Gary; I would think that the type packaging has something to do with the postage costs. A jiffy bag with the shredded padding will weigh more than a similar air bubble, self-seal, mailer. Also, when I mail chips to my new issues subscribers I also enclose a copy of my Atlantic City Newsletter which sometimes is two sheets of paper. In fact, I've recently mailed one $5 Lighthouse chip with my newsletter and invoice for .44¢ to quite a few chippers. If the package weighs less than one ounce, the postal service charges an .11¢ surcharge for the non-standard size envelope.
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