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diff --git a/42129.txt b/42129.txt deleted file mode 100644 index 56673dc..0000000 --- a/42129.txt +++ /dev/null @@ -1,12742 +0,0 @@ -The Project Gutenberg eBook, Her Majesty's Mails, by William Lewins - - -This eBook is for the use of anyone anywhere at no cost and with -almost no restrictions whatsoever. You may copy it, give it away or -re-use it under the terms of the Project Gutenberg License included -with this eBook or online at www.gutenberg.org - - - - - -Title: Her Majesty's Mails - An Historical and Descriptive Account of the British Post-Office - - -Author: William Lewins - - - -Release Date: February 18, 2013 [eBook #42129] - -Language: English - -Character set encoding: ISO-646-US (US-ASCII) - - -***START OF THE PROJECT GUTENBERG EBOOK HER MAJESTY'S MAILS*** - - -E-text prepared by Adrian Mastronardi, Paul Clark, The Philatelic Digital -Library Project (http://www.tpdlp.net), and the Online Distributed -Proofreading Team (http://www.pgdp.net) from page images generously made -available by Internet Archive/Canadian Libraries -(http://archive.org/details/toronto) - - - -Note: Images of the original pages are available through - Internet Archive/Canadian Libraries. See - http://archive.org/details/hermajestysmails00lewiuoft - - -Transcriber's Note: - - Every effort has been made to replicate this text as - faithfully as possible, including non-standard spelling - and inconsistent hyphenation. Some changes of spelling - and punctuation have been made. They are listed at the - end of the text. - - Text enclosed by underscores is in italics (_italics_). - - OE ligatures have been converted to "oe." - - - - - -HER MAJESTY'S MAILS: - -An Historical and Descriptive Account of the British Post-Office. -Together with an Appendix. - -by - -WILLIAM LEWINS. - - "OUR ENGLISH POST-OFFICE IS A SPLENDID TRIUMPH - OF CIVILIZATION."--_Lord Macaulay._ - - - - - - - -London: -Sampson Low, Son, and Marston, -14, Ludgate Hill. -1864. - -London: -R. Clay, Son, and Taylor, Printers, -Bread Street Hill. - - - - -PREFACE. - - -This volume is the first of a contemplated series designed to furnish -some account of the history and ordinary working of the revenue -departments of the country--to do for the great _Governmental_ -industries what Mr. Smiles has so ably done (to compare his great things -with our small) for the profession of civil engineering and several -_national_ industries. Few attempts have ever been made to trace the -rise and progress of the invaluable institution of the Post-Office. We -have more than once seen the question asked in _Notes and Queries_--that -_sine qua non_ of the curious and the learned--where a continuous -account might be found of English postal history. In each case, the -inquirer has been referred to a short summary of the history of the -Post-Office, prefixed to the Postmaster-General's _First Report_. Since -that, the Messrs. Black, in the eighth edition of the _Encyclopaedia -Britannica_, have supplied an excellent and more extended notice. Still -more recently, however, in an admirable paper on the Post-Office in -_Fraser's Magazine_, Mr. Matthew D. Hill has expressed his astonishment -that so little study has been given to the subject--that it "has -attracted the attention of so small a number of students, and of each, -as it would appear, for so short a time." "I have not been able to -find," adds Mr. Hill, "that even Germany has produced a single work -which affects to furnish more than a sketch or outline of postal -history." The first part of the following pages is offered as a -_contribution_ to the study of the subject, in the hope that it will be -allowed to fill the vacant place, at any rate, until the work is done -more worthily. With regard to that most interesting episode in the -history of the Post-Office which resulted in the penny-post reform, the -materials for our work--scanty though they undoubtedly are in the -earlier periods--are here sufficiently abundant. The scope, however, -of the present undertaking would not allow of much more than a -proportionate amount of space being devoted to that epoch. Besides, the -history of that eventful struggle can be properly told but by one hand, -and that hand, if spared, intends, we believe, to tell his own story. -Mr. Torrens MacCullagh, in his _Life of Sir James Graham_, has thrown -much new light on the letter-opening transactions of 1844, and we have -been led, on inquiry, to concur in many of his views on the subject. - -The greater portion of the second division of this volume, as well as a -portion of the first part, appeared originally in the pages of several -popular serial publications--principally _Chambers's Journal_ and Mr. -Chambers's _Book of Days_; the whole, however, has been thoroughly -revised, where it has not been re-written, and otherwise adapted to the -purposes of the present work. We are indebted to Mr. Robert Chambers, -LL.D., not only for permitting the republication of these papers in this -form, but also for kindly indicating to us sources of information from -the rich storehouse of his experience, which we have found very useful. -On collateral subjects, such as roads and conveyances, besides having, -in common with other readers, the benefit of Mr. Smiles's valuable -researches in his _Lives of the Engineers_, we are personally indebted -to him for kindly advice. We have only to add that, while in no sense an -authorized publication, personal acquaintance has been brought to bear -on the treatment of different parts of it, and that we have received, in -describing the various branches of the Post-Office, much valuable -information from Mr. J. Bowker and several gentlemen connected with the -London Establishment. It is hoped that the information, now for -the first time brought together, may prove interesting to many -letter-writers who are ignorant, though not willingly so, of the -channels through which their correspondence flows. If our readers think -that the Wise Man was right when he likened the receipt of pleasant -intelligence from a far country to cold water given to a thirsty soul, -surely they will also admit that the _agency_ employed to compass this -good service, which has made its influence felt in every social circle, -and which has brought manifold blessings in its train, deserves some -passing thought and attention. - -The Appendix is designed to afford a source of general reference on many -important matters relating to the Post-Office, some parts of it having -been carefully collated from Parliamentary documents not easily -accessible to the public. - -_April 16, 1864._ - - - - -CONTENTS. - - - PART I. - - HISTORICAL ACCOUNT OF THE POST-OFFICE. - - - CHAPTER I. - PAGE - INTRODUCTORY 1 - - - CHAPTER II. - - THE RISE OF THE GENERAL POST-OFFICE 15 - - - CHAPTER III. - - ON OLD ROADS AND SLOW COACHES 37 - - - CHAPTER IV. - - THE SETTLEMENT OF THE POST-OFFICE 47 - - - CHAPTER V. - - PALMER AND THE MAIL-COACH ERA 73 - - - CHAPTER VI. - - THE TRANSITION PERIOD AT THE POST-OFFICE 94 - - - CHAPTER VII. - - SIR ROWLAND HILL AND PENNY POSTAGE 108 - - - CHAPTER VIII. - - EARLY RESULTS OF THE PENNY-POSTAGE SCHEME 132 - - - CHAPTER IX. - - THE POST-OFFICE AND LETTER-OPENING 150 - - - CHAPTER X. - - THE DEVELOPMENT OF THE POST-OFFICE 165 - - - PART II. - - DESCRIPTIVE ACCOUNT OF THE POST-OFFICE. - - PREFATORY 186 - - - CHAPTER I. - - THE ORGANIZATION OF THE POST-OFFICE 187 - - - CHAPTER II. - - ON THE CIRCULATION OF LETTERS 199 - - - CHAPTER III. - - THE MAIL-PACKET SERVICE 245 - - - CHAPTER IV. - - ON POSTAGE-STAMPS 255 - - - CHAPTER V. - - POST-OFFICE SAVINGS' BANKS 268 - - - CHAPTER VI. - - BEING MISCELLANEOUS AND SUGGESTIVE 279 - - - CHAPTER VII. - - CONCERNING SOME OF THE POPULAR MISCONCEPTIONS - AND MISREPRESENTATIONS TO WHICH THE POST-OFFICE - IS LIABLE 291 - - - APPENDIX (A). - - CHIEF OFFICERS OF THE POST-OFFICE 308 - - - APPENDIX (B). - - ABSTRACT OF THE PRINCIPAL REGULATIONS 309 - - - APPENDIX (C). - - INFORMATION RELATIVE TO THE APPOINTMENTS IN - THE POST-OFFICE SERVICE 330 - - - APPENDIX (D). - - APPOINTMENTS IN THE CHIEF OFFICE IN LONDON 333 - - PRINCIPAL APPOINTMENTS IN THE CHIEF OFFICES OF - DUBLIN AND EDINBURGH 336 - - APPOINTMENTS, WITH SALARIES, OF THE FIVE PRINCIPAL - PROVINCIAL ESTABLISHMENTS IN ENGLAND - AND SCOTLAND 337 - - INFORMATION RESPECTING OTHER PRINCIPAL PROVINCIAL - POST-OFFICES 340 - - - APPENDIX (E). - - SALE OF POSTAGE-STAMPS 341 - - - APPENDIX (F). - - CONVEYANCE OF MAILS BY RAILWAY 342 - - - APPENDIX (G). - - MANUFACTURE OF POSTAGE-LABELS AND ENVELOPES 344 - - - APPENDIX (H). - - RESULTS OF POSTAL REFORM 345 - - - - -PART I. - -HISTORICAL ACCOUNT OF THE POST-OFFICE. - - - - -HER MAJESTY'S MAILS. - - - - -CHAPTER I. - -INTRODUCTORY. - - -Circular letters, and a kind of post for conveying them, are frequently -mentioned both in sacred and profane history. Queen Jezebel is -remarkable as being the first letter-writer on record, though it is not -surprising to find that she used her pen for purposes of deception. -According to the sacred chronicler, she "wrote letters in Ahab's name, -and sealed them with his seal, and sent the letters unto the elders and -to the nobles in the city." From the Book of Esther we learn that -Ahasuerus, king of Persia, being displeased at the disobedience of his -wife, Vashti, sent letters into every province of his vast empire, -informing his subjects that it was his imperial will that "every man -should bear rule in his own house." The first recorded _riding post_ was -established in the Persian empire by Cyrus, who, when engaged in his -Scythian expedition, in order to have news brought expeditiously, -"caused it to be tried how far a horse could go in a day without -baiting, and, at that distance, appointed stages and men whose business -it was to have horses always in readiness."[1] Another authority[2] -tells us that there were one hundred and eleven postal stages, a day's -journey distant from one another, between Susa and the Aegean Sea, and -that at each stage a large and beautiful structure was erected, with -every convenience for the purpose designed. - -It is certainly remarkable that neither in this nor in any other -recorded instance have the posts in ancient times developed into one for -the conveyance of private correspondence. It is certain that the Greeks -and Romans, even when at the height of their civilization, had no -regular public post. There are some traces of _statores_ and _stationes_ -under the Roman Republic; and Augustus, we find, instituted posts on the -principal trunk-roads, for the use of the Imperial Government. He also -established a class of mounted messengers, called _tabellarii_, who went -in charge of the despatches. That these messengers should have been -strictly forbidden to convey letters for private persons, or that no -provision was subsequently made for that purpose, is the more wonderful, -when we consider the high character of the nations themselves, and the -fact, often pointed out, that the progress of civilization has always -been intimately and essentially connected with, and dependent upon, -facilities for intercommunication--keeping pace, in fact, with the means -which nations possessed for the interchange of person and property, and -with them of thought and knowledge. That those nations to which we are -so greatly indebted for so much that exalts the intellect and adorns -life, should not have left us an example of such a useful and -(considering the vast extent of their respective territories), we should -have thought, indispensable institution as that of a public letter-post, -is marvellous. - -Marco Polo, the famous Venetian, who travelled in China in the -fourteenth century,[3] describes the government post as similar to that -in use in Persia under Cyrus. The posts had existed in China from the -earliest times. Every twenty-five miles there were posts, called -_jambs_, where the imperial envoy was received. There were frequently -as many as three or four hundred horses in waiting at one of these -places. Polo further states that there were ten thousand stations of -this kind in China, some of them affording sumptuous accommodation to -travellers. Two hundred thousand horses are said to have been engaged in -the service. The fact affords a curious commentary on the progress of -civilization in the Celestial Empire, that, though this gigantic and -elaborate establishment has been in existence so long and up to the -present century, it is only within the last few years that provision has -been made in China for public letter-posts. - -The earliest date in modern history at which any postal service is -mentioned, is the year 807, when an organization was planned by the -Emperor Charlemagne. The service, however, did not survive him. The -first regular European letter-post was established in the Hanse Towns in -the early part of the thirteenth century. This federation of republics -required constant communication with each other; for, being largely -engaged in similar commercial pursuits, it became indispensable to their -existence that some system of letter-conveyance should be originated. -The next establishment was a line of letter-posts connecting Austria -with Lombardy, in the reign of the Emperor Maximilian, said to have been -organized by the princes of the house of Thurn and Taxis. The -representatives of the same house established another line of posts from -Vienna to Brussels, thus further connecting the most distant parts of -the vast dominions of the Spanish Emperor, Charles V. It may be -mentioned here, that the Counts of Thurn and Taxis have, in virtue of -their original establishment, which they controlled from the first, -always held peculiar rights and privileges in relation to the postal -systems of Germany; and up to this day the posts of the house of Thurn -and Taxis are entirely distinct from the existing Crown establishments, -and, in fact, are maintained in rivalry to those of some of the German -states. In France, in the fifteenth century, Louis XI. revived the -system of Charlemagne, organizing a body of 230 couriers for purposes -of state. - -We may gather from the existing materials, scanty though they be, -something like a continuous account of the early history of the English -post-office, tracing, very clearly, its progress from the fifteenth -century to its present position. - -While the _general post_ dates from the Stuarts, the establishment of a -regular _riding post_ in England owes its origin to Edward IV. The -English post seems from the first to have been fully commensurate with -the demands for its service, its growth depending on the gradual advance -which the country made in other measures of social progress. Four or -five centuries ago, few private persons could either read or write. On -the other hand, the business of the State demanded correspondence. The -king had his barons to summon, or his sheriffs to instruct, and letters -of writ were issued accordingly, a few Government messengers supplying -all the wants of the time. Now and then the nobles would require to -address each other, and sometimes to correspond with their dependents, -but, as a general rule, neither the serf nor his master had the power, -even if they had the will, to engage much in writing. As time wore on, -and we come nearer the age of the Tudors, the desire for learning -spread, though still the few who engaged in literary or scientific -pursuits were either attached to the Court or to the monastic -establishments. Even when the Tudor dynasty came in, trade with foreign -countries, and remote districts in our own country, was almost equally -unknown. Each district dwelt alone, supplied its own wants, and evinced -very little desire for any closer communication. - -In the earliest times in England, and prior to the first regular horse -posts, both public and private letters were sent by private messengers, -travelling when required. In the reign of Henry I. messengers were first -permanently employed by the king. So early as the reign of King John the -payments to _Nuncii_--as these messengers were now called--for the -conveyance of Government despatches, are to be found entered in the -_Close_ and _Misae Rolls_, "and the entries of these payments may be -traced in an almost unbroken series through the records of many -subsequent reigns." Nuncii were also attached to the establishments of -the principal barons of the time, and communications passed between them -by means of those functionaries. In the reign of Henry III., the son and -successor of King John, these messengers began to wear the royal livery. -At first it was necessary for them to keep horses of their own, or use -those belonging to the royal or baronial mansion. In the reign of Edward -I. we find that fixed stations or _posts_ were established, at which -places horses were kept for hire, the _Nuncii_ ceasing to provide horses -of their own, or borrowing from private individuals. Several private -letters are in existence, dating as far back as the reign of Edward II., -which bear the appearance of having been carried by the _Nuncii_ of that -period, with "Haste, post, haste!" written on the backs of them. - -With the machinery thus ready to his hand, the improvements contrived by -Edward IV. were easily accomplished. In 1481 this monarch was engaged in -war with Scotland, when, in order to facilitate the transmission of news -from the English capital, he ordered a continuous system of posts, -consisting of _relays_ of horses and messengers every twenty miles. By -this arrangement, despatches were conveyed to him at the English camp -with marvellous expedition, his couriers riding at an average rate of -seventy miles a day. When peace was restored, the system of relays was -allowed to fall into disuse, only to be revived in cases of urgency. -Little improvement in communication could be expected under such a -course of procedure, and little was effected. Henry VIII. was the first -monarch who endeavoured to keep the posts in a state of efficiency, and -improve their organization, in peace as well as in war; though still it -is noticeable that the post stages are kept up purely and exclusively as -a convenience to the Government for the conveyance of its despatches. - -Henry VIII. instituted the office of "Master of the Postes,"[4] with -entire control of the department. During the king's lifetime the office -was filled by one Brian Tuke, afterwards Sir Brian. We gain some insight -into the duties of the office, and also into the manner in which the -work is done, from the following letter (found in the voluminous -correspondence of Thomas Cromwell) from the "Master of the Postes," no -doubt in exculpation of himself and his arrangements, which seem to have -been in some way called in question by the Lord Privy Seal. "The Kinge's -Grace hath no moo ordinary postes, ne of many days hathe had, but -betwene London and Calais. For, sir, ye knowe well, that, except the -hackney horses betwene Gravesende and Dovour, there is no suche usual -conveyance in post for men in this realme as in the accustomed places of -France and other _parties_; _ne men can keepe horses in redynes without -som way to bere the charges_; but when placardes be sent for such cause, -(viz. to order the immediate forwarding of some state packet,) the -constables many tymes be fayne to take horses oute of plowes and cartes, -_wherein can be no extreme diligence_." The king's worthy secretary thus -charges the postmaster with remissness, and the mails with tardiness, -when the facts, as gathered from the above letter, show that the -Government had not gone to the trouble and expense of providing proper -auxiliaries, as in France; _ergo_, they could not expect the same -regularity and despatch. Master Tuke then defends the character of his -men. "As to the postes betwene London and the Courte, there be now but -2; whereof the _on_ is a good robust felowe, and wont to be diligent, -evil intreated meny times, he and other postes, by the herbigeours, for -lack of horse rome or horse mete, _withoute which diligence cannot be_. -The other hathe been a most payneful felowe in nyght and daye, that I -have knowen amongst the messengers. If he nowe _slak_ he shalbe changed -as reason is." - -During the insurrection in the Northern Counties in the reign of Henry -VIII., the rebel leaders, in order to insure a rapid transmission of -orders, established regular posts from Hull to York, York to Durham, and -Durham to Newcastle.