerning Global Plus Negotiated Service Agreements, June 27, 2008 (Order No. 85).                    
        Back to Citation      

3.                                                     *See*                         Docket No.CP2008-8, Notice of United States Postal Service of Governors' Decision Establishing Prices and Classifications for Global Plus Contracts, June 2, 2008, at 1.                    
        Back to Citation      

4.                             Notice and Order Concerning Two Functionally Equivalent Global Plus 1 Contracts Negotiated Service Agreements, July 16, 2009 (Order No. 249).                    
        Back to Citation      

5.                             Public Representative Comments in Response to Order No. 249, July 23, 2009 (Public Representative Comments). The Public Representative's comments jointly address the Postal Service's filings in Docket Nos. CP2009-46 and CP2009-47.                    
        Back to Citation      

[FR Doc. E9-19440 Filed 8-14-09; 8:45 am]

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