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美国邮政系统困局难解,拜登上台也无能为力

NICOLE GOODKIND
2020-12-14

美国邮政局是一个依照企业模式运作的半政府机构,但却履行着公共服务职能。

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名人们在推特上发布它,政客们宣传它,有人在Instagram上介绍它,有人甚至把它印在了T恤上,它就是2020年末极具鼓舞性的口号:拯救邮政局。

特朗普一直都毫不遮掩地表达其对美国邮政局(United States Postal Service,USPS)的不屑,并将其与他一直不看好的亚马逊创始人杰夫•贝佐斯相提并论。他将邮政局称之为“一个笑话”,并认为这个准独立机构应该将亚马逊的邮费调高三倍。

特朗普五月任命路易斯•德乔伊担任邮政局新部长。这位来自于北卡州的商业人士曾向共和党和特朗普总统捐赠了数百万美元。民主党称,德乔伊的任命完全是政治行为。他们担心,德乔伊将与特朗普政府一道,继续推进邮政局缓慢的私营化进程。

但随着围绕总统选举的最初混乱日渐消散,特朗普提起的选举舞弊诉讼被法院驳回,当选总统乔•拜登的过渡团队成为新闻焦点,公众对邮政局的关注已经消失无踪。

确实如此。拜登为阻止邮政局私有化并确保其有充足资金,而筹集了大笔竞选资金,而且,他不久就会掌权。

在许多美国人看来,这个问题已经解决了。任务完成了,对吧?

美国邮政工人联盟(American Postal Workers Union)主席马克•戴蒙德斯坦说:“我看了针对美国邮政局新闻报道发表的一些评论。这都是谣传。人们认为,特朗普和美国邮政局局长路易斯•德乔伊的关系非常密切,因此,特朗普下台时,路易斯•德乔伊也会随之下台。”

但戴蒙德斯坦说,“常识有误。”

实际上,拜登既未提名也未解雇美国邮政局局长——这要视美国邮政局理事会的态度而定,而理事会的大多数成员是共和党人。

这种困惑不难理解,因为美国邮政局的内部运作就是这样:令人困惑。

美国邮政局是一个依照企业模式运作的半政府机构,但却履行着公共服务职能。美国邮政局已被政治化,但应该是非政治化,而且邮政局在过去50年进行了多次大规模重组。美国邮政局局长一直由总统提名的内阁担任,1970年,尼克松为使邮政去政治化,签署了《邮政重组法》,之后,提名权不再属于白宫。

因此,在可预见的未来,德乔伊仍将执掌美国邮政局,他曾向国会表示,他希望将美国邮政局的部分业务私有化,并且已实施了一些改革,意在减缓邮件投递速度。

在总统选举之前,德乔伊实施了一些改革,取消了加班分拣邮件,导致邮件和包裹投递速度空前减缓。

美国邮政工人联盟(代表约20万邮政工人)掌握的数据显示,分拣员、邮递员和邮政司机近20%的工作均须通过加班来完成。美国邮政局并未计划雇佣更多的员工来弥补时间上的不足。迫于巨大的公众和政治压力,德乔伊表示,他将在大选前暂停减缓邮件投递速度,但这并非长久之计。

美国邮政工人联盟官员担心,如果美国邮政局在大选前未受到关注,德乔伊会再次实施改革,但这次他们会低调行事。

“邮政局必须有足够的员工并雇佣足够的工人为人民服务。如果没有足够的人手和工作时间来确保及时提供服务,我们将会陷入恶性循环。”戴蒙德斯坦说。

当然,不仅仅是邮件投递减缓。因新冠疫情爆发,商务邮件减少,再加上数千名邮政工人被隔离,导致本已不景气的美国邮政局的收入大幅减少。美国邮政局第四季度报告显示,尽管包裹数量有所增加,但全年亏损90亿美元。营业额从2019年的711亿美元增长到今年的731亿美元,但普通邮件和营销邮件的营业额从去年的408亿美元下降到今年的377亿美元。