[5] - -The council of Edward VI. finding that a great many irregularities -existed in the hire of post-horses, had an Act passed (2 & 3 Edward VI. -c. 3) fixing the charge at a penny per mile for all horses so impressed. - -Up to the end of the reign of Queen Elizabeth, no further improvements -seem to have been made, although her council took steps to make the -existing service as efficient as possible, by reforming some abuses -which had crept into it during Queen Mary's reign. Before Elizabeth's -death, the expenses of the post were reduced to rather less than -5,000_l._ per annum. Before the reduction, the sum charged for conveying -Her Majesty's despatches from stage to stage was enormous. Up to the -thirty-first year of her reign, a rate of 20_d._ a letter was levied by -the proprietors of the post-horses, for _every post travelled over_. The -council resolved to pay the proprietors 3_s._ a day for the service, -irrespective of the distance travelled. The payment was reduced to 2_s._ -and ultimately to 18_d._ a day. Much information respecting the -service--the different stages, the routes taken at this early period, -&c. &c. has been found in old records of the "Master of the Postes," -exhumed some twenty years ago from the vaults of Somerset House. This -functionary, it would appear, paid all current expenses appertaining to -his department, "the wages and entertainment of the ordinary posts," and -he was reimbursed in full under the grant "for conveyance of Her -Highness's letters and her Council's." The information respecting the -routes taken is especially interesting, because it serves to show -that even at this early period arrangements were made with great -circumspection, and that some of these early routes existed, with only -trifling modifications, down to the present century, and to the time of -railroads. The route from London to Berwick is shown by the lists of -posts (or stages) laid down between the two places in the fifteenth year -of Queen Elizabeth's reign. They run as follows:--1. London; 2. Waltham; -3. Ware; 4. Royston; 5. Caxton; 6. Huntingdon; 7. Stilton; 8. Stamford; -9. Grantham; 10. Newark; 11. Tookesford (Tuxford); 12. Foroby (Ferriby); -13. Doncaster; 14. Ferry Bridge; 15. Wetherby; 16. Bouroughbridge; 17. -Northallerton; 18. Derneton (Darlington); 19. Durham; 20. Newcastle; 21. -Morpeth; 22. Hexham; 23. Hawtwistle; 24. Carlisle; 25. Alnwick; 26. -Belford; 27. Berwick. For three centuries, therefore, the High North -Road took in all these posts with the exception of Tuxford. A -considerable diversion, it will be noticed, was made at Morpeth towards -the west, in order to take in the then important towns of Hexham and -Carlisle; but it is more probable that the direct post-road continued -north through Alnwick to Berwick, and that the west road was only a kind -of cross-post. There were no less than three post routes to Ireland in -this reign, and all of them were used more or less. The first and most -important, perhaps, left London and took the following towns in its way; -the distance between each town constituting a "stage;" viz. Dunstable, -Dayntry (Daventry), Collsill (Coleshill), Stone, Chester and Liverpool, -from which latter place a packet sailed. The remaining two mails took -slightly different routes to _Holyhead_, whence also a packet sailed for -Ireland. We find there were also _two_ posts between London and Bristol -and the west of England; the first going by way of Maidenhead, Newbury, -Marlborough and Chippenham; the other, by Hounslow, Maidenhead, Reading, -Marlborough, Maxfield to Bristol. To Dover there were also _two_ posts; -the one passing through Dartford, Gravesend, Rochester, Sittingbourne, -Canterbury, Margate and Sandwich; the other passing through Canterbury -direct, without calling at the two last-named places. The posts above -enumerated were called the "ordinary" posts, and may be supposed to have -been the permanent arrangements for the transmission of the Government -despatches. When these posts did not avail--and it must be understood -that they were never allowed to make a _detour_ into the cross-roads of -the country--"extraordinary posts" were established. Generally speaking, -these extra posts were put on for any service which required the -greatest possible haste. Here is an extract from the records of which we -have spoken, on this point. "Thomas Miller, gent. sent in haste by -special commandment of Sir Francis Walsingham, throughout all the postes -of Kent to warn and to order, both with the posts for an augmentation of -the ordinary number of horses for the packet, and with the countries -near them for a supply of twenty or thirty horses a-piece for the -'throughe posts,' during the service against the Spanish navy by sea, -and the continuance of the army by land." Again, in 31st Elizabeth, -special or "extraordinary" posts were laid between London and Rye, upon -unwelcome news arriving from France, "and for the more speedy -advertisement of the same." "Thomas Miller, gent. sent at Easter, 1597, -to lay the posts and _likest_ landing places either in Kent or Sussex, -upon intelligence given of some practices intended against the Queen's -person." Mr. Miller seems to have judged Rye to be the "likest landing -place" for the purpose, and, returning, "received seven pound for his -services." Other extraordinary posts were often laid down between -Hampton Court and Southampton and Portsmouth, for the "more speedy -advertisement" of occurrences from the ports of Normandy and Bretaigne. - -In the early part of Queen Elizabeth's reign, disputes were frequent -with the foreign merchants resident in London with regard to the foreign -post, which, up to this reign they had been allowed to manage among -themselves. In 1558, the Queen's Council of State issued a proclamation -"for the redresse of disorders in postes which conveye and bring to and -out of the parts beyond the seas, pacquets of letters." It would seem -that soon after the arrival of the Flemings in this country, in the -previous century, they established a post-office of their own, between -London and the Continent, appointing one of themselves as postmaster, by -the sufferance and favour of the reigning sovereign. "Afterwards," says -Stowe,[6] "by long custom, they pretended a right to appoint a master of -the _Strangers' Post_, and that they were in possession of from the year -1514." This continued till 1558, in which year the foreign merchants -fell out among themselves over the question of appointing a postmaster. -The Flemings, aided by the Spanish ambassador, chose one Raphael Vanden -Putte; the Italians, by this time a considerable body of foreigners, -chose one of their number for the vacant place. Not being able to agree, -the disputants referred their case to the English Council, when, to the -surprise of the foreigners, their right to appoint at all was publicly -disputed. The English merchants took up the matter very warmly, and -addressed the Privy Council in two or three petitions. They took the -opportunity to complain that the authorities of the foreign post had -frequently acted unfairly to them, in keeping back their continental -letters, and so giving the foreigners the advantage of the markets. In -one of the petitions, they urged, "that it is one of the chief points of -the prerogative belonging to all princes, to place within their -dominions such officers as were most trusty of their own subjects; that -the postmaster's place was one of great trust and credit in every realm, -and therefore should be committed to the charge of the natural subjects -and not strangers, especially in such places as had daily passages into -foreign realms, and where was concourse of strangers." Further, "The -strangers were known to have been the occasion of many injuries in the -staying and keeping back of letters, and, in the meantime, an -extraordinary would be despatched to prevent the markets and _purpose_." -The English merchants urged that it would be doing the foreigners no -injustice to appoint an English postmaster; no new exactions need be -imposed upon them, "and such men might be placed in the office as could -talk with them in their own language, and that should make as good -promise, and as faithfully perform the same in all equity and upright -dealings, as any stranger had done." The result was, that it was finally -settled that the "Master of the Postes" should have the charge of both -the English and foreign offices, and that the title of this functionary -should be changed to "Chief Postmaster." Thomas Randolph was the first -"Chief Postmaster" of England. - -Under the Tudor dynasty, marvellous strides were taken in the social -progress of the country. The habits of a great nation can, of course, -only change slowly; but, notwithstanding, the England of the -Plantagenets was a different country to the England which Elizabeth left -in 1603. The development of trade, which really commenced with the -Tudors, gave the first great impulse to a new social era. People began -to feel more interest in each other, and as this became manifest, the -demand for interchange of thought and news became more and more urgent. -In the reign of Henry VIII. the English people began a considerable -trade with Flanders in wool. A commercial treaty subsequently gave free -ingress and egress to the ships of both nations. The change that this -new trade wrought was immediate and striking. English rural districts -which had before been self-supporting--growing their own corn and -feeding their own cattle--now turned their corn-land into pasture-land, -and sought grain among their neighbours. The dissolution of the -monasteries under the same monarch had the effect, among other results, -of scattering broadcast over the country those who had previously lived -together and enjoyed almost a monopoly of learning. The Reformation -civilized as well as christianized the people. Other causes were at work -which operated in opening out the country, and encouraging habits of -locomotion and the spread of intelligence generally. Amongst many such, -were changes, for instance, in the routine of law procedure, introduced -by Henry. Up to his time, courts of arbitration had sat from time -immemorial within the different baronies of England, where disputes, -especially those between landlord and tenant, were cheaply and equitably -adjusted. Now, such cases were ordered to be taken to London, and -country people found themselves compelled to take journeys to London and -sue or be sued at the new courts of Westminster.[7] - -We could not well exaggerate the difficulties which encompassed -_travellers_ at this early period. As yet there were but one or two main -roads. Even in the neighbourhood of the metropolis, and certainly in all -the remote parts of the country, the roads were not unlike broad -ditches, much waterworn and strewn with loose stones. Travellers had no -choice but to ride on horseback or walk. Everybody who could afford it -rode. The sovereign and all gentlefolk rode. Judges rode the circuit in -jackboots. Ladies rode on pillions fixed on the horse, and generally -behind some relative or serving-man. In this way Queen Elizabeth, when -she rode into the city, placed herself behind her Lord Chancellor. The -wagon was an invention of the period. It was a rude contrivance; -nothing, in fact, but a cart without springs, the body of it resting -solidly upon the axles. The first conveyance of this sort was -constructed for the Queen's own use, and in it she journeyed to open -Parliament.[8] Elizabeth rode in it but on this one occasion, and has -left behind her a curious and most graphic account of her sufferings -during the journey, in a letter, written in the old French of that -period, to the French ambassador at her court, who seems to have -suggested the improvement to her. The wagon, which had been originally -contrived for ladies, now that the Queen discarded it, was not brought -into great use during her reign. It seems to have found its way into the -provinces, however, the gentry of that time being delighted with it. "On -a certaine day in 1583," according to Mr. Smiles, "that valyant knyght, -Sir Harry Sydney, entered Shrewsbury in his wagon, with his trompeter -blowynge, verey joyfull to behold and see." Under such circumstances, -it cannot be wondered at that general intelligence travelled slowly. -Among the common people, few ever saw a letter. Pilgrims, as they -travelled between the monasteries of the period, or who, after their -dissolution, visited their shrines, dispensed news to the poor, and -would occasionally carry letters for the rich.[9] Public and private -couriers riding post were sometimes surrounded, at the villages or towns -on their _route_, by crowds of people desirous of obtaining some -information of the world's doings. At times, they were not suffered to -pass without furnishing some kind of information. The letters of the -period, many of which survive, show that great care was taken to protect -them from the curiosity of the bearer; and precautionary measures were -resorted to to prevent delay. They were usually most carefully folded, -and fastened at the end by a sort of paper strap, upon which the seal -was affixed, whilst under the seal a piece of string or silk thread, or -even a straw, was frequently placed, running round the letter. The -following letter, still extant, will serve to give an insight into the -way letters were dealt with at this period, and the speed at which they -were forwarded.--(Vide _Postmaster-General's 2nd Report_, p. 38.) - - ARCHBISHOP PARKER _to_ SIR W. CECIL. - - SIR, - - According to the Queen's Majesty's pleasure, and your advertisement, - you shall receive a form of prayer, which, after you have perused - and judged of it, shall be put in print and published immediately, - &c. &c. - - From my house at Croyden, this 22d July, 1566, at four of the clock, - afternoon. - - Your honour's alway, - - MATTHEW CANT. - -This letter is thus endorsed by successive postmasters, according to the -existing custom. - - Received at Waltham Cross the 23d of July, at nine at night. - Received at Ware the 23d of July at 12 at night. - Received at Croxton the 24th of July, between 7 and 8 of the morning. - -So that his Grace's letter, which would appear to have been so important -as that one or more messengers were required to travel night and day in -order to deliver it at the earliest possible moment, took 40 hours to -travel 63 miles. - - -FOOTNOTES: - -[1] Xenophon. - -[2] Herodotus. - -[3] Travels of Marco Polo, pp. 139, 140. - -[4] Camden's Annals. - -[5] Froude's History, Vol. III. p. 185. - -[6] Surveye of London, Vol. II. - -[7] Froude's History, Vol. III. p. 94. - -[8] Smiles's Lives of the Engineers, Vol. I. - -[9] Historian of Craven, speaking of the close of the sixteenth century. - - - - -CHAPTER II. - -THE RISE OF THE GENERAL POST-OFFICE. - - -It was reserved for the Stuarts to organize for the first time in -England a regular system of post communication, the benefits of which -should be shared by all who could find the means. England was behind -other European nations in establishing a public letter-post. It was not -until the foreign post had been in existence a hundred years, and until -the foreigners had drawn particular attention to their postal -arrangements by their constant disputes, that the English government -established a general post for inland letters, similar to the one whose -benefits "the strangers" had enjoyed even prior to the reign of Henry -the Eighth. Little progress towards this end was made in the reign of -the first James, if we except a better organization for the conveyance -of official despatches. At the same time, it ought to be stated, that -the improved organization here referred to was the groundwork for the -subsequent public post. - -One of the results attendant on the accession[10] of the Scotch king to -the English Crown necessitated important improvements in the system of -horse posts, for which it called loudly. Immediately on his accession, -the high road from Edinburgh to London was thronged night and day with -the king's countrymen. All ordinary communications fell far short of -the demand; so much so, that post messengers riding from the Council at -Edinburgh to the king in London, or _vice versa_, were stopped whole -days on the road for want of horses, which had been taken by the -Scottish lords and gentlemen rushing forward to the English capital to -offer their congratulations to his majesty. As a remedy, the lords of -the English council issued a proclamation, calling upon all magistrates -to assist the postmasters "_in this time so full of business_," by -seeing to it that they were supplied with "fresh and able horses as -necessitie shall require." They were to be "able and sufficient horses," -well furnished "of saddles, bridles, girts and stirropes, with good -guides to look to them; who for the said horses shall demand and receive -of such as shall ride on them the prices accustomed" (_Book of -Proclamation_, 1603-1609). - -As the general intercourse between the two capitals now promised to be -permanent, and travelling along the North Road increased rather than -diminished, further general orders were published from time to time by -royal proclamation. Two kinds of post were established during the reign -of James the First, both being in operation together towards its close. -They were known as the "_thorough post_," and "_the post for the -packet_." The first, consisting of special messengers who rode "thorough -post," that is, through the whole distance "with horse and guide," was -established in 1603. The couriers were ordered to pay at the rate of -"twopence-halfpenny the mile" for the hire of each horse, and to pay in -advance. Further, they must not ride any horse more than one stage (or -seven miles in summer, and six in winter), except "with the consent of -the post of the stage at which they did not change." For the service of -the second post, or "_the post for the packet_," every postmaster was -bound to keep not less than two horses ready, "with furniture -convenient," when on the receipt of a "packet" or parcel containing -letters, from a previous stage, he was to send it on towards the next -within a quarter of an hour of its receipt, entering the transaction in -"a large and faire ledger paper book." As a further precaution, and in -order to prevent the courier loitering on the road with any important -despatch, each postmaster was required to endorse each single letter -with the exact time of the messenger's arrival, just as we have seen in -the case of the one found in the collection of Archbishop Parker's -correspondence. For the purposes of this packet-post, we find it -arranged that each postmaster should have ready "two bags of leather, at -the least, well lined with baize or cotton, so as not to injure the -letters." It also rested with the different postmasters to furnish the -couriers with "_hornes_ to sound and blowe as oft as the post meets -company, or at least four times in every mile."[11] Thus arose a custom -which, under slightly different circumstances, was strictly observed in -the days of mail-coaches. - -It will be readily observed that in the arrangements of the packet-post -there was nothing to prevent its being extensively used, except the -important restrictions which the King put upon its use. During the reign -of James nothing but the despatches of ambassadors were allowed to -jostle the Government letters in the leather bags, "lined with baize or -cotton," of "the post for the packet." It was not until Charles the -First had succeeded his father, that this post came to be used, under -certain conditions, by merchants and private persons. - -It was during the reign of James the First that the Government secured, -and kept for a hundred years, certain privileges with respect to the -hiring of post-horses. We have seen that the royal couriers, travelling -with despatches by either of the two posts, had priority of claim to -sufficient horses and proper accommodation on their journeys. They also -settled, by order in Council, that any person, whether travelling on the -business of the Government or not, should, if furnished with warrants -from the Council, have prior claim to private individuals, over -post-horses and proper entertainment, demanding them in the name of the -King. In a warrant of Council, for instance, dated Whitehall, May 12, -1630, we find the Privy Council ordering all postmasters to furnish Sir -Cornelius Vermuyden with horses and guides to enable him to ride post -from London to Boston, and thence to Hatfield, where he was engaged in -draining the royal chase for the King.