[Federal Register Volume 73, Number 165 (Monday, August 25, 2008)]
[Rules and Regulations]
[Pages 49955-49962]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-19506]


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GENERAL SERVICES ADMINISTRATION

41 CFR Part 102-192

[FMR Amendment 2008-06; FMR Case 2003-102-1; Docket 2008-0001; Sequence 
4]
RIN 3090-AH13


Federal Management Regulation; FMR Case 2003-102-1; Mail 
Management

AGENCY: Office of Governmentwide Policy, GSA.

ACTION: Final rule.

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SUMMARY: The General Services Administration is amending the Federal 
Management Regulation (FMR) by revising the current mail management 
policy. This final rule incorporates changes made to the current 
interim rule.

DATES: This final rule is effective August 25, 2008.

FOR FURTHER INFORMATION CONTACT: For clarification of content, contact 
Derrick Miliner, Office of Governmentwide Policy, Mail Management 
Policy, at (202) 273-3564, or e-mail at <a href="/cdn-cgi/l/email-protection#32565740405b51591c5f5b5e5b5c5740725541531c555d44"><span class="__cf_email__" data-cfemail="82e6e7f0f0ebe1e9acefebeeebece7f0c2e5f1e3ace5edf4">[email protected]</span></a>. The 
Regulatory Secretariat, Room 4041, GS Building, Washington, DC 20405, 
at (202) 501-4755 for information pertaining to status or publication 
schedules. Please cite FMR case 2003-102-1.

SUPPLEMENTARY INFORMATION:

A. Background

    On May 29, 2001, the General Services Administration (GSA) 
published a proposed rule for mail management in the Federal Register 
(66 FR 29067). After considering all comments received on the proposed 
rule, GSA published an interim rule for mail management in the Federal 
Register, which was effective on its publication date, June 6, 2002 (67 
FR 38896).
    GSA chose to publish an interim rule in 2002 because we recognized 
that experience would identify some elements of the interim rule that 
would need to be changed. This final rule reflects that experience.
    The significant changes between this final rule and the interim 
rule are:
    1. This final rule removes Appendix A, titled ``Large Agency 
Mailers.'' The list of agencies that qualify as large, as defined in 
this regulation, changes slightly every year. GSA has determined, 
therefore, that it is better to publish this list on its web site, 
www.gsa.gov/mailpolicy, rather than in this regulation.
    2. This final rule removes Appendix B titled ``Mail Center Security 
Plan.'' GSA has determined that this final rule should contain only the 
basic requirements for security plans, and that any additional guidance 
should be

[[Page 49956]]

provided through its web site, www.gsa.gov/mailpolicy. Best practices 
in mail center security evolve too quickly for inclusion in the FMR. 
See Subpart C for the minimum requirements for security plans and 
policies.
    3. This final rule removes the minimum size for facilities to have 
written mail security plans. The Mail Regulation Interagency Working 
Group decided that any facility processing mail must have a written 
security plan, regardless of its size, and GSA has adopted that finding 
in this regulation.
    4. This final rule removes from the definition of ``mail'' packages 
of any size or weight containing parts and supplies issued from 
materiel distribution centers. Packages up to 70 pounds containing 
paper, publications, and similar materials are still included in the 
definition of mail. GSA has made this change at the request of several 
agencies, including the Department of Defense and the National 
Aeronautics and Space Administration. Parts and supplies are not 
``records,'' as envisioned by the Federal Records Management Amendments 
of 1976 (44 U.S.C. 2901-2904), which provides the authority for this 
Part.
    5. This final rule reestablishes the requirement that every agency 
must have an agency mail manager and must have a mail center manager at 
every Federal facility that processes mail; this rule was first 
established in part 101-9 of the Federal Property Management Regulation 
(FPMR) (41 CFR part 101-9) and was inadvertently not included in the 
interim rule.
    6. This final rule moves the due date for the annual mail 
management reports from March 30 to January 15.
    7. The interim rule required that all agencies begin using 
commercial payment processes for mail and stop using the United States 
Postal Service (USPS) Official Mail Accounting System. Many agencies 
are currently operating under temporary deviations that give them 
additional time to meet this requirement. When GSA amended 41 CFR part 
102-192 to change the date for this requirement to December 31, 2003, 
it also stated that ``all deviation requests will be required to 
include a discussion of how the agency has implemented, or plans to 
implement, an accountable system for making postage payments.'' This 
final rule requires that, in their annual report, all large agencies 
discuss how they are implementing an accountable system for postage 
payments, or how they plan to do so. It also requires that all agencies 
discuss how they plan to implement an accountable system for postage in 
any deviation requests related to this issue. At the same time, this 
final rule allows deviations that have not reached their expiration 
dates to continue in effect until they expire.

B. Executive Order 12866

    GSA has determined that this final rule is not a significant rule 
for the purposes of Executive Order 12866 of September 30, 1993.

C. Regulatory Flexibility Act

    This final rule is not expected to have a significant economic 
impact on a substantial number of small entities within the meaning of 
the Regulatory Flexibility Act, 5 U.S.C. 601, et seq.

