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In the late 1980s, Congress became concerned that the Postal Service would be unable to meet its pension liabilities, so it passed a series of laws to increase the agency’s payments.In 1989, for example, Congress required the Postal Service to pay for cost-of-living adjustments for its annuitants retroactive to 1986.
“Consolidating operations is necessary if the Postal Service is to remain viable to provide mail service to the nation.” Specific dates have not been set for the transition.
In preparing the report, the GAO shared a draft with the Postal Service and the USPS Office of Inspector General.
The comments of Inspector General David Williams are worth noting.
Congress therefore estimates the effects of any legislation, proposed or enacted, on the federal budget. Those considerations, says Williams, determined the size of the annual payments to the RHBF, rather than an actuarial analysis of what they should have been.
In response to Williams' comments, the GAO added a bit more background to its report, but not enough to fully understand how the excessive health care mandate came about. It's pretty complicated, so there may be a few errors in what follows, but it's based on several government reports and a few news articles, listed here.
Implementation of this consolidation is contingent upon the outcome of pending rulemaking for a proposal to revise existing service standards.