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Do they have a law about denomination being too small? What you're talking about is so places don't get robbed and lose a lot of cash if the burglar grabs a handful from the register, I doubt anyone would snag 8,800 pennies.
lol i had to pay for an engineering scale for my engineering class and was kinda annoyed so i brought in 400 pennies (yea $4 is alot less than $88). this is outrageous
after reading the site someone posted with the US rules/regs, it looks like any business can not accept a certain form of currency if they chose. its basically refusing to sell to someone, which is legal. but if you're paying off a fine, ticket, tow etc. they really can't do anything but accept or drop the charge/fine