D. Paperwork Reduction Act

    The Paperwork Reduction Act does not apply because this final rule 
does not impose recordkeeping or information collection requirements, 
or the collection of information from offerors, contractors, or members 
of the public which require the approval of the Office of Management 
and Budget (OMB) under 44 U.S.C. 3501, et seq.

E. Small Business Regulatory Enforcement Fairness Act

    This final rule is exempt from Congressional review prescribed 
under 5 U.S.C. 801 since it relates solely to agency management and 
personnel.

List of Subjects in 41 CFR Part 102-192

    Government contracts, Mail, Performance measurement, Records 
management, Reporting and recordkeeping requirements, Security.

    Dated: May 21, 2008.
David L. Bibb,
Acting Administrator of General Services.

0
For the reasons set forth in the preamble, 41 CFR chapter 102 is 
amended by revising part 102-192 of Subchapter G to read as follows:

PART 102-192--MAIL MANAGEMENT

Subpart A--Introduction to this Part
Sec.
102-192.5 What does this part cover?
102-192.10 What authority governs this part?
102-192.15 How are ``I'', ``you'', ``me'', ``we'', and ``us'' used 
in this part?
102-192.20 How are ``must'' and ``should'' used in this part?
102-192.25 Does this part apply to me?
102-192.30 What types of mail does this part apply to?
102-192.35 What definitions apply to this part?
102-192.40 Where can we obtain more information about the classes of 
mail?
102-192.45 How can we request a deviation from these requirements, 
and who can approve it?
Subpart B--Financial Requirements for All Agencies
102.192.50 What payment processes are we required to use?
102-192.55 Why must we use these commercial payment processes?
102-192.60 How do we implement these commercial payment processes?
102-192.65 What features must our finance systems have to track mail 
costs?
Subpart C--Security Requirements for All Agencies
102-192.70 What security policies and plans must we have?
102-192.75 Why must we have written security policies and plans?
102-192.80 How do we develop written security policies and plans?
Subpart D--Reporting Requirements
102.192.85 Who must report to GSA annually?
102.192.90 What must we include in our annual mail management report 
to GSA?
102-192.95 Why does GSA require annual mail management reports?
102-192.100 How do we submit our annual mail management report to 
GSA?
102-192.105 When must we submit our annual mail management report to 
GSA?
Subpart E--Performance Measurement Requirements
102-192.110 At what level(s) in our agency must we have performance 
measures?
102-192.115 Why must we use performance measures?
Subpart F--Agency Mail Manager Requirements
102-192.120 Must we have an agency mail manager?
102.192.125 What is the appropriate managerial level for an agency 
mail manager?
102-192.130 What are your general responsibilities as an agency mail 
manager?
Subpart G--Mail Center Manager Requirements
102-192.135 Must we have a mail center manager at our facility?
102.192.140 What are your general responsibilities as a Federal mail 
center manager?
Subpart H--Program Level Mail Responsibilities
102-192.145 Which program levels should have a mail manager?
102-192.150 What are your general responsibilities as a program 
level mail manager?
Subpart I--Other Agency Responsibilities
102-192.155 What should our agency-wide mail management policy 
statement cover?
102-192.160 What less costly alternatives to expedited mail and 
couriers should your agency-wide mail management policy address?
102-192.165 What authorities must I follow when contracting out all 
or part of the mail function?

[[Page 49957]]

Subpart J--GSA's Responsibilities and Services
102-192.170 What are GSA's responsibilities in mail management?
102-192.175 What types of support does GSA offer to Federal agency 
mail management programs?

    Authority: 44 U.S.C. 2904; 40 U.S.C. 121(c).

Subpart A--Introduction to this Part


Sec.  102-192.5  What does this part cover?

    This part prescribes policy and requirements for the effective, 
economical, and secure management of incoming, internal, and outgoing 
mail in Federal agencies.


Sec.  102-192.10  What authority governs this part?

    This part is governed by Section 2 of Public Law 94-575, the 
Federal Records Management Amendments of 1976 (44 U.S.C. 2901-2904), as 
amended, that requires the Administrator of General Services to provide 
guidance and assistance to Federal agencies on records management and 
defines the processing of mail by Federal agencies as a records 
management activity.


Sec.  102-192.15  How are ``I'', ``you'', ``me'', ``we'', and ``us'' 
used in this part?

    In this part, ``I'', ``me'', and ``you'' (in its singular sense) 
refer to agency mail managers and/or facility mail managers. The 
context makes it clear which usage is intended in each case. ``We'', 
``us'', and ``you'' (in its plural sense) refer to your Federal agency.


Sec.  102-192.20  How are ``must'' and ``should'' used in this part?

    In this part--
    (a) ``Must'' identifies steps that Federal agencies are required to 
take; and
    (b) ``Should'' identifies steps that the General Services 
Administration (GSA) recommends.

    Note to Sec.  102-192.20: In their internal policy statements, 
agencies may require steps that GSA recommends. However, agencies 
may not change required steps into non-mandatory recommendations.