收入无法弥补亏损还有另一个原因,美国政府对美国邮政局征收费用,例如预付退休员工今后的医疗和养老福利金,但其他企业却无此负担。

该法案在乔治•沃克•布什政府支持下于2006年通过,规定美国邮政局须预付退休员工未来几年的医疗福利金。公司一般会在成本上升时支付养老金,但不需要预留资金。其他联邦机构均无此负担,批评人士称该法案是“苛刻的”,声称设立该法案是为了促使美国邮政局走向私有化。官员们说,新冠疫情爆发之前,养老金费用估计占美国邮政局亏损的80%至90%。

尽管如此,德乔伊仍将亏损归咎于美国邮政局的商业模式,并声称今后要削减开支。他说:“十多年来,美国邮政局的收支一直存在系统性失衡。”

戴蒙德斯坦确实找到了一条今后无需削减开支或私有化的前进之路,但这也是一条缓慢的前进之路,需要邮政部门继续享有其目前享有的政治资本和声望。

国会可能会撤销2006年《邮政责任增强法案》中有关预付养老金的内容。

今年年初,国会通过了一项法案,这项法案只是表明两党合作的相对态度,但在共和党控制的参议院未获通过。随着本届国会会议结束,未通过的法案也将随之告终。但戴蒙德斯坦希望能在明年重新提出该法案,而且参议院届时会通过该项法案。

虽然拜登未能选出一位邮政局局长,但他确实可以任命九位州长在美国邮政局董事会任职,任期七年。董事会目前只有5名成员,这意味着拜登可马上提名4位新州长任职。其余五名成员的任期将在拜登任期内届满,可以为他提名的人员让位。董事会成员可以从中推选一名新的邮政局局长。

邮政局仍希望国会能在接下来制定刺激计划时考虑为美国邮政局划拨应急资金。邮政局要求提供250亿美元应急资金。

此前,德乔伊同意从美国财政部(U.S. Treasury)贷款100亿美元,用于代替救助。作为贷款的交换条件,美国邮政局同意交出其与亚马逊(Amazon)、联邦快递(FedEx)和联合包裹(UPS)等第三方托运商签订的10份利润最丰富合同的专有信息。美国邮政局与这些托运商合作提供“最后一英里”投递服务,有时会以略微优惠的价格投递,这种做法一直被特朗普总统嘲笑,特别是涉及亚马逊的业务。

获得该贷款的另一条件是,美国邮政局须向财政部提交月度和季度财务及交易量报告。财政部还试图利用贷款谈判来控制美国邮政局的人事决定权、第三方合同批准、包裹价格和工会谈判策略,但最终还是接受了专有信息。

珍妮特•耶伦执掌的财政部不太可能在今后的贷款中加上这些附加条件。

据皮尤研究中心(Pew)调查显示,美国邮政局是美国最受欢迎的政府机构,其支持率为91%。另一项民调显示,92%的美国选民表示,他们支持下一轮新冠病毒救助法案为美国邮政局提供直接财政援助。

美国邮政局是唯一一家邮件服务综合提供商,而且是邮递行业的低成本支柱,有助于压低私营邮递服务的费率。政策研究所(Institute for Policy Studies)最近的分析显示,如果没有美国邮政局,超过7000万美国民众将不得不为邮递服务支付高昂的附加费用。

戴蒙德斯坦说:“国会在去年三月本有机会处理这件事,但是他们却一直在踢皮球。我们当然对此表示严重关切。我们不希望公众对此视而不见,我们会继续尽我们所能大声公开表达我们的观点,这样他们就不会视而不见了。”(财富中文网)

翻译:郝秀

审校:汪皓

名人们在推特上发布它,政客们宣传它,有人在Instagram上介绍它,有人甚至把它印在了T恤上,它就是2020年末极具鼓舞性的口号:拯救邮政局。

特朗普一直都毫不遮掩地表达其对美国邮政局(United States Postal Service,USPS)的不屑,并将其与他一直不看好的亚马逊创始人杰夫•贝佐斯相提并论。他将邮政局称之为“一个笑话”,并认为这个准独立机构应该将亚马逊的邮费调高三倍。

特朗普五月任命路易斯•德乔伊担任邮政局新部长。这位来自于北卡州的商业人士曾向共和党和特朗普总统捐赠了数百万美元。民主党称,德乔伊的任命完全是政治行为。他们担心,德乔伊将与特朗普政府一道,继续推进邮政局缓慢的私营化进程。

但随着围绕总统选举的最初混乱日渐消散,特朗普提起的选举舞弊诉讼被法院驳回,当选总统乔•拜登的过渡团队成为新闻焦点,公众对邮政局的关注已经消失无踪。

确实如此。拜登为阻止邮政局私有化并确保其有充足资金,而筹集了大笔竞选资金,而且,他不久就会掌权。

在许多美国人看来,这个问题已经解决了。任务完成了,对吧?