[12] - -Little as James the First did towards establishing an inland post, -though with materials so ready to his hand, in the posts of which we -have spoken, yet he deserves some credit for setting on foot a general -post for letters to foreign countries. It would seem that the abuses -complained of by English merchants, with regard to letters coming _from_ -abroad, had been lessened by the appointment of an English Postmaster -for the Foreign Office, but not so with letters _sent_ abroad: hence the -independent foreign post projected by the King. In another of the very -numerous proclamations of his reign, it is stated that the King had -created the office of Postmaster-General for Foreign Parts, "being out -of our dominions, and hath appointed to this office Matthew de Quester -the elder, and Matthew de Quester the younger." The duties of this new -office are stated to consist in the "sole taking up, sending, and -conveying of all packets and letters concerning his service, or business -to be despatched into forraigne parts, with power to grant moderate -salaries." These appointments interfering in some way with his -department, gave great offence to Lord Stanhope, the English "Chief -Postmaster," and mutual unpleasantness sprung up between the officers of -the two establishments. A suit was instituted in the law courts, and -whilst it was pending, both offices got completely disarranged, some of -Lord Stanhope's staff going without salary for as long as eight years; -"divers of them," as we find it given in a petition to the Council, "lie -now in prison by reason of the great debt they are in for want of their -entertainment." The dispute was not settled until after Charles the -First had become king--namely, in 1632--when Lord Stanhope was induced -to retire from the service as "Chief Postmaster," the De Questers at the -same time assigning the office they had jointly held to William Frizell -and Thomas Witherings. A royal proclamation was thereupon issued, to the -effect that the King approved of the above assignment. "The King," it -went on to say, "affecting the welfare of his people, and taking into -his princely consideration how much it imports his state and this realm, -that the secrets thereof be not disclosed to forraigne nations, which -cannot be prevented if a promiscuous use of transmitting or taking up of -forraigne letters and packets should be suffered, forbids all others -from exercising that which to the office of such postmaster pertaineth, -at their utmost perils." - -Witherings seems to have made good use of his time, for in 1635, or only -three years from the date of his appointment, he saw the great necessity -which existed for some improvement in the postal resources of the -country, and proposed to the King to "settle a pacquet post between -London and all parts of His Majesty's Dominions, for the carrying and -recarrying of his subjects' letters." In this memorial, which justly -entitles him to a front rank in the number of great postal reformers, -Witherings stated some curious facts relating to the service of those -days. "Private letters," it was said, "being now carried by carriers or -persons travelling on foot, it is sometimes full two months before any -answer can be received from Scotland or Ireland to London." "If any of -his Majesty's subjects shall write to Madrid in Spain, he shall receive -answer sooner and surer than he shall out of Scotland or Ireland." -Witherings proposed that the existing posts should be used; that the -journey between London and Edinburgh should be performed in three days, -when--"if the post could be punctually paid--the news will come _sooner -than thought_." Witherings' memorial had the desired effect on the -Council, who at once set about making the machinery already in use -applicable for a general post for inland letters. In 1635 they issued a -proclamation, in which they state that there had not been hitherto any -constant communication between the kingdoms of England and Scotland, and -therefore command "Thomas Witherings, Esquire, His Majesty's Postmaster -for forraigne parts, to settle a running post or two, to run night and -day between Edinburgh in Scotland and the City of London, to go thither -and back again in 6 days." Directions were also given for the management -of the correspondence between the principal towns on the line of road. -_Bye_ posts shall be connected with the main line of posts, by means of -which letters from such places as Lincoln, Hull, Chester, Bristol, or -Exeter, shall fall into it, and letters addressed to these and other -places shall be sent. Other bye posts are promised to different parts of -the country. All postmasters on the main line of posts, as well as those -of the bye posts, were commanded to have "always ready in their stables -one or two horses." The charges settled by James I. were ordered to be -the charges under the new system, "2-1/2_d._ for a single horse, and -5_d._ for two horses per mile." In a subsequent proclamation two years -afterwards, a monopoly of letter-carrying was established, which has -been preserved ever since, in all the regulations of the Post-Office. No -other messengers or foot posts shall carry any letters, but those who -shall be employed by the King's "Chief Postmaster." Exceptions were -made, however, when the letters were addressed to places to which the -King's post did _not_ travel; also, in the case of common known -carriers; messengers particularly sent express; and to a friend carrying -a letter for a friend. These exceptions, trifling as they were, were -withdrawn from time to time, as the Post-Office became more and more one -of the settled institutions of the country. As it was, the prohibitory -clauses caused great dissatisfaction in the country. The middle of the -seventeenth century was certainly a bad time for introducing a measure -that should bear any appearance of a stretch of the royal prerogative. -That no one but the servants of the King's Postmaster should carry -private letters was regarded as an unwarrantable interference with the -liberty of the subject; so much so, that in 1642 a Committee of the -House of Commons was appointed to inquire into that part of the measure. -The subject was also frequently mentioned in Parliament; notwithstanding -which, the Government strictly adhered to the clause.[13] - -The first rates of postage for the new service were fixed at _twopence_, -for a single letter, for any distance under 80 miles; 4_d._ up to 140 -miles; 6_d._ for any longer distance in England; and 8_d._ to any place -in Scotland. Of course the distances were all reckoned from London. - -The control of the English letter-office was entrusted to the Foreign -Postmaster-General, who had suggested the new undertaking. Witherings -held the joint offices for five years, when in 1640 he was charged with -abusing both his trusts, and superseded by Philip Burlamachy, a London -merchant. It was arranged, however, that Burlamachy should execute the -duties of his offices under the care and inspection of the principal -Secretary of State. And now began a quarrel which lasted incessantly -from 1641 to 1647. When the proclamation concerning the sequestration of -his office was published, Witherings assigned his patent to the Earl of -Warwick. Mindful of this opportunity, Lord Stanhope, the "Chief -Postmaster" under the King's father, who had surrendered his patent some -years before, now came forward and stated that the action had not been -voluntary, but, as we learn from his petition to the House of Lords, he -"was summoned to the Council table, and obliged, before he was suffered -to depart, to subscribe somewhat there penned upon your petitioner's -patent by the Lord Keeper Coventry." Lord Stanhope found a staunch -friend and adherent in Mr. Edmund Prideaux, a member of the House of -Commons, and subsequently Attorney-General to the Commonwealth. Two -rival offices were established in London, and continued strife was -maintained between the officers of the two claimants. On one occasion, -Prideaux himself helped to seize the Plymouth mail which had just -arrived in London, and was proceeding to the office of the Earl of -Warwick near the Royal Exchange. Burlamachy and the Government failed to -restore peace. In the Commission on the Post-Office, to which we have -already referred, the subject was taken up, but the resolution of the -Committee only rendered matters more complicated. The Committee, though -Prideaux contrived to be made Chairman of it, declared that the -sequestration of two years before "was a grievance and illegal, and -ought to be taken off," and Mr. Witherings restored to office. The -Commission decided against the Government, both as regards the -sequestration and the monopoly of letter-carrying, which the King -proclaimed in 1637. Both questions were left in abeyance for two years, -when, in 1644, the Parliamentary forces having begun to gain an -ascendancy over those of the King, the Lords and Commons by a joint -action appointed Edmund Prideaux, the Chairman of the Committee of 1642, -"and a barrister of seven years' standing," to the vacant office. It is -somewhat amusing to note how the monopolizing tendencies of the Crown, -denounced but two years ago by the Parliament, were now openly advocated -and confirmed by an almost unanimous vote of both Houses. The resolution -establishing Prideaux in the office states,[14] that the Lords and -Commons, "finding by experience that it is most necessary for keeping of -good intelligence between the Parliament and their forces, that -post-stages be erected in several parts of the kingdom, and the office -of Master of the Post and Couriers being at present void, ordain that -Edmund Prideaux shall be and hereby is constituted Master of the Posts, -Couriers, and Messengers." Prideaux must have been an energetic and -pains-taking manager. He was very zealous and greatly improved the -service, "establishing," says Blackstone, "a weekly conveyance of -letters to all parts of the country, thereby saving to the public the -charge of maintaining postmasters to the amount of 7,000_l._ per annum." -It seems to have been clearly seen in Parliament that the Post-Office -would eventually pay its own expenses, and even yield a revenue; for, in -deciding on Prideaux's proposal, their object is stated quite concisely -in one of the clauses sanctioning it:--"That for defraying the charges -of the several postmasters, _and easing the State of it_, there must be -a weekly conveyance of letters to all parts of the country." For twenty -years previously the establishment of the post had been a burden to the -extent of three or four thousand pounds a year on the public purse. -Prideaux at first was allowed to take the profits of his office, in -consideration of his bearing all the charges. In 1649, five years after -his appointment, the amount of revenue derived from the posts reached -5,000_l._ and a new arrangement was entered into. The practice of -farming the Post-Office revenue began from the year 1650, and lasted, as -far as regards some of the bye posts, down to the end of the last -century. In 1650 the revenue was farmed for the sum of 5,000_l._ - -In the year 1649 the Common Council of London deliberately established a -post-office for inland letters in direct rivalry to that of the -Parliament. But the Commons, although they had loudly denounced the -formation of a monopoly by the Crown, proceeded to put down this -infringement of the one which they had but lately secured to themselves. -The City authorities, backed, as they were in those days, by immense -power, stoutly denied that the Parliament had any exclusive privilege in -the matter. They could see no reason why there should not be "another -weekly conveyance of letters and for other uses" (this latter clause -most probably meaning conveyance of parcels and packets). Though pressed -to do so, "they refused to seek the sanction of Parliament, or to have -any direction from them in their measure."[15] "The Common Council," it -is further stated by way of complaint, "have sent agents to settle -postages by their authority on several roads, and have employed a -natural Scott, who has gone into Scotland, and hath there settled -postmasters (others than those for the state) on all that road." -Prideaux took care to learn something from the rival company. He lowered -his rates of postage, increased the number of despatches, and then -resolutely applied himself to get the City establishment suppressed. -Prideaux, who had now become Attorney-General, invoked the aid of the -Council of State. The Council reported that, "as affairs now stand, they -conceive that the office of Postmaster is, and ought to be, in the sole -power and disposal of Parliament." After this decision the City posts -were immediately and peremptorily suppressed, and from this date the -carrying of letters has been the exclusive privilege of the Crown. -Though the Government succeeded in establishing the monopoly, public -opinion was greatly against the measure. The authorities of the city of -London, as may well be imagined, were incessant in their exertions to -defeat it, not only at that time, but on many subsequent occasions. -Pamphlets were written on the subject, and one book, especially, -deserves mention, inasmuch as its author bore a name now memorable in -the annals of the British Post-Office. In 1659 was published a book, -entitled _John Hill's Penny Post; or a vindication of the liberty of -every Englishman in carrying merchants' or other men's letters against -any restraints of farmers of such employment_. 4_to._ 1659. - -Under the Protectorate, the Post-Office underwent material changes. -Whilst extending the basis of the Post-Office, Cromwell and his Council -took advantage of the State monopoly to make it subservient to the -interests of the Commonwealth. One of the ordinances published during -the Protectorate sets forth that the Post-Office ought to be upheld, not -merely because it is the best means of conveying public and private -communications, but also because it may be made the agent in -"discovering and preventing many wicked designs, which have been and are -daily contrived against the peace and welfare of this Commonwealth, the -intelligence whereof cannot well be communicated except by letters of -escript." A system of espionage was thus settled which has always been -abhorrent to the nature and feelings of Englishmen. But perhaps we ought -not to judge the question in the light of the present day. And we would -do justice to the Council of the Commonwealth. The Post-Office now for -the first time became the subject of parliamentary enactments, and the -acts passed during the interregnum became the models for all subsequent -measures. In the year 1656 an Act was passed, "to settle the postage of -England, Scotland, and Ireland," and henceforth the Post-Office was -established on a new and broad basis.[16] It was ruled that there -"shall be one General Post-Office, and one officer _stiled_ the -Postmaster-Generall of England, and Comptroller of the Post-Office." -This officer was to have the horsing of all "through" posts and persons -"riding post." "Prices for the carriage of letters, English, Scottish, -and Irish," as well as foreign, and also for post-horses, were again -fixed. All other persons were forbidden "to set up or employ any -foot-posts, horse-posts, or packet-boats." Two exceptions, however, were -made under the latter head, in favour of the _two universities_, "who -may use their former liberties, rights, and privileges of having special -carriers to carry and recarry letters as formerly they did, and as if -this Act had not been made." The _Cinque Ports_ also must "not be -interfered with, and their ancient rights of sending their own post to -and from London shall remain intact." - -At the Restoration this settlement of the Post-Office was confirmed in -almost all its particulars. The statute 12 Car. II. c. 35 re-enacts the -ordinance of the Commonwealth, and on account of its being the earliest -recognised statutory enactment, is commonly known as the "Post-Office -Charter." It remained in full force until 1710. The following is the -important preamble to the statute in question: "Whereas for the -maintainance of mutual correspondencies, and prevention of many -inconveniences happening by private posts, several public post-offices -have been heretofore erected for carrying and recarrying of letters by -post to and from all parts and places within England, Scotland, and -Ireland, and several posts beyond the seas, the well-ordering whereof is -a matter of general concernment, and of great advantage, as well for the -preservation of trade and commerce as otherwise." - -It does not appear _why_ Prideaux's connexion with the Post-Office was -dissolved, nor yet exactly _when_. Probably his more onerous duties as -first law officer of the Government demanded all his time and energy. -However it was, we hear no more of him after his victory over the then -formidable City magnates. During the remaining years of Cromwell's life, -the revenues of the Post-Office, wonderfully augmented by Prideaux's -management, were farmed for the sum of 10,000_l._ a year to a Mr. John -Manley. During Manley's tenure of office, the proceeds must either have -increased with marvellous rapidity, or the contracts were under -estimated; for when, in 1659, Manley left the Post-Office, he calculated -that he had _cleared_ in that and some previous years the sum of -14,000_l._ annually. A Parliamentary Committee instituted a strict -scrutiny into the proceeds of the office in the first year of -the Restoration, at which period it became necessary that a new -Postmaster-General should be appointed. It was agreed by the members of -this Committee to recommend that a much higher sum be asked from the -next aspirant to the office, inasmuch as they found that Mr. Manley, -instead of over-estimating his receipts, had erred on the other side, -and that they could not have come far short of the annual sum of -20,000_l._ The result of the Committee's investigation was, that Mr. -Henry Bishop was only appointed to the vacant place on his entering into -a contract to pay to Government the annual sum of 21,500_l._ In -estimating the increase of Post-Office revenue from year to year, it -must be borne in mind that a considerable item in the account was -derived from the monopoly in post-horses for travelling, which monopoly -had been secured under Cromwell's ordinances, and re-secured under 12 -Car. II. c. 35. By this Act, no traveller could hire horses for riding -post from any but authorized postmasters.