Sec.  102-192.25  Does this part apply to me?

    Yes, this part applies to you if you work in mail management in a 
Federal agency, as defined in Sec.  102-192.35.


Sec.  102-192.30  What types of mail does this part apply to?

    (a) This part applies to all materials that might pass through a 
Federal mail center, including--
    (1) All internal, incoming, and outgoing materials, regardless of 
whether or not they currently pass through a mail center; this includes 
envelopes, publications, postal cards, bulk mail, expedited mail, and 
individual packages up to 70 pounds that contain paper or publications; 
and
    (2) Materials carried by agency personnel, contractors, the United 
States Postal Service (USPS), and all other carriers of such items.
    (b) This part does not apply to shipments of parts or supplies from 
a materiel distribution center (a material distribution center is a 
warehouse that maintains and distributes an inventory of parts and 
supplies).


Sec.  102-192.35  What definitions apply to this part?

    The following definitions apply to this part:
    Accountable mail means any mail for which the service provider and 
the mail center must maintain a record that shows where the mail piece 
is at any given time and when and where it was delivered; examples 
include USPS registered mail and all expedited mail (see definition 
below).
    Agency mail manager means the person who manages the overall mail 
communications program of a Federal agency.
    Class of mail means one of the five categories of domestic mail as 
defined by the United States Postal Service (USPS) in the Domestic Mail 
Manual, (C100 through C600.1.z). These are:
    (1) Express mail.
    (2) First class (includes priority mail).
    (3) Periodicals.
    (4) Standard mail (e.g., bulk marketing mail).
    (5) Package services.
    Commingling means combining outgoing mail from one facility or 
agency with outgoing mail from at least one other source.
    Commercial payment processes means mechanisms for paying for USPS 
postage that are essentially the same as those used by private sector 
mailers. This means paying for postage before the postage is used 
(which the U.S. Treasury has determined is appropriate for USPS 
postage). For meter or permit mail, this also means sending money to 
the USPS via Electronic Funds Transfer (EFT) transactions to commercial 
banks designated by the USPS as their financial agents. For stamps and 
other USPS services, this means paying the USPS directly via cash, 
charge card, debit card, and money order, depending on the specific 
service being purchased.
    Expedited mail means mail designated for delivery more quickly than 
the USPS's normal delivery times (which vary by class of mail). 
Examples of expedited mail include USPS Express Mail and overnight and 
two-day delivery by other service providers.
    Facility mail manager means the person responsible for mail in a 
specific Federal facility. There may be many facility mail managers 
within a Federal agency.
    Federal agency (or agency), as defined in 44 U.S.C. 2901(14), 
means--
    (1) Any executive department as defined in 5 U.S.C. 101;
    (2) Any wholly owned Government corporation as defined in 31 U.S.C. 
9101;
    (3) Any independent establishment in the executive branch as 
defined in 5 U.S.C. 104; and
    (4) Any establishment in the legislative branch, except the Senate, 
the House of Representatives, the Architect of the Capitol, and all 
activities under the direction of the Architect of the Capitol.
    Federal facility (or facility) means any office building, 
installation, base, etc., where Federal agency employees work; this 
includes any facility where the Federal government pays postage 
expenses even though few or no Federal employees are involved in 
processing the mail.
    Incoming mail means any mail that comes into a facility delivered 
by any service provider, such as the USPS, United Parcel Service (UPS), 
FedEx, or DHL.
    Internal mail means mail generated within a Federal facility that 
is delivered within that facility or to a nearby facility of the same 
agency, so long as it is delivered by agency personnel or a dedicated 
agency contractor.
    Large agency means a Federal agency whose total payments to all 
mail service providers exceed $1 million per fiscal year.
    Mail means the types of mail described in Sec.  102-192.30.
    Mail center means an organization and/or place, within or 
associated with a Federal facility, where incoming and/or outgoing 
Federal mail is processed.
    Mail costs means direct or allocated expenses for postage and all 
other mail costs (e.g., payments to service providers, mail center 
personnel costs, mail center overhead, etc.).
    Mail piece design means laying out and printing items to be mailed 
so that they can be processed efficiently and effectively by automated 
mail-processing equipment.
    Official Mail Accounting System (OMAS) means the U.S. Postal 
Service's government-specific system used to track postage used by many 
Federal agencies.
    Outgoing mail means mail generated within a Federal facility that 
is going