美国邮政工人联盟(American Postal Workers Union)主席马克•戴蒙德斯坦说:“我看了针对美国邮政局新闻报道发表的一些评论。这都是谣传。人们认为,特朗普和美国邮政局局长路易斯•德乔伊的关系非常密切,因此,特朗普下台时,路易斯•德乔伊也会随之下台。”

但戴蒙德斯坦说,“常识有误。”

实际上,拜登既未提名也未解雇美国邮政局局长——这要视美国邮政局理事会的态度而定,而理事会的大多数成员是共和党人。

这种困惑不难理解,因为美国邮政局的内部运作就是这样:令人困惑。

美国邮政局是一个依照企业模式运作的半政府机构,但却履行着公共服务职能。美国邮政局已被政治化,但应该是非政治化,而且邮政局在过去50年进行了多次大规模重组。美国邮政局局长一直由总统提名的内阁担任,1970年,尼克松为使邮政去政治化,签署了《邮政重组法》,之后,提名权不再属于白宫。

因此,在可预见的未来,德乔伊仍将执掌美国邮政局,他曾向国会表示,他希望将美国邮政局的部分业务私有化,并且已实施了一些改革,意在减缓邮件投递速度。

在总统选举之前,德乔伊实施了一些改革,取消了加班分拣邮件,导致邮件和包裹投递速度空前减缓。

美国邮政工人联盟(代表约20万邮政工人)掌握的数据显示,分拣员、邮递员和邮政司机近20%的工作均须通过加班来完成。美国邮政局并未计划雇佣更多的员工来弥补时间上的不足。迫于巨大的公众和政治压力,德乔伊表示,他将在大选前暂停减缓邮件投递速度,但这并非长久之计。

美国邮政工人联盟官员担心,如果美国邮政局在大选前未受到关注,德乔伊会再次实施改革,但这次他们会低调行事。

“邮政局必须有足够的员工并雇佣足够的工人为人民服务。如果没有足够的人手和工作时间来确保及时提供服务,我们将会陷入恶性循环。”戴蒙德斯坦说。

当然,不仅仅是邮件投递减缓。因新冠疫情爆发,商务邮件减少,再加上数千名邮政工人被隔离,导致本已不景气的美国邮政局的收入大幅减少。美国邮政局第四季度报告显示,尽管包裹数量有所增加,但全年亏损90亿美元。营业额从2019年的711亿美元增长到今年的731亿美元,但普通邮件和营销邮件的营业额从去年的408亿美元下降到今年的377亿美元。

收入无法弥补亏损还有另一个原因,美国政府对美国邮政局征收费用,例如预付退休员工今后的医疗和养老福利金,但其他企业却无此负担。

该法案在乔治•沃克•布什政府支持下于2006年通过,规定美国邮政局须预付退休员工未来几年的医疗福利金。公司一般会在成本上升时支付养老金,但不需要预留资金。其他联邦机构均无此负担,批评人士称该法案是“苛刻的”,声称设立该法案是为了促使美国邮政局走向私有化。官员们说,新冠疫情爆发之前,养老金费用估计占美国邮政局亏损的80%至90%。

尽管如此,德乔伊仍将亏损归咎于美国邮政局的商业模式,并声称今后要削减开支。他说:“十多年来,美国邮政局的收支一直存在系统性失衡。”

戴蒙德斯坦确实找到了一条今后无需削减开支或私有化的前进之路,但这也是一条缓慢的前进之路,需要邮政部门继续享有其目前享有的政治资本和声望。

国会可能会撤销2006年《邮政责任增强法案》中有关预付养老金的内容。

今年年初,国会通过了一项法案,这项法案只是表明两党合作的相对态度,但在共和党控制的参议院未获通过。随着本届国会会议结束,未通过的法案也将随之告终。但戴蒙德斯坦希望能在明年重新提出该法案,而且参议院届时会通过该项法案。