[17] This statute remained in -force, under some limitations, till 1779. - -Many matters of detail in the arrangements of the Post-Office were -discussed in Parliament during the first three years of the Restoration. -Long-promised bye-posts were now for the first time established; the -circulation of the letters, meaning by that the _routes_ the mails shall -take, and many such subjects, best settled of course by the authorities, -weary the reader of the Journals of the House of Commons about this -date. In December, 1660, for instance, we find the House deliberating on -a proviso tendered by Mr. Titus to the following effect:--"Provided also -and be it enacted, that a letter or packet-post shall once every week -come to Kendal by way of Lancaster, and to the town of Penrith in -Cumberland by way of Newcastle and Carlisle, and to the City of Lincoln -and the borough of Grimsby likewise;" and we are glad to find that this -reasonable proviso, to give these "_out-of-the-way places_" the benefit -of a weekly post, was agreed to without cavil. We notice one important -resolution of the session of this year, setting forth that, as the -Post-Office Bill has been carried through the Houses satisfactorily, -"such of the persons who have contributed their pains in improvement of -the Post-Office, be recommended to the King's Majesty for consideration, -to be had of the pains therein taken accordingly." Let us hope (for we -find no further mention of the matter) that all concerned got their -deserts. Tardy as the English people were, compared with their -continental neighbours, in rearing the institution of the post, the -foundation of an establishment was now laid which has, at the present -time, far distanced all competitors in its resources and in the matter -of liberal provisions for the people. Even before the days of penny -postage, the Duke of Wellington, than whom no man was supposed to know -better the postal regulations of the Continent, gave it as his -deliberate opinion, that "the English Post-Office is the only one in -Europe which can be said to do its work." In rewarding, therefore, those -who contributed so much to this success at this early period of the -history of the establishment, King Charles would simply pay an -instalment of the debt which future generations would owe to them. - -Mr. Bishop was only left undisturbed for two short years. As it was -evident that the revenue of the office was increasing, the House of -Commons took advantage, at the close of his second year of office, to -desire his Majesty that "no further grant or contract of the Post-Office -be again entered into till a committee inspect the same and see what -improvements may be made on the Revenue, as well as in the better -management of the department." They pray that the office may be given to -the highest bidder. His Majesty replies that he has not been satisfied -with the hands in which it has been. Notwithstanding that a measure was -carried requiring the officers of the Post-Office in London and -the country to take the oaths of allegiance and supremacy, and -notwithstanding that these oaths were properly subscribed, his -Majesty is not at all satisfied, "for the extraordinary number of -_nonconformists and disaffected persons_ in that office," and is -desirous of a change. The term being expired, his Majesty "will have a -care to see it raised to that profit it may fairly be, remembering -always that it being an office of much trust as well as a farm, it will -not be fit to give it to him that bids most, because a dishonest or -disaffected person is likeliest to exceed that way." There can be no -manner of doubt now, that the King's words on this occasion were meant -to prepare the minds of his faithful Commons for the successor which he -had by this time fully resolved upon. Two months subsequently to the -above message to the Commons, the entire revenue of the Post-Office is -settled by statute, 15 Car. II. c. 14, upon James, Duke of York, and his -heirs male in perpetuity. This arrangement existed only during the -lifetime of Charles, for when, at his death, the Duke of York ascended -the throne, the revenue of the Post-Office, which had by that time -reached to 65,000_l._ a-year, again reverted to the Crown. No means were -spared to make the Post-Office fruitful during the remainder of the -years of Charles II. Not only were direct measures sanctioned, but -others which had only a bearing on the interests of the Post-Office were -introduced, and easily carried through the Houses. Now, for the first -time, in 1663, the _Turnpike Act_ made its appearance on our -Statute-book, and we may gather from the preamble to this useful Act -some of the impediments which at that time existed to postal -communication. It sets forth that the great North Road--the main artery -for the post-roads and our national intercourse--was in many parts "very -vexatious," "almost impassable," and "very dangerous." The Act provided -for needful improvements, and was the beginning of legislation on that -subject. - -Letter-franking also commenced in this year. A Committee of the House of -Commons which sat in the year 1735 reported, "that the privilege of -franking letters by the knights, &c. chosen to represent the Commons in -Parliament, began with the creating of a post-office in the kingdom by -Act of Parliament." The proviso which secured this privilege to members -cannot now be regarded otherwise than as a propitiatory clause to induce -a unanimous approval of the bill in general. The account[18] of the -discussion of the clause in question is somewhat amusing. Sir Walter -Earle proposed that "members' letters should come and go free during the -time of their sittings." Sir Heneage Finch (afterwards Lord Chancellor -Finch) said, indignantly, "It is a _poor mendicant_ proviso, and below -the honour of the House." Many members spoke in favour of the clause, -Sir George Downing, Mr. Boscowen, among the number, and Sergeant -Charlton also urged "that letters for counsel went free." The debate -was, in fact, nearly one-sided; but the Speaker, Sir Harbottle -Grimstone, on the question being called, refused for a considerable time -to put it, saying he "felt ashamed of it." The proviso was eventually -put and carried by a large majority. When the Post-Office Bill, with its -franking privilege, was sent up to the Lords, they threw out the clause, -_ostensibly_ for the same reasons which had actuated the minority in -the Commons in opposing it, but _really_, as it was confessed some years -afterwards, because there was no provision made in the Bill that the -"_Lords' own letters should pass free_." A few years later this -important omission was supplied, and both Houses had the privilege -guaranteed to them, neither Lords nor Commons now feeling the -arrangement below their dignity. - -Complaint is made for the first time this year, that letters have been -opened in the General Post-Office. Members of Parliament were amongst -the complainants. The attention of the Privy Council having been called -to the subject, the King issued a proclamation "for _quieting_ the -Postmaster-General in the execution of his office." It ordained that "no -postmaster or other person, except under the immediate warrant of our -principal Secretary of State, shall presume to open letters or packets -_not_ directed unto themselves." - -Two years before the death of Charles II. a penny post, the only -remaining post-office incident of any importance during his reign, was -set up in London for the conveyance of letters and parcels. This post -was originated by Robert Murray, an upholsterer, who, like many other -people living at the time, was dissatisfied that the Post-Office had -made no provision for correspondence between different parts of London. -By the then existing arrangements, communication was much more easy -between town and country than within the limits of the metropolis. -Murray's post, got up at a great cost, was assigned over to Mr. William -Docwray, a name which figures for many succeeding years in post-office -annals. The regulations of the new penny post were, that all letters and -parcels not exceeding a pound weight, or any sum of money not above -10_l._ in value, or parcel not worth more than 10_l._, might be conveyed -at a charge of _one penny_ in the city and suburbs, and for _twopence_ -to any distance within a given ten-mile circuit. Six large offices were -opened at convenient places in London, and receiving-houses were -established in all the principal streets. Stowe says, that in the -windows of the latter offices, or hanging at the doors, were large -placards on which were printed, in great letters, "Penny post letters -taken in here." "Letter-carriers," adds the old chronicler, "gather them -each hour and take them to the grand office in their respective -circuits. After the said letters and parcels are duly entered in the -books, they are delivered at stated periods by other carriers." The -deliveries in the busy and crowded streets near the Exchange were as -frequent as six or eight times a day; even in the outskirts, as many as -four daily deliveries were made. - -The penny post was found to be a great and decided success. No sooner, -however, was that success apparent, and it was known that the -speculation was becoming lucrative to its originator, than the Duke of -York, by virtue of the settlement made to him, complained of it as an -infraction of his monopoly. Nor were there wanting other reasons, -inducing the Government to believe that the penny post ought not to be -under separate management. The Protestants loudly denounced the whole -concern as a contrivance of the Popish party. The great Dr. Oates hinted -that the Jesuits were at the bottom of the scheme, and that if the bags -were examined, they would be found full of treason.[19] The city -porters, too, complained that their interests were attacked, and for -long they tore down the placards which announced the innovation to the -public. Undoubtedly, however, the authorities were most moved by the -_success_ of the undertaking, and thereupon appealed to the Court of -King's Bench, which decided that the new post-office, with all its -profits and advantages, should become part and parcel of the royal -establishment. Docwray was even cast in slight damages and costs. Thus -commenced the _London District Post_, which existed as a separate -establishment to the _General Post_ from this time until so late as -1854. It was at first thought that the amalgamation of the two offices -would be followed by a fusion of the two systems; but this fusion, so -much desired, and one we would have thought so indispensable, was not -accomplished (from a number of considerations to be adduced hereafter), -although the object was attempted more than once. - -About a year after the new establishment had been wrested from him, Mr. -Docwray was appointed, under the Duke of York, to the office of -Controller of the District-Post. This was doubtless meant as some sort -of compensation for the losses he had sustained.[20] - -In 1685, Charles II. died, and the Duke of York succeeding him, the -revenues of the Post-Office, of course, reverted to the Crown. -Throughout the reign of the second James, the receipts of the -Post-Office went on increasing, though (the King being too much engaged -in the internal commotions which disturbed the country) no improvements -of any moment were made. The only subject calling for mention is, that -James first commenced the practice of granting pensions out of the -Post-Office revenue. The year after he ascended the throne, the King, -acting doubtless under the wishes of the "merry monarch," that provision -should be made for her, granted a pension of 4,700_l._ a-year to Barbara -Villiers, Duchess of Cleveland, one of the late King's mistresses, to be -paid out of the Post-Office receipts. This pension is still paid to the -Duke of Grafton, as her living representative. The Earl of Rochester was -allowed a pension of 4,000_l._ a-year from the same source during this -reign. In 1694, during the reign of William and Mary, the list of -pensions[21] paid by the Post-Office authorities stood thus:-- - - Earl of Rochester L4,000 - Duchess of Cleveland 4,700 - Duke of Leeds 3,500 - Duke of Schomberg 4,000 - Earl of Bath 2,500 - Lord Keeper 2,000 - William Docwray, till 1698 500 - -Docwray's pension began in 1694, and was regarded as a further -acknowledgment of his claims as founder of the "District-post," or the -"Penny-post," as it was then called. He only held his pension, however, -for four years, losing both his emoluments and his office in 1698, on -certain charges of gross mismanagement having been brought against him. -The officers and messengers under his control memorialized the -Commissioners of the Treasury, alleging that the "Controller doth what -in him lyes to lessen the revenue of the Penny Post-Office, that he may -farm it and get it into his own hands;" also, that "he had removed the -Post-Office to an inconvenient place to forward his ends." There appears -to have been no limit as to the weight or size of parcels transmitted -through the district-post during Docwray's time, but the memorial goes -on to say that "he forbids the taking in of any band-boxes (except very -small) and all parcels above a pound; which, when they were taken in, -did bring a considerable advantage to the Post-Office;" that these same -parcels are taken by porters and watermen at a far greater charge, -"which is a loss to the public," as the penny-post messengers did the -work "much cheaper and more satisfactory." Nor is this all. It is -further stated that "he stops, under spetious pretences, most parcells -that are taken in, which is great damage to tradesmen by loosing their -customers, or spoiling their goods, and many times hazard the life of -the patient when physick is sent by a doctor or an apothecary."[22] It -was hinted that the parcels were not only delayed, but misappropriated; -that letters were opened and otherwise tampered with: and these charges -being partially substantiated, Docwray, who deserved better treatment, -was removed from all connexion with the department. - -It was only towards the close of the seventeenth century, that the -Scotch and Irish post establishments come at all into notice. The first -legislative enactments for the establishment of a Scotch post-office -were made in the reign of William and Mary. The Scotch Parliament passed -such an act in the year 1695. Of course the proclamations of King James -I. provided for the conveyance of letters between the capitals of the -two countries; and although posts had been heard of in one or two of the -principal roads leading out of Edinburgh, even before James VI. of -Scotland became the first English king of that name, it was only after -the Revolution that they became permanent and legalized. Judging by the -success which had followed the English establishment, it was expected -that a Scotch post would soon pay all its expenses. However, to begin, -the King decided upon making a grant of the whole revenue of the Scotch -office, as well as a salary of 300_l._ a year, to Sir Robert Sinclair, -of Stevenson, on condition that he would keep up the establishment.[23] -In a year from that date, Sir Robert Sinclair gave up the grant as -unprofitable and disadvantageous. It was long before the Scotch office -gave signs of emulating the successes of the English post, for, even -forty years afterwards, the whole yearly revenue of the former was only -a little over a thousand pounds. About 1700, the posts between London -and Edinburgh were so frequently robbed, especially in the neighbourhood -of the borders, that the two Parliaments of England and Scotland jointly -passed acts, making the robbery or seizure of the public post -"punishable with death and confiscation of moveables." - -Little is known of the earlier postal arrangements of Ireland. Before -any legislative enactments were made in the reign, it is said, of -Charles I., the letters of the country were transmitted in much the same -way as we have seen they were forwarded in the sister country. The -Viceroy of Ireland usually adopted the course common in England when the -letters of the King and his Council had to be delivered abroad. The -subject is seldom mentioned in contemporary records, and we can only -picture in imagination the way in which correspondence was then -transmitted. In the sixteenth century, mounted messengers were employed -carrying official letters and despatches to different parts of Ireland. -Private noblemen also employed these "intelligencers," as they were then -and for some time afterwards called, to carry their letters to other -chiefs or their dependents. The Earl of Ormond was captured in 1600, -owing to the faithlessness of Tyrone's "intelligencer," who first took -his letters to the Earl of Desmond and let him privately read them, and -afterwards demurely delivered them according to their addresses.[24] - -Charles I. ordered that packets should ply weekly between Dublin and -Chester, and also between Milford Haven and Waterford, as a means of -insuring quick transmission of news and orders between the English -Government and Dublin Castle. We have seen that packets sailed between -Holyhead and Dublin, and Liverpool and Dublin, as early as the reign of -Elizabeth. Cromwell kept up both lines of packets established by -Charles. At the Restoration, only one--namely, that between Chester and -Dublin--was retained, this being applied to the purposes of a general -letter-post. The postage between London and Dublin was 6_d._, fresh -rates being imposed for towns in the interior of Ireland. A new line of -packets was established to make up for that discontinued,[25] to sail -between Port Patrick and Donaghadee, forming an easy and short route -between Scotland and the north of Ireland. For many years this mail was -conveyed in an open boat, each trip across the narrow channel costing -the Post-Office a guinea. Subsequently, a grant of 200_l._ was made by -the Post-Office in order that a larger boat might be built for the -service. This small mail is still continued. - - -FOOTNOTES: - -[10] The special messenger who informed James of Queen Elizabeth's death -accomplished a great feat in those days. Sir Robert Carey rode post, -with sealed lips, from Richmond in Surrey to Edinburgh in less than -three days. - -[11] _Notes and Queries_, 1853. - -[12] This instance, showing the usage, gives us an insight into the -amount of control under which these public servants were held. Sir -Cornelius was in the bad grace of the people of the district through -which he had to pass, on account of being a foreigner; so at Royston -Edward Whitehead refused to provide any horses, and on being told he -should answer for his neglect, replied, "Tush! Do your worst. You shall -have none of my horses, in spite of your teeth."--_Smiles._ - -[13] Blackstone, in speaking of the monopoly in letter traffic, states -that it is a "provision which is absolutely necessary, for nothing but -an exclusive right can support an office of this sort; many rival -independent offices would only serve to ruin one another."--_Com._ vol. -i. p. 324. - -[14] Journals of the House of Commons, 1644. - -[15] Journals of the House of Commons, 21st March, 1649. - -[16] In Burton's _Diary_ of the Parliament of Cromwell, an account is -given of the third reading of the new Act, which is important and -interesting enough to be here partly quoted. "The bill being brought up -for the last reading-- - -SIR THOMAS WROTH said: 'This bill has bred much talk abroad since -yesterday. The design is very good and specious; but I would have some -few words added for general satisfaction: to know how the monies shall -be disposed of; and that our letters should pass free as well in this -Parliament as formerly.' - -LORD STRICKLAND said: 'When the report was made, it was told you that it -(the Post-Office) would raise a revenue. It matters not what reports be -abroad, _nothing can more assist trade and commerce than this -intercourse_. Our letters pass better than in any part whatsoever. In -France and Holland, and other parts, letters are often laid open to -public view, as occasion is.' - -SIR CHRISTOPHER PACK was also of opinion, 'That the design of the bill -is very good for trading and commerce; and it matters not what is said -abroad about it. As to letters passing free for members, _it is not -worth putting in any act_.' - -COLONEL SYDENHAM said: 'I move that it may be committed to be made but -probationary; _it being never a law before_.'" The bill was referred to -a Committee, and subsequently passed nearly unanimously. - -[17] Lord Macaulay states that there was an exceptional clause in this -act, to the effect, that "if a traveller had waited half an hour without -being supplied, he might hire a horse wherever he could."