[[Page 49958]]

outside that facility and is delivered by a service provider.
    Personal mail means incoming or outgoing mail that is not related 
to official business of the Federal government.
    Postage means money due or paid to any service provider for the 
delivery of mail.
    Presort means a mail preparation process used to receive a 
discounted mailing rate by sorting mail according to USPS standards.
    Program level means a subsidiary part of a Federal agency that 
generates a significant quantity of outgoing mail (``significant'' in 
this context is relative to the overall size of the agency's mail 
budget; half of a small annual mail budget may not be significant in a 
small agency, whereas one-tenth or less might be significant in a large 
agency). The term program level may apply to an agency organizational 
entity, program, or project.
    Program level mail manager is the person at the program level 
responsible for mail policy implementation, operations, and financial 
management; the program level counterpart of the agency mail manager.
    Service provider means any agency or company that delivers mail. 
Some examples of service providers are USPS, UPS, FedEx, DHL, courier 
services, the Military Postal Service Agency, the Department of State's 
Diplomatic Pouch and Mail Division, and other Federal agencies 
providing mail services.
    Special services means those mail services that require extra 
payment over basic postage; e.g., certified mail, business reply mail, 
registered mail, merchandise return service, certificates of mailing, 
return receipts, and delivery confirmation.
    Unauthorized use of agency postage means the use of penalty or 
commercial mail stamps, meter impressions, or other postage indicia for 
personal or unofficial use.
    Worksharing means ways of processing outgoing mail that qualify for 
reduced postage rates; examples include presorting, bar coding, 
consolidating, and commingling.


Sec.  102-192.40  Where can we obtain more information about the 
classes of mail?

    You can learn more about mail classes in the Domestic Mail Manual 
(DMM). The DMM is available online at http://pe.usps.gov/default.asp or 
you can order a copy from the Superintendent of Documents, U.S. 
Government Printing Office, P.O. Box 371954, Pittsburgh, PA 15250-7954.


Sec.  102-192.45  How can we request a deviation from these 
requirements, and who can approve it?

    See Sec. Sec.  102-2.60 through 102-2.110 of this chapter to 
request a deviation from the requirements of this part. The authority 
rests with the Administrator of General Services and those to whom the 
Administrator has delegated such authority.

Subpart B--Financial Requirements for All Agencies


Sec.  102-192.50  What payment processes are we required to use?

    All payments to the United States Postal Service or authorized 
service providers must be made using commercial payment processes.
    (a) Agencies may no longer use the Intergovernmental Payment and 
Collection Payment (IPAC) process associated with the Official Mail 
Accounting System (OMAS), except where GSA has approved a temporary 
deviation for a specific agency, office, or component.
    (b) Any deviation related to the requirements of this section that 
has not reached its expiration date on the effective date of this rule 
will continue in effect until it expires.
    (c) Any new deviation request, or any request to extend an existing 
deviation, must include a plan for the agency to implement an 
accountable system for postage, as discussed in Sec.  102-192.65.
    (d) GSA provides detailed guidance on commercial payment processes 
and accountability on its web site, www.gsa.gov/mailpolicy.


Sec.  102-192.55  Why must we use these commercial payment processes?

    Federal agencies are required to use commercial payment processes 
because commercial payment requires obligation of the money before the 
postage is used (by contrast, use of the OMAS system allows the postage 
use and the obligation of funds to occur almost entirely independently 
of each other). Requiring the program level manager who generates the 
mail to obligate the money before the postage is used makes it much 
more likely that the same program level manager will be accountable for 
the money, thereby encouraging good judgment in using postage.


Sec.  102-192.60  How do we implement these commercial payment 
processes?

    Guidance on implementing a compliant payment process is in the GSA 
Policy Advisory, Guidelines for Federal Agencies On Converting to 
Commercial Payment Systems for Postage, which can be found at 
www.gsa.gov/mailpolicy.


Sec.  102-192.65  What features must our finance systems have to keep 
track of mail costs?

    All agencies must have an accountable system for making postage 
payments; that is, a system that allocates postage expenses at the 
program level within the agency and then makes program level managers 
accountable for obligating and tracking those expenses. The agency will 
have to determine the appropriate program level for this requirement, 
because the level at which it is cost-beneficial differs widely. The 
agency's finance system(s) should track all mail costs separately to 
the program level or below, and should--
    (a) Show allocations and expenses for postage and all other mail 
costs (e.g., payments to service providers, mail center personnel 
costs, mail center overhead, etc.) separate from all other 
administrative expenses;
    (b) Allow mail centers to establish systems to charge their 
customers for mail costs; and
    (c) Identify and charge mail costs that are part of printing 
contracts to the program level.

    Note to Sec.  102-192.65: To better accomplish these goals 
listed in this section, you should maintain separate accounts with 
the USPS and all other service providers for mail, as defined by 
this Part. Shipment of non-mail items should be arranged and paid 
for through other accounts. This will make it possible for your 
annual mail management report to reflect only amounts paid for mail, 
as defined in Sec.  102-192.35.

Subpart C--Security Requirements for All Agencies


Sec.  102-192.70  What security policies and plans must we have?

