Need for Comprehensive Postal Reform
Gao ID: GAO-04-455R February 6, 2004This letter responds to a request by the Chairman, Senate Committee on Governmental Affairs, for GAO's views on the need for postal reform and is based upon prior testimonies related to this issue. Since the Postal Service's transformation efforts and financial outlook had been placed on GAO's High-Risk List in April 2001, the Comptroller General has testified on several occasions about the governance, financial, operational, and human capital challenges that threaten the Service's ability to carry out its mission. If not effectively addressed in a timely manner, these challenges serve to threaten the Service's ability to remain self-supporting while providing affordable, high-quality, and universal postal services to all Americans.
The following key trends serve to reinforce GAO's view that enactment of postal reform legislation is needed: (1) declining mail volume; (2) changes in the mail mix; (2) increased competition from private delivery companies; (4) subpar revenue growth; (5) declining capital investment; (6) renewed difficulties in substantially improving postal productivity; (7) significant financial liabilities and obligations; (8) uncertain funding for emergency preparedness; and (9) challenges to achieve sufficient cost cutting. GAO does not believe that incremental steps toward postal transformation can resolve the fundamental and systemic issues associated with the Service's current business model. To avoid the risk of a significant taxpayer bailout or dramatic postal rate increases, Congress should enact comprehensive postal reform legislation that includes the Service's overall statutory framework, resolution of issues regarding the Service's pension and retiree health benefits obligations, and whether there is a continued need for an escrow account. The key areas of the Service's statutory framework that need to be addressed include: (1) clarifying the Service's mission and role; (2) enhancing governance, transparency, and accountability; (3) improving flexibilities and oversight; and (4) making needed human capital reforms.
GAO-04-455R, Need for Comprehensive Postal Reform
This is the accessible text file for GAO report number GAO-04-455R
entitled 'Need for Comprehensive Postal Reform' which was released on
February 25, 2004.
This text file was formatted by the U.S. General Accounting Office
(GAO) to be accessible to users with visual impairments, as part of a
longer term project to improve GAO products' accessibility. Every
attempt has been made to maintain the structural and data integrity of
the original printed product. Accessibility features, such as text
descriptions of tables, consecutively numbered footnotes placed at the
end of the file, and the text of agency comment letters, are provided
but may not exactly duplicate the presentation or format of the printed
version. The portable document format (PDF) file is an exact electronic
replica of the printed version. We welcome your feedback. Please E-mail
your comments regarding the contents or accessibility features of this
document to Webmaster@gao.gov.
This is a work of the U.S. government and is not subject to copyright
protection in the United States. It may be reproduced and distributed
in its entirety without further permission from GAO. Because this work
may contain copyrighted images or other material, permission from the
copyright holder may be necessary if you wish to reproduce this
material separately.
February 6, 2004:
The Honorable Susan M. Collins:
Chairman, Committee on Governmental Affairs:
United States Senate:
Subject: Need for Comprehensive Postal Reform:
Dear Chairman Collins:
This letter responds to your request for our views on the need for
postal reform and is based upon our prior testimonies related to this
issue.[Footnote 1] In summary, we believe that comprehensive postal
reform is urgently needed. The ability of the Service to remain
financially viable is at risk because its current business model--which
relies on mail volume growth to cover the costs of its expanding
delivery network--is not well aligned with 21st century realities.
Since we placed the Postal Service's transformation efforts and
financial outlook on our High-Risk List in April 2001, I have testified
on several occasions about the governance, financial, operational, and
human capital challenges that threaten the Service's ability to carry
out its mission. If not effectively addressed in a timely manner, these
challenges serve to threaten the Service's ability to remain self-
supporting while providing affordable, high-quality, and universal
postal services to all Americans.
The following key trends serve to reinforce our view that enactment of
postal reform legislation is needed:
Declining mail volume: Total mail volume declined in fiscal year 2003
for the third year in a row--a historical first for the Service, which
has depended on rising mail volume to help cover rising costs and
mitigate rate increases. First-Class Mail volume declined by a record
3.2 percent in fiscal year 2003 and is projected to decline annually
for the foreseeable future. Some of this decline is due to technology
advances (e.g. E-mail, digital phones, faxes, and electronic bill
payments) that are likely to increase in the future. This trend is
particularly significant because First-Class Mail covers more than two-
thirds of the Service's institutional costs.
Changes in the mail mix: The Service's mail mix is changing with
declining volume for high-margin products, such as First-Class Mail,
and increasing volume of lower-margin products, such as some types of
Standard Mail. These changes reduce revenues available to cover the
Service's institutional costs.
Increased competition from private delivery companies: Private delivery
companies dominate the market for parcels greater than 2 pounds and
appear to be making inroads into the market for small parcels. Priority
Mail volume fell 13.9 percent in fiscal year 2003 and over the last 3
years has declined nearly 30 percent. Once a highly profitable growth
product for the Service, Priority Mail volume is declining as the
highly competitive parcel market turns to lower-priced ground shipment
alternatives. Express Mail volume is declining for the same reason. In
addition, United Parcel Service (UPS) and FedEx have established
national retail networks through UPS's acquisition of MailBoxes Etc.,
now called UPS Stores, and FedEx's recent acquisition of Kinko's.