--_History of -England_, vol, i. - -[18] Cobbett's Parliamentary History, vol. ix. - -[19] Macaulay's History of England, vol. i. pp. 387-8. - -[20] Under William and Mary, Docwray was allowed a pension, differently -stated by different authorities, of 500_l._ and 200_l._ a year. - -[21] Amongst the Post-Office pensions granted in subsequent reigns, -Queen Anne gave one, in 1707, to the Duke of Marlborough and his heirs -of 5,000_l._ The heirs of the Duke of Schomberg were paid by the -Post-Office till 1856, when about 20,000_l._ were paid to redeem a -fourth part of the pension, the burden of the remaining part being then -transferred to the Consolidated Fund. - -[22] Stowe's Survey of London. - -[23] Stark's Picture of Edinburgh, p. 144. - -[24] "Letters and Despatches relative to the taking of the Earl of -Ormond, by O'More. A.D. 1600." - -[25] In 1784, the line of Milford Haven packets was re-established, the -rates of postage between London and Waterford to be the same as between -London and Dublin, _via_ Holyhead. The packets were, however, soon -withdrawn. - - - - -CHAPTER III. - -ON OLD ROADS AND SLOW COACHES. - - -If we seem in this chapter to make a divergence from the stream of -postal history, it is only to make passing reference to the tributaries -which helped to feed the main stream. The condition of the roads, and no -less the modes of travelling, bore a most intimate relationship, at all -the points in its history, to the development of the post-office system -and its communications throughout the kingdom. The seventeenth century, -as we have seen, was eventful in important postal improvements; the -period was, comparatively speaking, very fruitful also in great changes -and improvements in the internal character of the country. No question -that the progress of the former depended greatly on the state of the -latter. James the First, whatever might be his character in other -respects, was indefatigable in his exertions to open out the resources -of his kingdom. The fathers of civil engineering, such as Vermuyden and -Sir Hugh Myddleton, lived during his reign, and both these eminent men -were employed under his auspices, either in making roads, draining the -fen country, improving the metropolis, or in some other equally useful -scheme. The troubles of the succeeding reign had the effect of -frustrating the development of various schemes of public utility -proposed and eagerly sanctioned by James. Under the Commonwealth, and at -intervals during the two succeeding reigns, many useful improvements of -no ordinary moment were carried out. - -In the provinces, though considerable advances had been made in this -respect during the century, travelling was still exceedingly difficult. -In 1640, perhaps the Dover Road, owing to the great extent of -continental traffic constantly kept up, was the best in England; yet -three or four days were usually taken to travel it. In that year, Queen -Henrietta and household were brought "with expedition" over that short -distance in four long days. Short journeys were accomplished in a -reasonable time, inasmuch as little entertainment was required. It was -different when a long journey was contemplated, seeing how generally -wretched were the hostelries of the period.[26] So bad, again, were some -of the roads, that it was not at all uncommon, when a family intended to -travel, for servants to be sent on beforehand to investigate the country -and report upon the most promising track. Fuller tells us that during -his time he frequently saw as many as six oxen employed in dragging -slowly a single person to church. Waylen says that 800 horses were taken -prisoners at one time during the civil wars by Cromwell's forces, "while -sticking in the mud." - -Many improvements were made in modes of conveyance during the century. A -kind of stage-coach was first used in London about 1608; towards the -middle of the century they were gradually adopted in the metropolis, and -on the better highways around London. In no case, however, did they -attempt to travel at a greater speed than three miles an hour. Before -the century closed, stage-coaches were placed on three of the principal -roads in the kingdom, namely those between London and York, Chester, and -Exeter. This was only for the summer season; "during winter," in the -words of Mr. Smiles, "they did not run at all, but were laid up for the -season, like ships during Arctic frosts." Sometimes the roads were so -bad, even in summer, that it was all the horses could do to drag the -coach along, the passengers, _per force_, having to walk for miles -together. With the York coach especially the difficulties were really -formidable. Not only were the roads bad, but the low midland counties -were particularly liable to floods, when, during their prevalence, it -was nothing unusual for passengers to remain at some town _en route_ for -days together, until the roads were dry. - -Public opinion was divided as to the merits of stage-coach travelling. -When the new threatened altogether to supersede the old mode of -travelling on horseback, great opposition was manifested to it, and the -organs of public opinion (the pamphlet) began to revile it. In 1673, for -instance, a pamphlet[27] was written which went so far as to denounce -the introduction of stage-coaches as the greatest evil "that had -happened of late years to these kingdoms." Curious to know how these sad -consequences had been brought about, we read on and find it stated that -"those who travel in these coaches contracted an idle habit of body; -became weary and listless when they had rode a few miles, and were then -unable to travel on horseback, and not able to endure frost, snow, or -rain, _or to lodge in the fields_." In the very same year another -writer, descanting on the improvements which had been introduced into -the Post-Office, goes on to say, that "besides the excellent arrangement -of conveying men and letters on horseback, there is of late such an -_admirable commodiousness_, both for men and women to travel from London -to the principal towns in the country, _that the like hath not been -known in the world_, and that is by _stage-coaches_, wherein any one may -be transported to any place, sheltered from foul weather and foul ways; -free from endamaging of one's health and one's body by hard jogging or -over violent motion; and this not only at a low price (about a shilling -for every five miles), but with such velocity and speed in one hour as -that the posts in some foreign countreys cannot make in a day."[28] M. -Soubriere, a Frenchman of letters who landed at Dover in the reign of -Charles II., alludes to stage-coaches, but seems to have thought less of -their charms than the author we have just quoted. "That I might not take -post," says he, "or again be obliged to use the stage-coach, I went from -Dover to London in a wagon. I was drawn by six horses placed one after -another, and driven by a wagoner who walked by the side of them. He was -clothed in black and appointed in all things like another St. George. He -had a brave monteror on his head, and was a merry fellow, fancied he -made a figure, and seemed mightily pleased with himself." - -The stage-wagon here referred to was almost exclusively used for the -conveyance of merchandise. On the principal roads strings of -stage-wagons travelled together. A string of stage-wagons travelled -between London and Liverpool, starting from the Axe Inn, Aldermanbury, -every Monday and Thursday, and occupying _ten_ days on the road during -summer and generally about _twelve_ in the winter season. Beside these -conveyances, there were "strings of horses," travelling somewhat -quicker, for the carriage of light goods and passengers. The -stage-wagon, as may be supposed, travelled much slower on other roads -than they did between London and Liverpool. On most roads, in fact, the -carriers never changed horses, but employed the same cattle throughout, -however long the journey might be. It was, indeed, so proverbially slow -in the north of England, that the publicans of Furness, in Lancashire, -when they saw the conductors of the travelling merchandise trains appear -in sight on the summit of Wrynose Hill, on their journey between -Whitehaven and Kendal, were jocularly said to begin to brew their beer, -always having a stock of good drink manufactured by the time the -travellers reached the village![29] - -Whilst communication between different large towns was comparatively -easy--passengers travelling from London to York in less than a week -before the close of the century--there were towns situated in the same -county, in the year 1700, more widely separated for all practical -purposes than London and Inverness are at the present day. If a stranger -penetrated into some remote districts about this period, his appearance -would call forth, as one writer remarks, as much excitement as would the -arrival of a white man in some unknown African village. So it was with -Camden in his famous seventeenth-century tour. Camden acknowledges that -he approached Lancashire from Yorkshire, "that part of the country lying -beyond the mountains towards the western ocean," with a "_kind of -dread_," but trusted to Divine Providence, which, he said, "had gone -with him hitherto," to help him in the attempt. Country people still -knew little except of their narrow district, all but a small circle of -territory being like a closed book to them. They still received but few -letters. Now and then, a necessity would be laid upon them to write, and -thereupon they would hurry off to secure the services of the country -parson, or some one attached to the great house of the neighbourhood, -who generally took the request kindly.[30] Almost the only intelligence -of general affairs was communicated by pedlars and packmen, who were -accustomed to retail news with their wares. The wandering beggar who -came to the farmer's house craving a supper and bed was the principal -intelligencer of the rural population of Scotland so late as 1780.[31] -The introduction of newspapers formed quite an era in this respect to -the gentlefolk of the country, and to some extent the poorer classes -shared in the benefit. The first English newspaper published bears the -date of 1622. Still earlier than this, the News Letter, copied by the -hand, often found its way into the country, and, when well read at the -great house of the district, would be sent amongst the principal -villagers till its contents became diffused throughout the entire -community. When any intelligence unusually interesting was received -either in the news letter or the more modern newspaper, the principal -proprietor would sometimes cause the villagers and his immediate -dependants to be summoned at once, and would read to them the principal -paragraphs from his porch. The reader of English history will have an -imperfect comprehension of the facts of our past national life if he -does not know, or remember, how very slowly and imperfectly intelligence -of public matters was conveyed during the sixteenth and seventeenth -centuries, and what a bearing--very difficult to understand in these -days--such circumstances had upon the facts themselves. Thus, a -rebellion in one part of the country, which was popular throughout the -kingdom, might be quelled before the news of the rising reached another -part of the country. Remote districts waited for weeks and months to -learn the most important intelligence. Lord Macaulay relates that the -news of Queen Elizabeth's death, which was known to King James in three -days, was not heard of in some parts of Devonshire and Cornwall till the -court of her successor had ceased to wear mourning for her. The news of -Cromwell having been made Protector only reached Bridgewater nineteen -days after the event, when the church bells were set a-ringing. In some -parts of Wales the news of the death of King Charles I. was not known -for two months after its occurrence. The churches in the Orkneys -continued to put up the usual prayers for him for months after he was -beheaded; whilst their descendants did the same for King James long -after he had taken up his abode at St. Germains. - -In Scotland, all the difficulties in travelling were felt to even a -greater degree than in England. There were no regular posts to the -extreme north of Scotland, letters going as best they could by -occasional travellers and different routes. Nothing could better show -the difficulties attendant on locomotion of any sort in Scotland, than -the fact that an agreement was entered into in 1678 to run a coach -between Edinburgh and Glasgow, to be drawn by six horses, the journey, -there and back, to be performed in six days. The distance was only -forty-four miles, and the coach travelled over the principal post-road -in the country! - -The reader has thus some idea of the difficulties which stood in the way -of efficient postal communication during the seventeenth century. -However much the work of the Post-Office, and the slow and unequal -manner in which correspondence was distributed, may excite the scorn of -the present generation, living in the days of cheap and quick postage, -they must nevertheless agree with Lord Macaulay in considering that the -postal system of the Stuarts was such as might have moved the envy and -admiration of the polished nations of antiquity, or even of the -contemporaries of our own Shakespeare or Raleigh. In Cornwall, -Lincolnshire, some parts of Wales, and amongst the hills and dales of -Cumberland, Westmoreland, and Yorkshire, letters, it is true, were only -received once a week, if then; but in numbers of large towns they were -delivered two and three times a week. There was _daily_ communication -between London and the Downs, and the same privileges were extended to -Tunbridge Wells and Bath, at the season when those places were crowded -with pleasure-seekers.[32] - -Accounts survive of the Post-Office as it existed towards the close of -the seventeenth century, an outline of which, contributed to the -_Gentleman's Magazine_ by a correspondent in the early part of the -present century, we must be excused for here presenting to the reader. -The Postmaster-General of the period, under the Duke of York, was at -that time the Earl of Arlington. The letters, it would seem, were -forwarded from London to different parts on different days. For -instance: Every Monday and Tuesday the Continental mails were -despatched, part on the former day, the remainder on the latter. Every -Saturday letters were sent to all parts of England, Scotland, and -Ireland. On other days posts were despatched to the Downs, also to one -or two important towns and other smaller places within short distances -of London. The London Post-Office was managed by the Postmaster-General -and a staff of twenty-seven clerks.[33] In the provinces of the three -countries, there were 182 deputy-postmasters. Two packet-boats sailed -between England and France; two were appointed for Flanders, three for -Holland, three for Ireland, and at Deal two were engaged for the Downs. -"As the masterpiece," so our authority winds up, "of all these grand -arrangements, established by the present Postmaster-General, he hath -annexed (_sic_) and appropriated the market-towns of England so well to -the respective postages, that there is no considerable one of them which -hath not an easy and certain conveyance for the letters thereof _once a -week_. Further, though the number of letters missive was not at all -considerable in our ancestors' day, yet it is now so prodigiously great -(_and the meanest of people are so beginning to write in consequence_) -that this office produces in money 60,000_l._ a year. Besides, letters -are forwarded with more expedition, and at less charges, than in any -other foreign country. A whole sheet of paper goes 80 miles for -twopence, two sheets for fourpence, and _an ounce of letter_ for but -eightpence, and that in so short a time, by night as well as day, that -every twenty-four hours the post goes one hundred and twenty miles, and -in _five_ days an answer to a letter may be had from a place distant 200 -miles from the writer!" - - -FOOTNOTES: - -[26] There were many exceptions, of course. Numbers of innkeepers were -also the postmasters of the period. Taylor, the water-poet, travelling -from London into Scotland in the early part of the century, has -described one of these men, in his _Penniless Pilgrimage_, as a model -Boniface. - -[27] "The Grand Concern of England explained in several Proposals to -Parliament."--Harl. MSS. 1673. - -[28] Chamberlayne's Present History of Great Britain. 1673. - -[29] Private coaches were started in London at the time when the stage- -or hackney-coaches were introduced, and Mr. Pepys secured one of the -first. Mightily proud was he of it, as any reader of his _Diary_ will -have learnt to his great amusement. - -[30] There are few traces in this country, at any time, of _public_ -letter-writers. This is somewhat remarkable, inasmuch as then, and still -in some of the southern states of Europe, the profession of public -letter-writer has long been an institution. In England it has never -flourished. Some years ago there might have been seen at Wapping, -Shadwell, and other localities in London where sailors resorted, -announcements in small shop-windows to the effect that letters were -written there "to all parts of the world." In one shop a placard was -exhibited intimating that a "large assortment of letters _on all sorts -of subjects_" were kept on hand. There were never many, and now very -few, traces of the custom. - -[31] Chambers' Domestic Annals. - -[32] Lord Macaulay. Vol. i. p. 388. - -[33] No less interesting are the particulars of one year's postal -revenue and expenditure, extracted from the old account-books of the -department, by the present Receiver and Accountant-General of the -Post-Office. The date given is within a year or two of that referred to -in the text, viz. 1686-7. The net produce of the year was a little over -76,000_l._, and the following is a few of the most important and most -suggestive items:-- - - L _s._ _d._ - - Product of foreign mails for the year 17,805 1 7 - The King's Majesty paid for his foreign letters 178 18 4 - Product of Harwich packet-boats 950 5 4 - The Inland window money amounted to 870 4 2 - The letter-receivers' money 313 19 8 - The letter-carriers' money 30,497 10 0 - The Postmaster's money 37,819 8 11 - Officers were _fined_ to the extent of 13 0 0 - The profits of the Irish Office were 2,419 14 0 - Ditto Penny-Post 800 0 0 - -The Scotch Office appears not only not to have brought in any profits, -but we find an item of absolute loss on the exchange of money with -Edinburgh to the extent of 210_l._ 10_s._ 10_d._ - -Amongst the more interesting items of expenditure we notice that-- - - L _s._ _d._ - - The six clerks in the Foreign Office and about - twenty clerks belonging to other departments - received per annum 60 0 0 - - The salary of the Postmaster-General was 1,500 0 0 - - Two officers had 200_l._ per annum, a third had - 150_l._, and a fourth had 100_l._--all four, doubtless, - heads of departments 450 0 0 - - There were eight letter-receivers in London, viz. - at Gray's Inn, at Temple Bar, at King Street, - at Westminster, in Holborn, in Covent Garden, - in Pall Mall, and in the Strand two offices, - whose yearly salaries amounted in all to 110 6 8 - - The yearly salaries of the whole body of letter-carriers 1,338 15 0 - - The salaries of the deputy-postmasters 5,639 6 0 - -The entire total expenditure was 13,509_l._ 6_s._ 8_d._ "Thus we find," -adds Mr. Scudamore, "that while the 'whole net produce' of the -establishment for a year was not equal to the sum which we derive from -the commission on money-orders in a year (Mr. Scudamore is writing of -1854), or to the present 'net produce' of the single town of Liverpool, -so also, the whole expenditure of the whole establishment for a year was -but a little larger than the sum which we now pay _once a month_ for -salaries to the clerks of the London Office alone." If we subtract the -total expenditure from the "whole net produce," as it is called, we get -a sum exceeding 62,000_l._ as the entire net _receipts_ of the -Post-Office for the year 1686-7. - - - - -CHAPTER IV. - -THE SETTLEMENT OF THE POST-OFFICE. - - -Ten years after the removal of Docwray from his office in connexion with -the "Penny Post," another rival to the Government department sprung up -in the shape of a "Halfpenny Post." The arrangements of the new were -nearly identical with those of Docwray's post, except that the -charges, instead of a penny and twopence, were a halfpenny and penny -respectively. The scheme, established at considerable expense by a Mr. -Povey, never had a fair trial, only existing a few months, when it was -nipped in the bud by a law-suit instituted by the Post-Office -authorities. - -In 1710, the Acts relating to the Post-Office were completely -remodelled, and the establishment was put on an