    (a) You must have a written mail security policy that applies 
throughout the agency.
    (b) You also must have a written mail security plan for each 
facility that processes mail, regardless of the facility's mail volume.
    (c) If a contract that is in place on August 25, 2008 does not 
fully meet the requirements of this section, the contract must be 
modified to meet the requirement for a security plan within one year of 
August 25, 2008, unless the contract will expire prior to that date.
    (d) The scope and level of detail of each facility mail security 
plan should be commensurate with the size and responsibilities of each 
facility. For small facilities, you may provide a general, standardized 
plan that is used in many similar locations. For larger locations, you 
must develop a plan that

[[Page 49959]]

is specifically tailored to the threats and risks at your location. 
Agencies are free to determine for themselves which facilities are 
``smaller'' and which are ``larger'' for the purposes of this section, 
so long as the basic requirement for a security plan is met at every 
facility.
    (e) All mail facility managers should report annually the status of 
their facility mail security plans to agency headquarters. At a 
minimum, this report should assure that the facility mail security plan 
complies with the requirements of this part, including annual review by 
a subject matter expert and regular rehearsal of responses to various 
emergency situations by facility personnel.
    (f) An outside security professional who has expertise in mail 
center security should review the agency's mail security plan annually. 
Review of facility mail security plans can be accomplished by outside 
subject matter experts such as agency security personnel. If these 
experts are not available within your agency, seek assistance from the 
Postal Inspection Service or other Federal authorities.


Sec.  102-192.75  Why must we have written security policies and plans?

    All Federal mail programs must identify, prioritize, and coordinate 
the protection of all mail processing facilities in order to prevent, 
deter, and mitigate the effects of deliberate efforts to destroy, 
incapacitate, or exploit the mail center or the national mail 
infrastructure. Homeland Security Presidential Directive HSPD-7 
requires all agencies to protect key resources from terrorist attacks, 
and this is spelled out in the Postal and Shipping Sector Plan, which 
is part of the National Infrastructure Protection Plan (NIPP) 
prescribed by HSPD-7. All Federal mail centers are key resources under 
that plan. Details on the Postal and Shipping Sector Plan are not 
publicly available. Federal employees needing access to the plan should 
contact the Department of Homeland Security (DHS) at <a href="/cdn-cgi/l/email-protection#d7999e878797b3bfa4f9b0b8a1"><span class="__cf_email__" data-cfemail="135d5a434353777b603d747c65">[email protected]</span></a>.


Sec.  102-192.80  How do we develop written security policies and 
plans?

    Agency mail managers must coordinate with their agency security 
service and/or the Federal Protective Service to develop agency mail 
security policies and plans. The Federal Protective Service has, 
working with the Interagency Security Committee which it chairs, 
developed standards for building construction and management, including 
standards for mail centers. At a minimum, the agency mail security plan 
must address the following topics--
    (a) Risk assessment;
    (b) Plan to protect staff and all other occupants of agency 
facilities from hazards that might be delivered in the mail;
    (c) Operating procedures;
    (d) Plan to provide a visible mail screening operation;
    (e) Training mail center personnel;
    (f) Testing and rehearsing responses to various emergency 
situations by agency personnel;
    (g) Managing threats;
    (h) Communications plan;
    (i) Occupant Emergency Plan (OEP);
    (j) Continuity of Operations Plan (COOP); and
    (k) Annual reviews.

    Note to Sec.  102-192.80: The agency mail manager and facility 
manager(s) need not prepare all of these plans themselves. They 
should participate actively in the development and implementation of 
each of these elements, but other parts of the agency or outside 
security professionals should take the lead in their respective 
areas of expertise.

Subpart D--Reporting Requirements


Sec.  102-192.85  Who must report to GSA annually?

    Large agencies (all agencies that spend in excess of $1 million 
each fiscal year in total payments to mail service providers) must 
provide a Mail Management Report to GSA by January 15th of each year. 
If your agency is a cabinet-level or independent agency, the agency 
mail manager must compile all offices (or components) and submit one 
report for the department or agency as a whole (e.g., the Department of 
Defense or the Department of Health and Human Services).


Sec.  102-192.90  What must we include in our annual mail management 
report to GSA?

    Your annual report must--
    (a) Identify your agency mail manager; in addition you must 
promptly report the name of the agency mail manager whenever there is a 
change of the person serving in this role.
    (b) State the total amounts paid to each service provider during 
the previous fiscal year:
    (1) These amounts should include only amounts paid for mail; not 
amounts paid to any service provider to ship parts and supplies from a 
materiel distribution center (see the definition of mail in Sec.  102-
192.30).
    (2) These amounts should include all postage costs associated with 
mailing printed materials, regardless of whether the printing is 
accomplished by the agency or a contractor, and regardless of how the 
postage expense is paid (e.g., GSA's Federal Acquisition Service (FAS) 
produces a publication called ``Marketips,'' which provides information 
about supplies and services available through GSA sources. GSA should 
include the postage that it uses to mail Marketips in the amounts that 
it reports, even though a printing company actually prints and mails 
the publication);
    (c) Report actual results for the performance measures in use at 
the agency and facility levels;
    (d) Describe your agency's accomplishments and plans to improve the 
economy and efficiency of mail operations in the current and future 
years;
    (e) Identify how many Federal employees and contractors work in 
your agency's mail operations nationwide, and the number that have 
achieved industry certifications (e.g. Certified Mail and Distributions 
Systems Manager, Executive Mail Center Manager, Mailpiece Quality 
Control Specialist, Certified Mail Manager);
    (f) Describe your agency's approach to ensuring that program level 
officials are accountable for postage; and
    (g) Verify that a competent expert has reviewed your agency 
security policies and the mail security plan for each facility within 
the past year, or explain what steps your agency has taken in this 
regard.

