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A History of Mail Classification and Its Underlying Policies and Purposes

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A History of Mail Classification and Its Underlying Policies and Purposes A HISTORY OF MAIL CLASSIFICATION AND ITS UNDERLYING POLICIES AND PURPOSES Richard B. Kielbowicz AssociateProfessor School of Commuoications, Ds-40 University of Washington Seattle, WA 98195 (206) 543-2660 &pared For the Postal Rate Commission’s Mail ReclassificationProceeding, MC95-1. July 17. 1995 -- /- CONTENTS 1. Introduction . ._. ._.__. _. _, __. _. 1 2. Rate Classesin Colonial America and the Early Republic (1690-1840) ............................................... 5 The Colonial Mail ................................................................... 5 The First Postal Services .................................................... 5 Newspapers’ Mail Status .................................................... 7 Postal Policy Under the Articles of Confederation .............................. 8 Postal Policy and Practice in the Early Republic ................................ 9 Letters and Packets .......................................................... 10 Policy Toward Newspapers ................................................ 11 Recognizing Magazines .................................................... 12 Books in the Mail ........................................................... 17 3. Toward a Classitication Scheme(1840-1870) .................................. 19 Postal Reform Act of 1845 ........................................................ 19 Letters and the First Class, l&IO-l&?70 .............................. ............ 19 Periodicals and the Second Class ................................................ 21 Business Publications ....................................................... 22 Mammoth Literary Miscellanies .......................................... More Equitable Magazine Postage, 1845-1863 ......................... i46 Newspapers .................................................................. $ Free In-County Delivery ................................................... Transient Publications ...................................................... 30 Nonpericdical Printed Matter and the Third Class ............................ 31 IkKksG. ............................................................................................................................................;; The First Mail Classification Act, 1863 ........................................ 33 4. The 1879 Mail Classification Act (1860-1880) ................................. 34 Amplifying the 1863 Definition .................................................. 34 Administrative Rulings Address Advertising ................................... 37 The Classification Act in Congress .............................................. 42 5. Classifying Mail in An Age of Commerce (1880-1920)....................... 46 Policing the Second- and Third-Class Mail ..................................... 46 Elaboration of Administrative Rules ...................................... 47 Congress Reconsiders Second-Class Mail Policy ....................... 52 Exempting Nonprofit Publications in the Second Class ....................................................... 54 parcel Post .......................................................................... 56 6. Ascertaining Costs and Adjusting Classitications (1920-1955) ............. 66 First Class, ........................................................................... 67 Permit and Business Reply Mail .......................................... 67 Airmail ........................................................................ 69 Second Class ........................................................................ 70 Regular-Rate and In-County Second Class .............................. 70 Nonprofit Second Class .................................................... 7 1 Classroom Publications ..................................................... 72 Controlled-Circulation Publications ...................................... 73 Third Class .......................................................................... 74 Advent of Bulk Thud-Class ............................................... 75 The Patron Mail Experiment and Origins of the hmk Mail Controversy ........................................... 77 Nonprofit Bulk Rates ....................................................... 79 Fourtl) t3.a~~ ......................................................................... .82 Library Rate .................................................................. .82 BookRate ..................................................................... E Catalogues .................................................................... ~---. --- _ 7. Toward Postal Reorganization (1955-1970) .................................... 87 Assessing Value and Prescribing Policy ........................................ 87 Assessing the Value of Mail ............................................... 88 The Postal Policy Act of 1958 ............................................ 89 Classification on the Eve of Reorganization .................................... 91 First Class .................................................................... 91 Second Class ................................................................. 92 Third Class ................................................................... 93 Fourth Class .................................................................. 95 Mail Classification and Postal Reorganization ................................. 96 Mid-1960s Reports .......................................................... 97 The Rappel Commission ................................................... 99 Classification in the Congressional Deliberations ..................... 101 8. Summary and Conclusions ........................................................ 103 Mail Classes and Public Policies ............. __, .............................. 103 Elements of Classification Design ................... .......................... 105 .__. ___~___ -- ___ .- /- 1 1. INTRODUCTION 2 The postal system’s functions have popularly been cast in the most 3 sweeping and amorphous terms--for example, as “Bond of the Scattered Family,” 4 “Enlarger of the Common Life, * “Carrier of News and Knowledge.” and 5 “Instrument of Trade and Industry. “t Realizing such lofty goals, however, 6 required highly particular&tic judgments. The mail classification system, used to 7 assign hundreds of billions of mail pieces to one or another category, developed as 8 a major tool for translating the post office’s grand goals into workable day-today 9 operations. 10 Mail classification does more than translate imprecise goals into 11 tangible services. A classification plan also allows the post office to honor its 12 obligation as a common carrier providing nondiscrimiitory service to myriad 13 customers. A design for classification makes constitutionally defensible and 14 administratively workable distinctions among countless kinds of mail and mailers. 15 Classification. fmlly, provides a basis for ratemaking; the inextricable connection 16 between mail classes and rates has typically fueled the most heated postal 17 controversies. 18 Historically, the classification system has made distinctions among mail 19 and mailers for a number of reasons: / 20 1. Some classes were designed to channel postal resources to 21 further broad public go&--the dissemination of information and 22 the advancement of nonprofit organizations, to name just two. 23 ‘Excctpts from the imcriptioaco the forum Washington. DC.. city port offkc. 24 Massachusetts Avenue and Noti Capitol Street. now’ the site of the gmithsonipn Institution’s 25 National Postal Musam. U.S. Portal Service. Hisrory of rhs Unirrd Smes Post111Ser.&x. 1775- 26 1993 (Washington. DC.: U.S. Postal Service, 1993). 28. .-- 2. The changing needs of mailers, particularly businesses, lay behind some classification innovarions. This, in mm, often grew out of changes in business tactics and technologies (e.g.. the application of computers in targeting customers). 5 3. A variety of mail classes enabled the post offtce to give 6 mailers a choice of different levels ofservice, notably speed and 7 security of delivery. 8 4. Closely related to the precediig point, mail classes have 9 been designed, in part, with the physical chrncrcrisrics of mail 10 pieces--size, weight and shape--m mind. 11 5. Some boundaries between classes and subclasses reflected 12 differences in the nature of mailers, their motivations, and the 13 purposes behind the matter they mailed. 14 6. Mail classes were often calibrated to the post office’s 15 delivery costs. 16 7. Postal officials pressed Congress for classification changes 17 to improve the udministrorion of postal laws. 18 8. The existence of private-sector substinrtes or compefition 19 for mail services influenced some classification decisions. 20 Most mail classes are created from two or more of these factors. 21 The post office has not been alone in having to classify communication 22 messages. Nearly every attempt to tax printed matter has raised definitional 23 problems. When the British unposed stamp taxes in the 17OOs,officials grappled 24 with the meaning of “newspaper. “2 More recently, revenue-hungry states have 2s targeted publications, often taxing magazines (largely out of state) but not 26 newspapers (predominantly local). Apart from questions of equity, this ptesents 27 the practical problem of distinguishing between these two types of periodicals.3 28 Also, state law typically defuKs newspapers for the purposes of deciding which 29 2Su gcncrallyC. D. Collen. History
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