entirely fresh basis. -The statutes passed in previous reigns were fully repealed, and the -statute of Anne, c. 10, was substituted in their place, the latter -remaining in force until 1837. The preamble of the Act just mentioned -sets forth, that a Post-Office for England was established in the reign -of Charles II. and a Post-Office for Scotland in the reign of King -William III.; but that it is now desirable, since the two countries are -united, that the two offices should be united under one head. Also, that -packet-boats have been for some time established between England and the -West Indies, the mainland of North America, and some parts of Europe, -and that more might be settled if only proper arrangements were made "at -the different places to which the packet-boats are assigned." It is -further deemed necessary that the existing rates of postage should be -altered; that "with little burthen to the subject some may be increased" -and other new rates granted, "which additional and new rates," it is -added, "may in some measure enable Her Majesty to carry on and furnish -the present war." Suitable powers are also needed for the better -collecting of such rates, as well as provision for preventing the -illegal trade carried on by "private posts, carriers, higlers, watermen, -drivers of stage-coaches, and other persons, and other frauds to which -the revenue is liable." - -As these alterations and various improvements cannot be well and -properly made without a new Act for the Post-Office, the statutes -embodied in 12 Charles II. and the statutes referring to the Scotch -Post-Office passed in the reign of William and Mary, entitled "An Act -anent the Post-Office," and every article, clause, and thing therein, -are now declared repealed, and the statute of 9 Anne, c. 10, called "An -Act for establishing a General Post-Office in all Her Majesty's -dominions, and for settling a weekly sum out of the revenue thereof for -the service of the war, and other Her Majesty's occasions," is -substituted. This Act, which remained in force so long, and may be said -to have been the foundation for all subsequent legislation on the -subject, deserves special and detailed notice. - -1. By its provisions a General Post and Letter-Office is established -within the City of London, "from whence all letters and packets -whatsoever may be with speed and expedition sent into any part of the -kingdom of Great Britain and Ireland, to North America and the West -Indies, or any other of Her Majesty's dominions, or any country or -kingdom beyond the seas," and "at which office all returns and answers -may be likewise received." For the better "managing, ordering, -collecting, and improving the revenue," and also for the better -"computing and settling the rates of letters according to distance, a -chief office is established in Edinburgh, one in Dublin, one at New -York, and other chief offices in convenient places in her Majesty's -colonies of America, and one in the islands of the West Indies, called -the Leeward Islands." - -2. The whole of these chief offices shall be "under the control of an -officer who shall be appointed by the Queen's Majesty, her heirs and -successors, to be made and constituted by letters patent under the Great -Seal, by the name and stile of Her Majesty's _Postmaster-General_." "The -Postmaster-General shall appoint deputies for the chief offices in the -places named above, and he, they, and their servants and agents, and no -other person or persons whatsoever, shall from time to time, and at all -times, have the receiving, taking up, ordering, despatching, sending -post with all speed, carrying and delivering of all letters and packets -whatsoever." The only exceptions to this clause must be--[34] - - (_a_) When common known carriers bear letters concerning the goods - which they are conveying, and which letters are delivered with the - goods without any further hire or reward, or other profit or - advantage. - - (_b_) When merchants or master-owners of ships send letters in ships - concerning the cargoes of such ships, and delivered with them under - the self-same circumstances. - - (_c_) Letters concerning commissions or the returns thereof, - affidavits, writs, process or proceeding, or returns thereof, - issuing out of any court of justice. - - (_d_) Any letter or letters sent by any private friend or friends in - their way of journey or travel. - -3. The Postmaster-General, and no other person or persons whatever, -shall prepare and provide horses or furniture to let out on hire to -persons riding post on any of Her Majesty's post-roads, under penalty of -100_l._ per week, or 5_l._ for each offence.[35] The rates of charge for -riding post are settled as follows:--The hire of a post-horse shall be -henceforth 3_d._ a mile, and 4_d._ a mile for a person riding as guide -for every stage. Luggage to the weight of 80 pounds allowed, the guide -to carry it with him on his horse. - -4. The rates of postage under the present Act are settled. - - _s._ _d._ - - For any single letter or piece of paper to any place in - England not exceeding 80 miles 0 3 - - " double letter 0 6 - - " packet of writs, deeds, &c. per ounce 1 0 - - " single letter, &c. exceeding 80 miles, or as far - north as the town of Berwick 0 4 - - " double letter 0 8 - - " packet, per ounces 1 4 - - From London to Edinburgh and all places in Scotland - south of Edinburgh, per single letter 0 6 - - " " double letter 1 0 - - " " packets, per ounce 2 0 - -The other Scotch posts were calculated from Edinburgh, and charged -according to the distance as in England. - - _s._ _d._ - - From London to Dublin, single letter 0 6 - " " double letter 1 0 - " " packets, per ounce 2 0 - -From Dublin to any Irish town the charge was according to distance, at -the English rate. - -Any letter from any part of Her Majesty's dominions for London would be -delivered free by the penny post, and if directed to places within a -circuit of ten miles from the General Post-Office, on payment of an -extra penny over and above the proper rate of postage. - - _s._ _d._ - - The postage of a single letter to France was 0 10 - " " Spain 1 6 - " " Italy 1 3 - " " Turkey 1 3 - " " Germany, Denmark 1 0 - " " Sweden 1 0 - " " from London to New York 1 0 - -Other rates were charged to other parts of the American continent, -according to the distance from New York, at something less than the -English rate. - -5. The principal deputy postmasters are empowered to erect _cross-posts_ -or stages, so that all parts of the country may have equal advantage as -far as practicable, but only in cases where the postmasters are assured -that such erections will be for "the better maintainance of trade and -commerce, and mutual correspondences." - -6. A survey of all the post-roads shall be made, so that the distances -between any place and the chief office in each country "shall be settled -by the same measure and standard." These surveys must be made regularly, -"as necessity showeth;" and when finished, the distances must be fairly -shown by "_books of surveys_" one of which must be kept in each of the -head offices, and by each of the surveyors themselves. The surveyors who -shall be appointed and authorized to measure the distances must swear to -perform the same to the best of their skill and judgment.[36] - -7. Letters may be brought from abroad by private ship, but must be -delivered at once into the hands of the deputy postmasters at the -respective ports, who will pay the master of such ship a penny for every -letter which he may thus deliver up to them. It is hoped that, by these -arrangements, merchants will not suffer as they had previously done, by -having their letters "_imbezilled_ or long detained, when they had been -given into the charge of ignorant and loose hands, that understandeth -not the ways and means of speedy conveyance and proper deliverance, to -the great prejudice of the affairs of merchants and others." - -8. The Postmaster-General and the deputy postmasters must qualify -themselves, if they have not already done so, by receiving the -_sacrament_ according to the usage of the Church of England; taking, -making, and subscribing the test, and the oaths of allegiance, -supremacy, and adjuration. It is also decided that the Post-Office -officials must not meddle with elections for members of Parliament. The -officers of the Post-Office must also qualify themselves for the duties -of their office by observing and following such orders, rules, -directions, and instructions, concerning the settlements of the posts -and stages, and the management of post-horses, and the horsing of all -persons riding by royal warrant, as Her Majesty shall see fit from time -to time to make and ordain. - -A short proviso follows concerning the time-honoured privileges of the -two English Universities, and guaranteeing the same; and then we come to -an arrangement for the attainment of which object, it would appear -(almost exclusively), the Post-Office was remodelled in the manner we -have shown. - -9. "Towards the establishment of a good, sure, and lasting fund, in -order to raise a present supply of money for carrying on the war, be it -enacted that from the present time, and during the whole term of 32 -years, the full, clear, and entire weekly sum of 700_l._ out of -the duties and revenues of the Post-Office shall be paid by the -Postmaster-General into the receipts of the Exchequer on the Tuesday of -every week." - -Whatever else was arranged permanently, the increased rates of postage -were only meant to be temporary; for at the end of thirty-two years, it -was provided that the old rates shall be resorted to. The clause was -simply inserted as a war measure, for the purpose of raising revenue, -but we shall see that, so far from returning to the old postages, fresh -burdens were imposed at the end of that period and from time to -time.[37] - -The improvements introduced by the bill of 1710 had the natural effect -of increasing the importance of the Post-Office institution, and of -adding to the available revenue of the country considerable sums each -year. For ten years no further steps were taken to develop the resources -of the service; but in 1720 Ralph Allen appears, another and perhaps the -most fortunate of all the improvers of the Post-Office. Up to this year, -the lines of post had branched off, from London and Edinburgh -respectively, on to the principal roads of the two kingdoms; but the -"cross-posts," even when established, had not been efficient, the towns -off the main line of road not being well served, whilst some districts -had no direct communication through them. The Post-Office Bill had given -facilities for the establishment of more "cross-posts;" but, till 1720, -the authorities did not avail themselves of its provisions to any great -extent. Mr. Allen, at that time the postmaster of Bath, and who must, -from his position, have been well aware of the defects of the existing -system, proposed to the Government to establish cross-posts between -Exeter and Chester, going by way of Bristol, Gloucester, and Worcester, -connecting in this way the west of England with the Lancashire districts -and the mail route to Ireland, and giving independent postal -intercommunication to all the important towns lying in the direction to -be taken. Previous to this proposal, letters passing between -neighbouring towns were conveyed by circuitous routes, often requiring -to go to the metropolis and to be sent back again by another post-road, -thus, in these days of slow locomotion, causing serious delay. Allen -proposed a complete reconstruction of the cross-post system, and -guaranteed a great improvement to the revenue as well as better -accommodation to the country. By his representations, he induced the -Lords of the Treasury to grant him a lease of the cross-posts for life. -His engagements were to bear all the cost of his new service, and pay a -fixed rental of 6,000_l._ a-year, on which terms he was to retain all -the surplus revenue. From time to time the contract was renewed, but of -course at the same rental; each time, however, the Government required -Allen to include other branches of road in his engagement, so that at -his death, in 1764, the cross-posts had extended to all parts of the -country. Towards the last, the private project had become so gigantic as -to be nearly unmanageable, and it was with something like satisfaction -that the Post-Office authorities saw it lapse to the Crown. At this time -it was considered one of the chief duties of the surveyors--whose -business it was to visit each deputy postmaster in the course of the -year--to see that the distinction between the bye-letters of the -cross-posts, the postage of which belonged to Mr. Allen, and the postage -of the general post letters, which belonged to the Government, was -properly kept up. The deputies were known to hold the loosest notions on -this subject, some of them preferring to appropriate the revenues of one -or the other post rather than make mistakes in the matter. The disputes -and difficulties lasted to the death of Allen.[38] Notwithstanding the -losses he must have suffered through the dishonesty or carelessness of -country postmasters, the farmer of the cross-posts, in an account which -he left at his death, estimated the net profits of his contract at the -sum of 10,000_l._ annually, a sum which, during his official life, -amounted in the total to nearly half a million sterling! Whilst, in -official quarters, his success was greatly envied, Mr. Allen commanded, -in his private capacity, universal respect. In the only short account we -have seen of this estimable man, a contemporary writer states[39] that -"he was not more remarkable for the ingenuity and industry with which he -made a very large fortune, than for the charity, generosity, and -kindness with which he spent it." It is certain that Allen bestowed a -considerable part of his income in works of charity, especially in -supporting needy men of letters. He was a great friend and benefactor of -Fielding; and in _Tom Jones_, the novelist has gratefully drawn Mr. -Allen's character in the person of _Allworthy_. He enjoyed the -friendship of Chatham and Pitt; and Pope, Warburton, and other men of -literary distinction, were his familiar companions. Pope has celebrated -one of his principal virtues, unassuming benevolence, in the well-known -lines:-- - - "Let humble _Allen_, with an awkward shame, - Do good by stealth, and blush to find its fame." - -On the death of Allen, the cross-posts were brought under the control of -the Postmaster-General. An officer, Mr. Ward, was appointed to take -charge of the _Bye-letter Office_, as the branch was now called, at the -salary of 300_l._ a-year. The success of the amalgamation scheme was so -complete, that at the end of the first year, profits to the amount of -20,000_l._ were handed over to the Crown. Afterwards, the proceeds -continued to increase even still more rapidly; so much so, that when, in -1799, the "Bye-letter Office" was abolished, and its management -transferred to the General Office, they had reached the enormous yearly -sum of 200,000_l._! - -At the revision of the Post-Office in 1710, the bounds of the penny post -were extended, as we have seen, to a district within ten miles of the -General Post-Office. This extension was granted on a memorial from -several townships in the London district, who volunteered, if such -extension were made, that they would pay an extra penny for every letter -delivered beyond "the boundaries of the cities of London and -Westminster, and the borough of Southwark." Numerous disputes having -arisen owing to the _wording_ of the Act, and many inhabitants claiming -in consequence to have their letters delivered free within the ten-mile -circuit, a supplementary Act was passed in 1727, "_for the obviating and -taking away such doubts_," as to what was the proper charge, and -directing that the "penny postmen" must not deliver any letters out of -the original limits, but may detain or delay such letters or packets, -unless an extra penny were paid for each on delivery. - -The statute of Queen Anne provided that a weekly payment of 700_l._ -should be made to the Exchequer from the Post-Office for a period of -thirty-two years. This term having expired in 1743, an Act was passed in -that year making the payment _perpetual_, and all clauses, powers, &c. -in the Act of 1711 were also made perpetual. In order to keep up this -source of revenue, which was too good to relinquish, the rates of -postage, instead of being lowered again as stipulated, were kept up, and -several times during subsequent years, as we shall see, fresh additions -were made to the burdens of letter-writers. While on this subject, we -may simply state the clause of Queen Anne's Act relating to the disposal -of the _surplus_ revenue. All pensions were to be paid out of it, and -the remainder retained by the Queen "for the better support of Her -Majesty's household, and for the honour and dignity of the Crown of -Great Britain." On the accession of George I. a bill, granting the same -rights and privileges during the King's lifetime, was passed in the -first session of Parliament. In the first year of the reign of George -II. and his grandson George III. the same rights and privileges were -obtained under the self-same conditions. Though the conditions of the -following Act were, in reality, carried out several years previously, -when a salary of 700,000_l._ a-year was granted to the King for the -support of his household, section 48 of 27 George III. enacts that, for -the King's lifetime, "the entire _net_ revenue of the Post-Office shall -be carried to and made part of the fund, to be called 'the Consolidated -Fund.'" It is scarcely needful to say that this arrangement has existed -from 1787 to the present time. - -From the date of Allen's improvement in 1720 to the year 1761, when the -postage of letters was again disturbed and many other alterations made, -little of special importance was done in the Post-Office, and we cannot -do better than take advantage of this quiet time to give some account of -the internal arrangements of the establishment, and to notice certain -minutiae, which, though trifling in themselves, will serve to give the -reader an insight into the details, the way and means, of this early -period.[40] In the time of George I. the officers of the Post-Office in -London consisted of _two_ Postmasters-General, with a secretary and a -clerk. There were four chief officers in the Inland-office--viz. a -controller, a receiver, an accountant, and a solicitor. The staff of -clerks consisted of seven for the different roads--Chester, North West, -Bristol, Yarmouth, Kent, and Kent night-road. Thirteen clerks were -engaged in other duties, and three more clerks attended at the window to -answer inquiries and deliver letters. The foreign office, which was a -separate department, included a controller and an alphabet keeper, with -eight assistant clerks. The whole London establishment, which at the -present day numbers several thousand officers of different grades, was -then, without counting letter-carriers, worked with a staff of -thirty-two. - -"To show the method, diligence, and exactness of our General -Post-Office," says a writer of the period, "and the due despatch of the -post at each stage, take this specimen." And for our purpose we cannot -do better than take Stowe's advice, and insert here a copy of a -Post-Office proclamation to postmasters and time-bill, given in his -_History of London_:-- - - "Whereas the management of the postage of the letters of Great - Britain and Ireland is committed to our care and conduct: these are - therefore in His Majesty's name to require you in your respective - stages to use all diligence and expedition in the safe and speedy - conveyance of this mail and letters: that you ride five miles an - hour according to your articles from London to East Grinstead, and - from thence to return accordingly. And hereof you are not to fail, - as you will answer the contrary at your perils. - - Signed, CORNWALLIS. - JAMES CRAGGS."