    Note to Sec.  102-192.90: GSA is launching a long-term 
initiative to improve the usefulness of data collected through the 
annual mail management reports. The reports for each succeeding 
fiscal year will require an incrementally broader set of data, 
working towards measures that will give agency management a much 
clearer picture of the efficiency and effectiveness of their mail 
programs. The additional data will eventually require agencies to 
track cost per piece for all outgoing Federal mail.

Sec.  102-192.95  Why does GSA require annual mail management reports?

    GSA requires annual agency mail management reports to--
    (a) Ensure that Federal agencies have the policies, procedures, and 
data to manage their mail operations efficiently and effectively;
    (b) Ensure that appropriate security measures are in place; and
    (c) Allow GSA to fulfill its responsibilities under the Federal 
Records Act, especially with regards to sharing best practices, 
training, standards, and guidelines.


Sec.  102-192.100  How do we submit our annual mail management report 
to GSA?

    If your agency is a large agency, as defined in Sec.  102-192.35, 
you must

[[Page 49960]]

submit annual reports using the GSA web-based Electronic Performance 
Support Tool (EPST). Agency mail managers and other authorized users 
will receive training from GSA on how to use the EPST.


Sec.  102-192.105  When must we submit our annual mail management 
report to GSA?

    Beginning with the report covering Fiscal Year 2009, your annual 
report will be due on January 15\th\ of each year for the previous 
fiscal year.

Subpart E--Performance Measurement Requirements


Sec.  102-192.110  At what level(s) in our agency must we have 
performance measures?

    You must have performance measures for mail operations at the 
agency level and in all facilities and for all program levels that 
spend more than $1 million per year on postage. GSA provides a list of 
suggested performance measures, as part of the format for the annual 
report. You may also find these measures on GSA's web site, at 
www.gsa.gov/mailpolicy.


Sec.  102-192.115  Why must we use performance measures?

    Performance measures gauge the success of your mail management 
plans and processes by comparing performance over time and among 
organizations. Performance measures--
    (a) Help define goals and objectives;
    (b) Enhance resource allocation; and
    (c) Provide accountability.

Subpart F--Agency Mail Manager Requirements


Sec.  102-192.120  Must we have an agency mail manager?

    Yes, every Federal agency as defined in Sec.  102-192.35 must have 
an agency mail manager. Agencies that are not ``large agencies'' as 
defined in Sec.  102-192.35 may not need a full-time person in this 
position.

    Note to Sec.  102-192.120: GSA will post the names and official 
contact information for all large agency mail managers on its web 
site located at www.gsa.gov/mailpolicy.

Sec.  102-192.125  What is the appropriate managerial level for an 
agency mail manager?

    The agency mail manager should be at a managerial level that 
enables him or her to speak for the agency and fulfill the requirements 
of Subparts B, C, D, E, and F of this part. GSA recommends professional 
mail certification for agency mail managers.


Sec.  102-192.130  What are your general responsibilities as an agency 
mail manager?

    In addition to carrying out the responsibilities in Subparts B, C, 
D, and E of this part, an agency mail manager should--
    (a) Establish written policies and procedures to provide timely and 
cost effective dispatch and delivery of mail;
    (b) Ensure agency-wide awareness and compliance with standards and 
operational procedures established by all service providers used by the 
agency;
    (c) Set policies for expedited mail, mass mailings, mailing lists, 
and couriers;
    (d) Seek opportunities to implement cost-effective improvements and 
to enhance performance of the agency's mission;
    (e) Develop and direct agency programs and plans for proper and 
cost-effective use of transportation, equipment, and supplies used for 
mail;
    (f) Ensure that facility and program level mail personnel receive 
appropriate certifications and training in order to successfully 
perform their assigned duties;
    (g) Promote professional certification for mail managers and mail 
center employees;
    (h) Ensure that expedited mail and couriers are used only when 
authorized by the Private Express Statutes (39 U.S.C. 601-606) and when 
necessary and cost-effective;
    (i) Establish written policies and procedures to minimize incoming 
and outgoing personal mail;
    (j) Provide guidance to agency correspondence managers on 
correspondence management decisions such as development and design of 
mailing materials including Business Reply Mail, letterhead, and mail 
piece design; and
    (k) Represent the agency in its relations with mail service 
providers (usually as a Contracting Officer's Technical 
Representative), other agency mail managers, and the GSA Office of 
Governmentwide Policy.

Subpart G--Mail Center Manager Requirements


Sec.  102-192.135  Must we have a mail center manager at our facility?

    Yes, every facility that has more than two full time people 
dedicated to processing mail must have a mail center manager.


Sec.  102-192.140  What are your general responsibilities as a Federal 
mail center manager?