虽然拜登未能选出一位邮政局局长,但他确实可以任命九位州长在美国邮政局董事会任职,任期七年。董事会目前只有5名成员,这意味着拜登可马上提名4位新州长任职。其余五名成员的任期将在拜登任期内届满,可以为他提名的人员让位。董事会成员可以从中推选一名新的邮政局局长。

邮政局仍希望国会能在接下来制定刺激计划时考虑为美国邮政局划拨应急资金。邮政局要求提供250亿美元应急资金。

此前,德乔伊同意从美国财政部(U.S. Treasury)贷款100亿美元,用于代替救助。作为贷款的交换条件,美国邮政局同意交出其与亚马逊(Amazon)、联邦快递(FedEx)和联合包裹(UPS)等第三方托运商签订的10份利润最丰富合同的专有信息。美国邮政局与这些托运商合作提供“最后一英里”投递服务,有时会以略微优惠的价格投递,这种做法一直被特朗普总统嘲笑,特别是涉及亚马逊的业务。

获得该贷款的另一条件是,美国邮政局须向财政部提交月度和季度财务及交易量报告。财政部还试图利用贷款谈判来控制美国邮政局的人事决定权、第三方合同批准、包裹价格和工会谈判策略,但最终还是接受了专有信息。

珍妮特•耶伦执掌的财政部不太可能在今后的贷款中加上这些附加条件。

据皮尤研究中心(Pew)调查显示,美国邮政局是美国最受欢迎的政府机构,其支持率为91%。另一项民调显示,92%的美国选民表示,他们支持下一轮新冠病毒救助法案为美国邮政局提供直接财政援助。

美国邮政局是唯一一家邮件服务综合提供商,而且是邮递行业的低成本支柱,有助于压低私营邮递服务的费率。政策研究所(Institute for Policy Studies)最近的分析显示,如果没有美国邮政局,超过7000万美国民众将不得不为邮递服务支付高昂的附加费用。

戴蒙德斯坦说:“国会在去年三月本有机会处理这件事,但是他们却一直在踢皮球。我们当然对此表示严重关切。我们不希望公众对此视而不见,我们会继续尽我们所能大声公开表达我们的观点,这样他们就不会视而不见了。”(财富中文网)

翻译:郝秀

审校:汪皓

Celebrities tweeted about it, politicians campaigned on it, friends on Instagram posted about it, and some even wore it on T-shirts. It was the rallying cry of late 2020: #SaveThePostOffice.

But as the initial chaos surrounding the presidential election begins to dissipate, President Donald Trump’s election-fraud lawsuits get thrown out of court, and President-elect Joe Biden’s transition team takes over the news cycle, that public fervor for the United States Postal Service has fallen to the wayside.

It makes sense. Biden, who raised campaign dollars on his plan to keep the post office from privatizing and to supply it with adequate funding, will soon be in power.

The problem, in many American eyes, is solved. Mission accomplished, right?

“I see the comments on news stories about the USPS,” said Mark Diamondstein, president of the American Postal Workers Union. “They’re all exploding with misinformation. The public thinks that the postmaster general [Louis DeJoy] is going to go away when Trump does because they’re so closely linked."

But, said Diamondstein, "the common wisdom is wrong.”

In reality, Biden does not get to nominate or fire the postmaster general—that’s up to the USPS Board of Governors, the majority of whom are Republican.

It's easy to understand the confusion because the inner workings of the Postal Service are just that: confusing.

It's a semi-governmental agency that runs like a business but functions like a public service. It's politicized but supposed to be apolitical, and there have been a number of large restructurings of the post office in the past 50 years. Until 1970, postmaster general was a cabinet position, nominated by the President, but the power shifted away from the White House in Nixon's Postal Reorganization Act as an attempt to depoliticize the job.

And so DeJoy, who has told Congress that he would like to privatize parts of the USPS and who made changes with the intent to slow mail delivery, will remain at the helm of the post office for the foreseeable future.

Ahead of the election, DeJoy instituted changes to eliminate overtime distribution and sorting, resulting in unprecedented slowdowns of mail and package delivery.