[41] - - -TO THE SEVERAL POSTMASTERS BETWIXT LONDON AND EAST GRINSTEAD. - -Haste, Haste, Post Haste! - - +--------+-----------------------------------------------------------+ - | | From the Letter-Office at _half an hour past two in the_ | - |_Miles._| _morning_, July 17, 1719. | - | | | - | 16 | Received at Epsom half an hour past six, and sent away | - | | three-quarters past. ALEXANDER FINDLATER. | - | | | - | 8 | Received at Dorking half an hour after eight, and sent | - | | away at nine. CHAS. CASTLEMAN. | - | | | - | 6 | Received at _Rygate_ half an hour past ten, and sent away | - | | again at eleven. JOHN BULLOCK. | - | | | - | 16 | Received at East Grinstead at half an hour after three | - | | in the afternoon. | - +--------+-----------------------------------------------------------+ - -The speed at which the East Grinstead mail travelled was greater than -usual: few post-boys, in the provinces at any rate, were required to go -at a greater rate than three or four miles an hour. Not only this, but -the boys as a rule were without discipline; difficult to control; -sauntered on the road at pleasure, and were quite an easy prey to any -robber or ill-disposed persons who might think it worth their while to -interfere with them. About this time, we find the Post-Office surveyor -complaining dolorously to headquarters, that the gentry "doe give much -money to the riders, whereby they be very subject to get in liquor, -_which stopes the males_." Expresses at that time travelled somewhat -quicker, but still not quick enough for some persons. On one occasion, -Mr. Harley (afterwards Lord Oxford) complained of delay in an express -which had been sent to him; but the Postmasters-General thought there -were no grounds for complaint, inasmuch "as it had travelled 136 miles -in 36 hours, which," added they, "is the usual rate of expresses." - -In the year 1696, the Treasury sanctioned an arrangement for conveying -the mails between Bristol and Exeter, twice a week, under the -stipulation that the distance of sixty-five miles should be performed in -twenty-four hours! - -In Scotland, about the same time, this work was done even slower, and -with greater hardships. The post-boy walked all distances under twenty -miles; longer distances required that the messenger should be mounted, -though no relays of horses were allowed, however long and tedious the -journey might be.[42] - -At this time, it was only a secondary consideration, _when_ or _how_ -letters should be delivered. For a number of years the authorities were -simply bent on raising revenue out of the Post-Office. Thus, about the -period of which we are speaking, a request was made to the authorities -from certain inhabitants of Warwick, that the London letters for that -place should be sent direct to Warwick and not through Coventry, by -which latter route a great many hours were lost. A decided negative was -returned to this very reasonable request, and for the following cogent -_official_ reason, which exhibits well the exacting tendencies of the -Government. "From London to Warwick, through Coventry, is more than -_eighty_ miles," say the Postmasters-General; "so that we can charge -6_d._ per letter going that way, whereas we could only charge 3_d._ if -they went direct." No doubt this reply is given to the Lords of the -Treasury, through whom all such applications as the foregoing had then, -and still have, to pass; for it cannot be imagined that they gave this -reply to the people of Warwick themselves. "Perhaps, however," add the -Post-Office officials, with some glimmering idea of the true business -principle, "we might get _more letters_ at the cheaper rate." Present -profits, nevertheless, could not be sacrificed, even though there should -be a prospect of increased future revenue. Another instance is on -record, proving that in this respect the Post-Office authorities of the -period were wiser than the executive that held them in check. The -Postmasters-General apply (fruitlessly however) to the Treasury to lower -the rates of postage in a particular district, and in urging their -request, state that "we have, indeed, found by experience, that where we -have made the correspondence more easie and cheape, the number of -letters has been thereby much increased, and therefore we do believe -such a settlement may be attended with a like effect in these parts." - -The Treasury Lords are slow to sanction what appeared to them to be a -sacrifice of revenue, and from the frequent applications which were made -to them by deputy postmasters in the early part of last century to -settle accounts of long standing, or remit the arrears owing to the -Government, we may imagine that their hands were full and their temper -soured. Many postmasters in the West of England now petitioned the -Treasury to the effect that they had been nearly ruined in the times of -His Majesty King William, "through much spoiling of their horses by -officers riding-post in the late blessed Revolution." Others grumble at -the lowness of their salaries. It was all very well, they argued, that -the deputies, during the civil wars or at the Revolution, should be -contented with low salaries, because they were exempted from having -soldiers quartered upon them, but now that the time of peace had come, -they submitted that their salaries should be raised. - -The Act of Queen Anne provided for one Postmaster-General. How it came -to be altered is not clear; but it is nevertheless certain that, for the -greater part of the eighteenth century, the office was jointly held by -two chiefs. All letters and mandates bore the signature of both of them; -though it seems probable that the work of the office was equitably -divided between the two gentlemen, the one taking charge principally of -the inland business, while the other managed the packets. The duties of -the latter department were much more onerous than might be supposed, -when viewed in the light of the history of that period. As we have not -yet directed attention to this department of the Post-Office, we may -here state that some curious accounts survive of the infancy of the -postal sea-service, during the former part of last century, when Sir -Robert Cotton and Sir Thomas Frankland shared its management. In those -sad times when war was raging, and French privateers covered every sea, -our Postmasters-General were anxious, though shrewd and active men. The -general orders to the captains of the vessels under their control were -such as, under the circumstances, they ought to be: "You must run while -you can, fight when you can no longer run, and throw the mails overboard -when fighting will no longer avail." Notwithstanding such an order, and -on account of so many mails travelling short of their destination, the -Postmasters-General resolve to build swift packet-boats that shall -escape the enemy; but in their inexperience, they get them built so low -in the water, that shortly afterwards, "we doe find that in blowing -weather they take in soe much water that the men are constantly wet -through, and can noe ways goe below, being obliged to keep the hatches -shut to save the vessel from sinking." It is clear that better and -stronger boats must be built, and stronger boats are built accordingly. -To make up for the expense, they order that the freight of passengers -shall be raised, though "recruits and indigent persons shall still have -their passage free." It is noteworthy here, that about this time no -political refugee seeking an asylum in England is ever hard pressed for -a fare on the continental packet-boats, but an entry is made in the -agent's letter-book that so and so "have not wherewithal to pay their -charges," and are sent on their path to liberty without further -question. - -Every provision is supplied by the authorities in London, and salaries -and pensions of all kinds are granted. Thus, in one place, a chaplain is -appointed for the crew of one of the packets, with a small stipend, "for -doing their offices of births, marriage, and burial." Pensions for -wounds received in the service are granted with nice discrimination of -the relative parts of the body. In a letter to their agent at Falmouth, -the Postmasters-General send a scale of pensions to be granted according -to the kind of wound--thus: "For every arm or leg amputated above the -elbow or knee, L.8 per annum; below the arm or knee, twenty nobles. Loss -of the sight of one eye must be L.4; of the pupil of the eye, L.5; of -the sight of both eyes, L.12; of the pupils of both eyes, L.14; and -according to these rules, we _consider also how much also the hurts -affect the body_, and make the allowances accordingly." The duties -devolving upon the chief Post-Office officials seem not only to have -been onerous and heavy--some of their instructions to their agents -bearing dates from the middle of the night and other extraordinary -hours--but curiously varied. Many of their letters are preserved among -the old records in the vaults under the General Post-Office, and some of -them are quite sad and plaintive in their tone. "We are concerned," they -say to one agent, "to find the letters brought by your boat [one from -the West Indies] _to be so consumed by the ratts_, that we cannot find -out to whom they belong." Another letter to their agent at Harwich is -evidently disciplinary, and runs as follows:-- - - "MR. EDISBURY--The woman whose complaint we herewith send you, - _having given us much trouble upon the same_, we desire you will - inquire into the same, and see justice done her, believing she may - have had her brandy stole from her by the sailors.--We are your - affectionate friends[!], - - R. C., T. F." - -It would be difficult to fancy such a letter as the above proceeding -from officialdom in the year of grace eighteen hundred and sixty-four. -In another letter we find the authorities affectionately scolding an -agent because "he had not provided a sufficiency of pork and beef for -the prince" (who this pork-loving prince was does not appear); in -another, because "he had bought powder at Falmouth that would have been -so much cheaper in London." In other cases they act as public guardians -of morality and loyalty, suspending one because "he had stirred up a -mutiny between a captain and his men, _which was unhandsome conduct in -him_;" bringing one Captain Clies to trial, inasmuch as "he had spoken -words reflecting on the royal family, which the Postmasters-General -_took particular unkind of him_," and can by no means allow; and -reprimanding another captain for "breaking open the portmanteau of a -gentleman-passenger, and spoiling him of a parcel of snuff." What with -all these cares and duties, the Postmasters-General of those days could -scarcely have had an easy time of it. - -This sole control over the resources of the packet-service explains much -in the history of the _franking system_, which would be quite -unintelligible without the information just given. The Treasury warrants -of that day franked the strangest commodities--articles which certainly -would not be dropped into any letter-box, and which would neither be -stamped nor sorted in the orthodox way. The following list of a few -franked commodities is culled from a still larger number of such in the -packet "agent's book," found amongst the old records to which reference -has already been made:-- - - "_Imprimis._ Fifteen couple of hounds, going to the King of the - Romans with a free pass. - - "_Item._ Two maid servants, going as laundresses to my Lord - Ambassador Methuen. - - "_Item._ Doctor Crichton, carrying with him _a cow_ and divers - necessaries. - - "_Item._ Two bales of stockings, for the use of the Ambassador to - the Crown of Portugal.[43] - - "_Item._ A deal case, with ffour flitches of bacon, for Mr. - Pennington of Rotterdam." - -Whilst referring to the subject of letter-franking, we may as well -notice here, that before the control of the packet-service passed out of -the hands of the Post-Office authorities, and when the right of franking -letters became the subject of legislative enactments, we hear no more of -these curious consignments of goods. The franking system was henceforth -confined to passing free through the post any letter which should be -indorsed on the cover with the signature of a member of either House of -Parliament. As it was not then made a rule absolute that Parliament -should be in session, or that the correspondence should necessarily be -on the affairs of the nation in order to insure immunity from postage, -this arrangement led to various forms of abuse. Members signed huge -packets of covers at once, and supplied them to friends and adherents in -large quantities. Sometimes they were sold. They have been known to have -been given to servants in lieu of wages, the servants selling them again -in the ordinary way of business. Nor was this all. So little precaution -seems to have been used, that thousands of letters passed through the -Post-Office with forged signatures of members.[44] To such an extent did -this and kindred abuses accumulate, that, in 1763, the worth of franked -correspondence passing through the post was estimated at 170,000_l._ -During the next year--viz. in 1764--Parliament enacted that no letter -should pass free through the Post-Office unless the whole address was in -the member's own handwriting and his signature attached likewise. Even -these precautions, though lessening the frauds, were not sufficient to -meet the evil, for fresh regulations were thought necessary in 1784. -This time it was ordered that all franks should be dated, the month to -be given in full; and further, that all such letters should be put into -the post on the day they were dated. From 1784 to the date of penny -postage no further regulations were made concerning the franked -correspondence, the estimated value of which during these years was -80,000_l._ annually. - -The rates of postage ordered by the Government of Queen Anne continued -in force for eighteen years after it was designed by the Act that they -should cease, and it was only in 1761, at the commencement of the reign -of George III., that any alteration was made. Even then the rates were -increased instead of diminished. 1 Geo. III. c. 25 provides, that the -improvement of correspondence is a matter of such great concernment and -so highly necessary for the extension of trade and commerce, that the -statutes of Queen Anne need repealing to some extent, and especially as, -through vast accessions of territory, no posts and post-rates are -arranged to all his Majesty's dominions. The improvements and -alterations made at this time may thus be summed up, viz.:-- - -1. Additions are made to the vessels on the American station. Other and -cheaper rates of postage are established between London and North -America and all his Majesty's territories in America. - -2. Concerning letters brought by private ships from any foreign part, no -ship or vessel shall be permitted to make entry in any port of Great -Britain, or to unload any of its cargo, until all letters and packets -brought by such ship, or any passenger on board such ship, are -delivered into the hands of the deputy-postmaster of the port, and until -the captain shall receive the deputy's receipt for the same. In cases -where the vessel "is liable to the performance of quarantine," the first -step must be to deliver the letters into the hands of the superintendent -of the quarantine, to be by him despatched to the Post-Office. A penalty -of 20_l._ with full costs to be inflicted on any master not delivering a -letter or packet of letters according to this Act, one moiety to go to -the King and the other to the person informing. - -3. The roads are to be re-surveyed, under the arrangements laid down in -Queen Anne's Act, for the purpose of settling the rates of postage -afresh. - -4. Letters to be charged according to the post-stages travelled, or -shorter distances to be paid for; thus:-- - - _s._ _d._ - For the conveyance of every single letter not exceeding - 15 miles 0 1 - " " double letter 0 2 - " " ounce 0 4 - " " single letter, 30 miles and - under 40 miles 0 2 - " " double letter 0 4 - " " ounce 0 8 - " " single letter, 40 miles and - under 80 miles 0 3 - " " double letter 0 6 - " " ounce 1 0 - -And so on. - -These rates were again altered in the twenty-fourth year of the reign of -George III. for the raising of revenue to defray his Majesty's expenses, -the alteration, which took effect on the introduction of mail-coaches, -consisting of the addition of one penny to every existing charge.[45] - -5. Permission is given to settle penny post-offices in other towns in -England, on the same basis as the London penny-post establishment. The -permission thus granted was soon applied, and long before the -establishment of uniform penny-postage, there were at least a thousand -penny-posts in existence in different towns. The principle which guided -the Department in establishing penny-posts was to select small towns and -populous neighbourhoods not situated in the direct line of general post -conveyances, which were desirous of obtaining extra facilities, and -granting such posts provided that they did not afford the means for -evading the general post. The only requisite was, that the authorities -should have a reasonable hope that the proposed post would yield -sufficient to pay for its maintenance--a thing considered settled if the -receipts on its first establishment would pay two-thirds of the entire -charges. - -6. The weight of any packet or letter to be sent by the London -penny-post, or any of the new penny-posts to be established under this -improved Act, must not now exceed _four ounces_. - -In 1749, the Act restraining any other but officers of the Post-Office -from letting out horses to hire for the purpose of riding post, is -stated not to refer to cases where chaises, "calashes," or any other -vehicles, are furnished. Vehicles to drive may be provided on either -post-roads or elsewhere by any person choosing to engage in the trade. -In 1779, all Acts giving exclusive privileges to the Postmaster-General -and his deputies as to the letting of post-_horses_ for hire are -henceforth repealed. - -In the year 1766 the first penny-post was established in Edinburgh by -one Peter Williamson, a native of Aberdeen. He kept a coffee-shop in the -hall of the Parliament House, and as he was frequently employed by -gentlemen attending the courts in sending letters to different parts of -the city, and as he had doubtless heard something of the English -penny-posts, he began a regular post with hourly deliveries, and -established agents at different parts of the city to collect letters. He -employed four carriers, who appeared in uniform, to take the letters -from the different agents, and then to deliver them as addressed. For -both these purposes they were accustomed to ring a bell as they -proceeded, in order to give due notice of their approach. The -undertaking was so successful, that other speculators were induced to -set up rival establishments, which, of course, led to great confusion. -The authorities saw the success of the undertaking, and, aware of its -importance, they succeeded in inducing Williamson to take a pension for -the good-will of his concern, and then merged it in the general -establishment. - -We cannot attempt more than a short _resume_ of the incidents in the -previous history of the Scotch Post-Office, although the annals of the -seventeenth century contain little of interest, and might, therefore, -soon be presented to the reader. The first regular letter-post was -established in the reign of James I. (of England). In 1642, owing to the -sending of forces from Scotland to put down the Irish Rebellion, it was -found that the post arrangements in the south-west of Scotland were -defective in the extreme. The Scotch Council proposed to establish a -line of posts between Edinburgh and Portpatrick, and Portpatrick and -Carlisle, and the English, being more immediately concerned in the -Rebellion, agreed to bear the whole expense.