    A Federal mail center manager should--
    (a) Implement policies and procedures developed by the agency mail 
manager, including cost control procedures;
    (b) Improve, streamline, and reduce the cost of mail practices and 
procedures by continually reviewing work processes throughout the 
facility and seeking opportunities for cost-effective change;
    (c) Work closely with all facility personnel, especially printing 
specialists and the program level users who develop large mailings, to 
minimize postage and associated printing expenses through improved mail 
piece design, electronic transmission of data in lieu of mail, reducing 
the number of handwritten addresses on outgoing mail, and other 
appropriate measures;
    (d) Ensure that all addresses on mailing lists have been validated 
using USPS-approved tools such as ancillary endorsements, CASS-
certified software, Move Update, and NCOAlink[reg] (more information 
can be found on the United States Postal Service website at 
www.usps.com);
    (e) Keep current on new technologies that could be applied to 
reduce agency mailing costs;
    (f) Collaborate and maintain professional relationships with the 
USPS and all other service providers;
    (g) Establish performance measures and goals for mail center 
operations, such as a maximum time for processing and delivery of 
incoming mail;
    (h) Ensure that expedited mail and couriers are used only when 
authorized by the Private Express Statutes (39 U.S.C. 601-606) and when 
necessary and cost-effective;
    (i) Manage all incoming and outgoing mail processing activities at 
the facility, including all regularly scheduled, small package, and 
expedited service providers, couriers, equipment and personnel;
    (j) Be attentive to unauthorized use, loss, or theft of postage, 
including any unauthorized use of penalty or commercial mail stamps, 
meter impressions or other postage indicia, and immediately report such 
incidents to the agency Inspector General, internal security office, 
the Postal Inspection Service, or other appropriate authority;
    (k) Track incoming packages and accountable mail;
    (l) Provide training to mail center employees at all levels on 
cost-effective mailing practices for incoming, outgoing, and internal 
mail, as well as mail security;
    (m) Provide opportunities for training leading to professional 
certification for mail center personnel;

[[Page 49961]]

    (n) Ensure that outgoing mail meets all the standards established 
by your service provider(s) for weight, size, hazardous materials 
content, etc.;
    (o) Ensure that your facility has a written security plan, and 
implement that plan;
    (p) Establish, publish, and maintain consistency in the facility's 
mail delivery and pickup times, based on need for service as 
established through study of mail volumes and service requirements;
    (q) Collaborate with agency finance officials to establish 
procedures for timely processing of funds owed to service providers; 
and
    (r) Report all information necessary for your agency's annual mail 
management report.

Subpart H--Program Level Mail Responsibilities


Sec.  102-192.145  Which program levels should have a mail manager?

    Every program level within a Federal agency that generates a 
significant quantity of outgoing mail should have its own mail manager. 
Each agency must decide which programs will have a full-time or part-
time mail manager. In making this determination, the agency should 
consider the total volume of outgoing mail that is put into the mail 
stream by the program itself or by printers, presort contractors, or 
others on the program's behalf.


Sec.  102-192.150  What are your general responsibilities as a program 
level mail manager?

    Your responsibilities at the program level include--
    (a) Working closely with the agency mail manager and mail center 
managers who handle significant quantities of mail or print functions 
for your program, as well as mail technical experts;
    (b) Ensuring that your program complies with all applicable mail 
policies and procedures, including this part;
    (c) Coordinating with your program personnel to minimize postage 
and associated printing expenses through improved mail piece design, 
electronic transmission of data in lieu of mail, and other appropriate 
measures;
    (d) Ensuring that all addresses on mailing lists have been 
validated using USPS-approved tools such as ancillary endorsements, 
CASS-certified software, Move Update, and NCOAlink[reg] (more 
information can be found on the United States Postal Service website at 
www.usps.com);
    (e) Keeping current on new technologies and practices that could 
reduce your mailing costs or make your use of mail more effective;
    (f) Coordinating all of your program's large mailings and 
associated print jobs to ensure that the most efficient and effective 
procedures are used;
    (g) Providing mail training opportunities to your program level 
personnel;
    (h) Collaborating with agency finance officials to establish 
procedures for timely processing of funds owed to service providers; 
and
    (i) Reporting total amounts paid to each service provider during 
the previous fiscal year to the agency mail manager (See Sec.  102-
192.90(b)(1) for more information).

Subpart I--Other Agency Responsibilities


Sec.  102-192.155  What should our agency-wide mail management policy 
statement cover?