Subpar revenue growth: The Service's revenues are budgeted for zero
growth in fiscal year 2004, which would be the first year since postal
reorganization that postal revenues have failed to increase. However,
as the Service has recognized, even the zero-growth target will be
challenging. In the absence of revenue growth generated by increasing
volume, the Service must rely more heavily on rate increases to cover
rising costs and help finance capital investment needs.
Declining capital investment: The Service's capital cash outlays
declined from $3.3 billion in fiscal year 2000 to $1.3 billion in
fiscal year 2003, which was the lowest level since fiscal year 1986,
and far below the level of the late 1990s, when the Service spent more
than $3 billion annually. Capital cash outlays are budgeted to increase
to $2.4 billion in fiscal year 2004, but this level may not be
sufficient to enable the Service to fully fund its capital investment
needs. In the longer term, it is unclear what the Service's needs will
be to maintain and modernize its physical infrastructure, as well as
how these needs will be funded.
Renewed difficulties in substantially improving postal productivity:
The Service's productivity increased by 1.8 percent in fiscal year 2003
but is estimated to increase by only 0.4 percent in fiscal year 2004.
In the absence of mail volume growth, substantial productivity
increases will be required to help cover cost increases generated by
rising wages and benefit costs and to mitigate rate increases.
Significant financial liabilities and obligations: Despite the passage
of legislation that reduced the Service's pension obligations, the
Service has about $88 billion to $98 billion in liabilities and
obligations that include $47 billion to $57 billion in unfunded retiree
health benefits. Under the current pay-as-you-go system, the Service
may have difficulty financing its retiree health benefits obligation in
the future if mail volume trends continue to impact revenues while
costs in this area continue to rise. The Service has recently proposed
two options to Congress, so the Service could prefund this obligation
to the extent that it is financially able.
Uncertain funding for emergency preparedness: The Service requested
$350 million for emergency preparedness for fiscal year 2004, which it
did not receive, and $779 million for fiscal year 2005. If the money is
not appropriated, funding for this purpose may have to be built into
postal rates.
Challenges to achieve sufficient cost cutting: The Service achieved
additional cost cutting to compensate for below-budget revenues in
fiscal year 2003. Despite this progress, in the longer term it is
unclear whether continued cost-cutting efforts can offset declines in
First-Class Mail volume without impacting the quality of service.
Although we have discussed numerous actions that the Postal Service can
take within its existing authority to improve its overall efficiency
and effectiveness, we do not believe that incremental steps toward
postal transformation can resolve the fundamental and systemic issues
associated with the Service's current business model. To avoid the risk
of a significant taxpayer bailout or dramatic postal rate increases, we
believe that Congress should enact comprehensive postal reform
legislation that includes the Service's overall statutory framework,
resolution of issues regarding the Service's pension and retiree health
benefits obligations, and whether there is a continued need for an
escrow account.
The key areas of the Service's statutory framework that need to be
addressed include:
clarifying the Service's mission and role by defining the scope of
universal service and the postal monopoly and by clarifying the role of
the Service in regard to competition and its regulatory functions;
enhancing governance, transparency, and accountability by delineating
public policy, operational, and regulatory responsibilities; by
ensuring managerial accountability through a strong, well-qualified
corporate-style board that holds its officers responsible and
accountable for achieving real results; and by defining appropriate
reporting mechanisms to enhance the Service's transparency and
accountability for financial and performance results;
improving flexibilities and oversight by balancing increased
flexibility for the Service--through streamlining the rate-setting
process and allowing a certain amount of retained earnings--with
appropriate oversight by an independent regulatory body to protect
postal customers against undue discrimination, to restrict cross-
subsidies, and to ensure due process. In addition, the Service needs
additional flexibility to rationalize its infrastructure and reshape
its workforce. Any such additional flexibility should be accompanied by
appropriate safeguards to prevent abuse along with enhanced
transparency and accountability mechanisms; and:
making needed human capital reforms such as (1) determining the
Service's responsibility for pension costs related to military service,
funding retiree health benefits, and determining what action to take on
the escrow account established in recent pension legislation; (2)
deciding whether postal workers' compensation benefits should be on par
with those in the private sector; and (3) clarifying pay comparability
standards.
We believe that Congress now has a rare opportunity to assure the
Service's long-term financial viability through comprehensive postal
reform legislation that addresses the Service's key structural and
systemic deficiencies, its unfunded obligations, including its retiree
health benefits obligation, and the escrow requirement. Key legislative
and administrative actions in connection with transforming the Postal
Service can also serve as positive examples for other key government
transformation efforts.
As agreed with your office, unless you publicly announce the contents
of this report earlier, we plan no further distribution until 30 days
from the date of this letter. At that time, we will provide copies to
interested congressional committees. We will also make copies available
to others on request. In addition, the report will be available at no
charge on the GAO Web site at http://www.gao.gov.
For additional information about this report, please contact Mark L.
Goldstein, Director, Physical Infrastructure Issues at (202) 512-2834
or at goldsteinm@gao.gov. Please contact me if I can be of any further
assistance to help make comprehensive postal reform a reality.
Sincerely yours,
Signed by:
David M. Walker:
Comptroller General of the United States:
(543095):
FOOTNOTES
[1] See U.S. General Accounting Office, U.S. Postal Service: Bold
Action Needed to Continue Progress on Postal Transformation, GAO-04-
108T (Washington, D.C.: Nov. 5, 2003); and U.S. Postal Service: Key
Elements of Comprehensive Postal Reform, GAO-04-397T (Washington, D.C.:
Jan.28, 2004).