Data obtained by the American Postal Workers Union, which represents about 200,000 postal workers, shows that nearly 20% of all work by mail handlers, city carriers, and postal drivers is done in overtime. There were no plans to hire more employees to make up for the cut in hours. After significant public and political pressure, DeJoy said that he would suspend the slowdown until after the election but not permanently.

Without the attention that was heaped upon the USPS in the lead-up to the election, union officials worry that he’ll be able to make changes one again, but this time they'll fly under the radar.

“The post office has to have enough staff and hire enough workers to serve the people. If you don’t have enough people and hours of work to make sure that there is prompt service, that puts us into a downward spiral,” said Diamondstein.

It’s not just slowdowns. A lack of business-class mail and the quarantine of thousands of postal workers because of COVID-19 have led to a significant loss in revenue for the already ailing postal service. In the fourth quarter, USPS reported that it had lost $9 billion for the full year, despite an increase in package volume. Sales were up $73.1 billion from $71.1 billion in 2019, but first-class mail and marketing mail sales fell to $37.7 billion from $40.8 billion last year.

The gap between revenue and reported losses was also the result of expenses that the U.S. government imposes on the postal service and which other businesses don’t face, like the pre-funding of retiree health care pensions well into the future.

The law, passed in 2006 with the support of the George W. Bush administration, required USPS to pre-fund employee retiree health benefits years into the future. Typically, companies that pay pensions do so as the cost arises and aren’t required to set aside money in advance. No other federal agency bears this burden, and critics call the law “draconian,” claiming that it was created with the intention of leading the postal service toward privatization. Pension funding accounted for an estimated 80% to 90% of the agency’s losses before the pandemic, said officials.

Still, DeJoy blamed the postal service’s business model for the loss and called for future cuts. “The postal service has had a systemic imbalance between revenues and costs for more than a decade,” he said.

Diamondstein does see a way forward without future cuts or privatization, but it's a slow way forward and requires the postal service to retain the political capital and popularity it currently enjoys.

Congress could overturn the parts of the 2006 Postal Accountability and Enhancement Act that require the pre-funding of pensions.

Earlier this year, Congress passed a bill that did just that along relatively bipartisan lines, but it got stuck in the Republican-controlled Senate. As this session of Congress comes to an end, so does the un-passed bill. But Diamondstein has hope that it will be reintroduced next year and the Senate will be more agreeable this time around.

And while Biden is unable to pick a postmaster general, he does get to appoint the nine governors who serve on the board of the USPS for seven-year terms. There are currently only five members serving, which means that Biden can nominate four new governors right away. The remaining five members will see their terms expire over the course of his administration, freeing up more room for his nominees. Those serving on the board are permitted to select a new postmaster general.

The postal service is also still holding out hope that Congress will include emergency funding for the agency in its next stimulus package. It's asking for $25 billion.

Previously, DeJoy agreed to take a $10 billion loan from the U.S. Treasury in lieu of a bailout. In exchange for the loan, the postal service agreed to hand over proprietary information about 10 of its most lucrative contracts with third-party shippers like Amazon, FedEx, and UPS. The postal service works with these shippers to deliver “last mile” deliveries, sometimes at slightly discounted rates, a practice that Trump has long derided, especially when it pertains to Amazon.

The loan also requires the USPS to deliver the Treasury with monthly and quarterly financial and volume reports. The Treasury has also attempted to use the loan negotiations to gain control of personnel decisions, third-party contract approvals, package prices, and union negotiation strategies but eventually settled for receiving proprietary information.

It is unlikely that Janet Yellen’s Treasury will attach these caveats to any future loans.

The USPS is the most well-liked government agency in the country, according to Pew, with a 91% favorability rating. Another poll found that 92% of American voters said they supported direct financial aid for USPS as part of the next coronavirus relief bill.

The USPS is the only universal provider of mail service and has been a low-cost anchor for the mailing industry, helping to keep private mail service rates down. A recent analysis by the Institute for Policy Studies found that without the USPS, 70 million more Americans would have to pay hefty surcharges for deliveries.

“Look, I wish Congress had dealt with this head-on last March when they had the opportunity to, but instead the can got kicked down the road,” said Diamondstein. “We’re certainly concerned. We don’t want the public to take their eye off the prize, and we’re going to continue to try to be as public and loud as we can in our views so that they don’t.”

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