    You should have a written, agency-wide mail management policy 
statement that, at a minimum, addresses--
    (a) Mail center security, as discussed in Sec. Sec.  102-192.70, 
102-192.75 and 102-192.80;
    (b) Your expectations regarding program level accountability, 
postage expenditure data, and commercial payment processes;
    (c) Your approach to performance measurement and performance 
management for mail;
    (d) Centralized mail processing, worksharing, consolidation, and 
commingling to obtain postage savings;
    (e) Tracking incoming packages and accountable mail;
    (f) Maintaining centralized control of outgoing mail, especially 
outgoing express packages and letters;
    (g) Tracking and managing mail costs within printing contracts;
    (h) Training and professional certification for mail center 
managers and employees;
    (i) Addressing, including machine readability, formatting, use of 
correct street addresses, and minimizing use of hand-written addresses;
    (j) Ensuring that a USPS mail piece design analyst is consulted 
when creating a new mail piece;
    (k) Reviewing large mailings by mail managers before they are sent 
to printing or a print contractor;
    (l) Acceptance and processing of incoming and outgoing personal 
mail;
    (m) Limiting unsolicited mail and mail addressed to unknown persons 
and former employees; and
    (n) Reporting all activities to include all postage costs 
associated with mailing, printing, and materials, to the agency mail 
manager.

    Note (1) to Sec.  102-92.155 (l) and (m): Every agency should 
establish specific policies for incoming and outgoing personal mail. 
In general, personal mail should be discouraged or prohibited. 
However, an agency may establish a policy to accept and process 
personal mail for personnel living on a Federal facility, personnel 
stationed outside the United States, or personnel in other 
situations who would otherwise suffer hardship.


    Note (2) to Sec.  102-92.155 (l) and (m): Mailing costs 
associated with filing travel vouchers, and the payment of 
Government sponsored travel card billings, are considered to be 
``incidental expenses'' covered by the traveler's ``per diem 
allowance,'' as provided for in the Federal Travel Regulation (41 
CFR 300-3.1). Such mailing costs must, therefore, be paid out of the 
employee's per diem allowance.


    Note (3) to Sec.  102-92.155 (l) and (m): Every reasonable 
attempt must be made to deliver first class mail, priority mail, and 
express mail (regardless of carrier), or to return it to the sender 
if the addressee cannot be identified. On the other hand, agencies 
may establish written policies that permit discarding of unwanted 
periodicals, bulk mail, and bound printed matter under specified 
circumstances.

Sec.  102-192.160  What less costly alternatives to expedited mail and 
couriers should your agency-wide mail management policy address?

    Your policy statement should address the following alternatives to 
expedited mail and couriers:
    (a) Electronic transmission via e-mail.
    (b) Facsimile transmission.
    (c) Internet.


Sec.  102-192.165  What authorities must I follow when contracting out 
all or part of the mail function?

    Any contract for a mail function must require compliance with--
    (a) This part (41 CFR part 102-192);
    (b) The Private Express Statutes (39 U.S.C. 601-606);
    (c) All agency policies, procedures, and plans, including the 
agency-wide mail security plan and, if applicable, facility mail 
security plans; and
    (d) All applicable acquisition statutes and regulations.

Subpart J--GSA's Responsibilities and Services


Sec.  102-192.170  What are GSA's responsibilities in mail management?

    44 U.S.C Sec.  2904(b) directs the Administrator of General 
Services to provide guidance and assistance to Federal agencies to 
ensure economical and efficient records management. 44 U.S.C. Sec.  
2901(2) and (4) (C) define the processing of mail by Federal agencies 
as part of records management. In

[[Page 49962]]

carrying out its responsibilities under the Act, GSA is required to--
    (a) Promulgate standards, procedures, and guidelines;
    (b) Conduct research to improve practices and programs;
    (c) Collect and disseminate information on training programs, 
technological developments, etc.;
    (d) Establish an interagency committee (i.e., the Interagency Mail 
Policy Council) to provide an exchange of information among Federal 
agencies;
    (e) Conduct studies, inspections, or surveys;
    (f) Promote economy and efficiency in the selection and utilization 
of space, staff, equipment, and supplies; and
    (g) In the event of an emergency, communicate with agencies.


Sec.  102-192.175  What types of support does GSA offer to Federal 
agency mail management programs?

    GSA supports Federal agency mail management programs by--
    (a) Assisting in the development of agency policy and guidance in 
mail management and mail operations;
    (b) Identifying better business practices and sharing them with 
Federal agencies;
    (c) Developing and providing access to a Governmentwide management 
information system for mail;
    (d) Helping agencies develop performance measures and management 
information systems for mail;
    (e) Maintaining a current list of agency mail managers;
    (f) Establishing, developing and maintaining interagency mail 
committees;
    (g) Maintaining liaison with the USPS and other service providers 
at the national level;
    (h) Maintaining a web site for mail communications policy; and
    (i) Serving as a point of contact for mail issues.

    Note to Sec.  102-192.180: You may contact GSA at: General 
Services Administration, Office of Governmentwide Policy, Mail 
Management Policy Division (MTT), 1800 F Street, NW., STE 1221, 
Washington, DC 20405; or e-mail: <a href="/cdn-cgi/l/email-protection#305655545542515c1e5d51595c705743511e575f46"><span class="__cf_email__" data-cfemail="81e7e4e5e4f3e0edafece0e8edc1e6f2e0afe6eef7">[email protected]</span></a>.

[FR Doc. E8-19506 Filed 8-22-08; 8:45 am]
BILLING CODE 6820-14-S


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