[46] In the Privy Council -records of the period, we find a list of persons recommended by the -Commissioners for appointment on the two lines of road as postmasters, -"such persons being the only ones fit for that employment, as being -innkeepers and of approved honesty." Seven years afterwards we find the -Post-Office at Edinburgh was under the care of John Mean, husband of the -woman who discharged her stool at the bishop's head when the -service-book was introduced into St. Giles's in 1637. He seems to have -himself borne the charges of attending to the office "without any -reasonable allowance therefor;" and petitioning the Committee of Estates -to that effect, they allowed him to retain the "eighth penny on all -letters sent from Edinburgh to London (no great number), and the fourth -penny upon all those coming from London to Edinburgh." At the -Restoration the office was bestowed on Robert Main, and considerable -improvements were made under his management, although only with existing -posts. Little was done for other parts of Scotland. A traveller in -Scotland so late as 1688, commenting on the absence of stage or other -coaches on most Scotch roads, says,[47] that "this carriage of persons -from place to place might be better spared, were there opportunities and -means for the speedier conveyance of business by letters. They have no -horse-posts besides those which ply between Berwick and Edinburgh, and -Edinburgh and Portpatrick for the Irish packets.... From Edinburgh to -Perth, and so on to other places, they use foot-posts and carriers, -which, _though a slow way of communicating our concerns to one another, -yet is such as they acquiesce in till they have a better_." Our -traveller is somewhat wrong in his date, for in 1667 a horse-post to -Aberdeen from Edinburgh, twice a week, was started, with the consent of -Patrick Graham, of Inchbrakie, his Majesty's Postmaster-General, "for -the _timous_ delivery of letters and receiving returns of the _samen_." -Two years afterwards Inverness got dissatisfied with the want of postal -communication, when Robert Main, the Edinburgh postmaster, was -commissioned to establish a constant foot-post between Edinburgh and -Inverness, going once a week, "wind and weather serving."[48] "Wind and -weather serving" is an amusing qualification, as pointed out by Mr. -Chambers, considering that there was only one ferry of six or seven -miles, and another of two miles, to cross. In 1661, we find the -Edinburgh postmaster useful in another capacity, for in that year the -Privy Council grant a warrant to him "to put to print and publish _ane -diurnal weekly_, for preventing false news which may be invented by evil -and disaffected persons." - -We must now pass over many years, as not offering any incidents of any -moment. In the year 1730 we find that the Scotch establishment yielded -the sum of 1,194_l._ as the whole gross revenue. From about the year -1750, the mails began to be carried from stage to stage, as in England, -by relays of fresh horses and different post-boys, though not entirely -to the exclusion of the post-runners, of whom we have previously spoken. - -In 1723, the Edinburgh Post-Office occupied the first-floor of a house -near the cross, above an alley which still bears the name of the -Post-Office Close. It was afterwards removed to a floor on the south -side of the Parliament Square, which was fitted up shop-fashion, and -where the letters were given out from behind an ordinary shop counter, -one letter-carrier doing all the out-door work. The Post-Office was -removed to its present situation in 1821. Towards the close of 1865, it -is expected, the handsome building now rising up near the old office -will be finished and opened for postal purposes.[49] - -Even less interest attaches to the early annals of the Irish -Post-Office. During the seventeenth and eighteenth centuries, it was -certainly more remunerative than the Scotch, though much less -remunerative than the English departments. Previous to the introduction -of mail-coaches, all mails were conveyed, or supposed to be conveyed, by -the postmasters, to whom certain special allowances were made for each -particular service. "There were no contracts, and no fixed rules as to -time. Three miles and a half (per hour) seems to have been the pace -acknowledged to have been sufficient. The bags were usually conveyed by -boys. In the immediate neighbourhood of the metropolis, some sort of -cart was used, but with this exception the bags were carried either on -ponies or mules, or on foot."[50] The same authority tells us further -that, "at this time, the bags were carried to Cork, Belfast, Limerick, -and Waterford, six days a week; and three days a week to Galway, -Wexford, and Enniskillen. There were three posts to Killarney; but for -this the Government refused to pay anything. The postmaster had a salary -of 3_l._ a-year, but the mail was carried by foot-messengers, who were -maintained at the cost of the inhabitants and of the news-printers in -Cork. Carrick-on-Shannon was the only town in county Leitrim receiving a -mail, and this it did twice a week. Now it has two every day. Except at -the county-town, there was no post-office in the whole county of Sligo; -and there were but sixteen in the province of Connaught, where there are -now one hundred and seventy-one." - - -FOOTNOTES: - -[34] These exceptions were again made in the Act 1 Vic. c. 33. s. 2, and -still remain the law. - -[35] This clause was repealed in the reign of George II. - -[36] The office of Post-Office Surveyor, of which we here see the -origin, still exists (though the officers now so designated have very -different duties) among the most responsible and lucrative appointments -in the Department. - -[37] "There cannot be devised," says Blackstone, "a more eligible method -than this of raising money upon the subject; for therein both the -Government and the people find a mutual benefit. The Government requires -a large revenue, and the people do their business with greater ease, -expedition, and cheapness than they would be able to do if no such tax -existed."--_Com._ vol. i. p. 324. - -[38] At this time, and for some years subsequently, the mails were -carried on horseback in charge of post-boys. Some of these post-boys -were sad rogues, who, besides taking advantage of confusion in the two -posts, were accustomed to carry letters themselves concealed upon them -and for charges of course quite unorthodox. In old records of the -Post-Office, principally the Surveyor's Book, referring to country -post-offices from the year 1735, there are long complaints from the -surveyor on this head. The following, "exhibiting more malice than good -grammar," may be taken as a specimen, and will suffice to show the way -things were managed at that date:--"At this place (Salisbury) found the -post-boys to have carried on vile practices in taking the _bye-letters_, -delivering them in this cittye and taking back answers, especially the -_Andover_ riders. On the 15th found on Richard Kent, one of the Andover -riders, 5 bye-letters, all for this cittye. Upon examining the fellow, -he confessed he had made it a practice, _and persisted to continue in -it_, saying he had noe wages from his master. I took the fellow before -the Magistrate, proved the facts, and he was committed, but pleading to -have no money or friends, desired a punishment to be whipped, which -accordingly _he was to the purpose_. Wrote the case to Andover and -ordered the fellow to be dismissed, but no regard was had thereto, but -the next day the same rider came post, ran about the cittye for letters -_and was insolent_. Again he came post with two gentlemen, made it his -business to take up letters; the fellow, however, instead of returning -to Andover, gets two idle fellows and rides off with three horses, which -was a return for his master not obeying my instructions." Our shrewd -surveyor thus amply got his revenge, and the Post-Office and Mr. Allen -suffer no more from the delinquencies of Richard Kent.--_From Mr. -Scudamore's Notes._ - -[39] _Gentleman's Magazine_, August, 1760. - -[40] Mr. Scudamore, of the General Post-Office, to whom we are indebted -for much of the _minutiae_ in question, has been successful in his -efforts to preserve permanently some of the old records of the -Post-Office; and the result of his labours may be found in the Appendix -to the Postmaster-General's First Report. - -[41] Son of the James Craggs who succeeded Addison as Secretary of -State, and who obtained such an unusual portion of the poetical praise -of Pope. The son came in for a share also, as, for example:-- - - "Statesman, yet friend to truth! of soul sincere, - In action faithful, and in honour clear." - -[42] Campbell, in his _Tales of the Highlands_, relates two or three -incidents which show that little improvement had taken place in post -communications in some part of Scotland even a hundred years later. The -English order of posts and express posts seem there to have been -reversed, express work being done the worst. For instance: "Near -Inverary, we regained a spot of comparative civilization, and came up -with the post-boy, whose horse was quietly grazing at some distance, -whilst Red Jacket himself was immersed in play with other lads. 'You -rascal,' I said to him, 'are you the post-boy and thus spending your -time?' 'Nae, nae, sir,' he answered, 'I'm no the post, I'm only an -Express!'" - -[43] What the Right Hon. John Methuen wanted with two bales of stockings -is, of course, a mystery, if he was not embarking in the haberdashery -line. It may be he was desirous of regaining the favour of the -Portuguese Court, by supplying the whole with English stockings. This -was the Methuen who gave his name to a well-known treaty, which, by the -way, was found so distasteful to the Portuguese that when, in 1701, he -carried it to Pedro II. for his signature, that monarch gave vent to his -displeasure by kicking it about the room.--_Marlborough Despatches_, -vol. v. p. 625. - -[44] At the investigation in 1763 it was related that "one man had, in -the course of five months, counterfeited 1,200 dozens of franks of -different members of Parliament." - -[45] As an example of the summary proceedings of those days, we may here -just note the remarks which Mr. Pitt made in his place in Parliament -when he proposed this increase, calculating that the change would -produce at least 120,000_l._ additional revenue out of the Post-Office. -The tax upon letters, said he, could be calculated with a great degree -of certainty, and the changes he had to propose would _by no means -reduce the number sent. It was idle to suppose that the public would -grumble in having to pay just one penny additional for valuable letters -safely and expeditiously conveyed._ He proposed "to charge all letters -that went one stage and which now paid one penny in future the sum of -2_d._, and this would bring in the sum of 6,230_l._ All that now pay -2_d._ paying an additional penny would yield 8,923_l._ Threepenny -letters paying another penny would produce 33,963_l._ The increase of -fourpenny letters would produce 34,248_l._" The cross-roads he could not -speak of with great certainty, but he thought they might calculate on at -least 20,000_l._ from that source, and so on, till the estimated sum was -reached. - -[46] _Domestic Annals of Scotland._ By Mr. R. Chambers. Vol. ii. p. 142. - -[47] _A Short Account of Scotland_, published in London in 1702. - -[48] The wording of the qualifying clauses in the proclamations of -stage-coaches, &c. are very various, and sometimes exceedingly amusing. -In England the Divine Hand was generally recognised in the formula of -"God willing," or, "If God should permit." On the contrary, the human -element certainly preponderated--whether it was meant so or not--in the -announcement made by a carrying communication between Edinburgh and a -northern burgh, when it was given out that "a waggon would leave the -Grass market for Inverness every Tuesday, God willing, but on Wednesday -_whether or no_." - -[49] It will be remembered that the late lamented Prince Consort laid -the foundation-stone of this structure in 1862, being the last occasion -on which he assisted at any public ceremony. For further information of -the Scotch Office, see Mr. Lang's _Historical Summary of the Post-Office -in Scotland_. - -[50] Appendix to Postmaster-General's Third Report, supplied by Mr. -Anthony Trollope, then one of the Post-Office Surveyors for Ireland. - - - - -CHAPTER V. - -PALMER AND THE MAIL-COACH ERA. - - -We have now arrived at a most important epoch in the history of the -English Post-Office. Fifteen years after the death of Mr. Allen, John -Palmer, one of the greatest of the early post-reformers rose into -notice. To give anything approaching to a proper account of the eminent -services that Palmer rendered towards the development of the resources -of the Post-Office, it is requisite that we notice the improvements -which had been made up to his time in the internal communications of the -country. Trade and commerce, more than ever active, were the means of -opening out the country in all directions. Civil engineering had now -acquired the importance and dignity of a profession. This was the age of -Brindley and Smeaton, Rennie and Telford, Watt and Boulton. Roads were -being made in even the comparatively remote districts of England; -bridges were built in all parts of the country; the Bridgewater and -other canals were opened for traffic, whilst many more were laid out. -And what is perhaps more germane to our special subject, many -improvements were apparent in the means of conveyance during the same -period.[51] While, on the one hand, the ordinary stage-coach had found -its way on to every considerable road, and was still equal to the usual -requirements, the speed at which it travelled did not at all satisfy the -enterprising merchants of Lancashire and Yorkshire. So early as 1754, a -company of merchants in Manchester started a new vehicle, called the -"Flying Coach," which seems to have owed its designation to the fact -that the proprietors contemplated an acceleration in the speed of the -new conveyance to four or five miles an hour. It started with the -following remarkable prospectus:--"However incredible it may appear, -this coach will actually (barring accidents) arrive in London in four -days and a half after leaving Manchester." In the same year a new coach -was brought out in Edinburgh, but the speed at which it travelled was no -improvement on the old rate. It was of better appearance, however; and -the announcement heralding its introduction to the Edinburgh public -sought for it general support on the ground of the extra comfort it -would offer to travellers. "The Edinburgh stage-coach," says the -prospectus, "for the better accommodation of passengers, will be altered -to a new genteel two-end glass machine, hung on steel springs, -exceedingly light and easy, to go (to London) in ten days in summer and -twelve in winter."[52] Three years afterwards, the Liverpool merchants -established another "flying machine on steel springs," which was -designed to, and which really did, eclipse the Manchester one in the -matter of speed.[53] Three days only were allowed for the journey -between Liverpool and London. Sheffield and Leeds followed with their -respective "fly-coaches," and by the year 1784 they had not only become -quite common, but most of them had acquired the respectable velocity of -eight miles an hour. - -The post-boy on horseback travelling at the rate of three or four miles -an hour, had been an institution since the days of Charles II., and now, -towards the close of the eighteenth century, the Post-Office was still -clinging to the old system. It was destined, however, that Mr. Palmer -should bring about a grand change. Originally a brewer, Mr. Palmer was, -in 1784, the manager of the Bath and Bristol theatres. He seems to have -known Mr. Allen, and to have been fully acquainted with his fortunate -Post-Office speculations. In this way, to some extent, but much more, -doubtless, through his public capacity as manager of two large theatres, -he became acquainted with the crude postal arrangements of the period. -Having frequently to correspond with the theatrical stars of the -metropolis, and also to journey between London and the then centres of -trade and fashion, he noticed how superior the arrangements were for -travelling to those under which the Post-Office work was done, and he -conceived the idea of improvements. - -Palmer found that letters, for instance, which left Bath on Monday night -were not delivered in London until Wednesday afternoon or night; but the -stage-coach which left through the day on Monday, arrived in London on -the following morning.[54] Not only did the existing system of mail -conveyance strike him as being exceedingly slow, but insecure and -otherwise defective. As he afterwards pointed out, he noticed that when -tradesmen were particularly anxious to have a valuable letter conveyed -with speed and safety, they never thought of giving it into the safe -keeping of the Post-Office, but were in the habit of enclosing it in a -brown paper parcel and sending it by the coach: nor were they deterred -from this practice by having to pay a rate of carriage for it far higher -than that charged for a post-letter. Robberies of the mails were so -frequent, that even to adopt the precaution recommended by the -Post-Office authorities, and send valuable remittances such as a bank -note, bills of exchange, &c. _at twice_, was a source of endless trouble -and annoyance, if it did not prove entirely ineffective. Who can wonder -at the Post-Office robberies when the carelessness and incompetency of -the servants of the Post-Office were taken into account? A curious -robbery of the Portsmouth mail in 1757 illustrates the careless manner -in which the duty was done. The boy who carried the mail had dismounted -at Hammersmith, about three miles from Hyde Park Corner, and called for -beer, when some thieves took the opportunity to cut the mail-bags from -off the horse's crupper, and got away undiscovered. The French mail on -its outward-bound passage _via_ Dover was more than once stopped and -rifled before it had got clear of London. A string stretched across a -street in the borough through which the mail would pass has been known -to throw the post-boy from his horse, who, without more ado, would -coolly retrace his steps, empty-handed, to the chief office, and report -the loss of his bags. What could be expected, however, in the case of -raw, unarmed post-boys, when carriages were stopped in broad daylight in -Hyde Park, and even in Piccadilly itself, and pistols pointed at the -breasts of the nobility and gentry _living close at hand_? Horace -Walpole relates that he himself was robbed in Hyde Park in broad -daylight, in a carriage with Lord Eglinton and Lady Albemarle. - -Mr. Palmer, however, was ready with a remedy for robbery, as well as for -the other countless defects in the existing postal arrangements. He -began his work of reform in 1783, by submitting a full scheme in a -lengthy report to Mr. Pitt, who was at that time Prime Minister. He -commenced by describing the then existing system of mail transmission. -"The post," he says, "at present, instead of being the quickest, is -almost the slowest conveyance in the country; and although, from the -great improvements in our roads, other carriers have proportionately -mended their speed, the post is as slow as ever." The system is also -unsafe; robberies are frequent, and he saw not how it could be otherwise -if there were no changes. "The mails," continued Palmer, "are generally -intrusted to some idle boy without character, mounted on a worn-out -hack, and who, so far from being able to defend himself, or escape from -a robber, is more likely to be in league with him." If robberies were -not so frequent as the circumstances might lead people to suppose, it -was simply because thieves had found, by long practice, that the -mails were scarcely worth robbing--the booty to be obtained being -comparatively worthless, inasmuch as the public found other means of -sending letters of value. Mr. Palmer, as we have before stated, knew of -tradesmen who sent letters by stage-coach. Why, therefore, "should not -the stage-coach, well protected by armed guards, under certain -conditions to be specified, carry the mail-bags?" Though by no means the -only recommendation which Mr. Palmer made to the Prime Minister, this -substitution of a string of mail-coaches for the "worn-out hacks" was -the leading feature of his plans. Evincing a thorough knowledge of his -subject (however he may have attained that knowledge), and devised with -great skill, the measures he proposed promised to advance the postal -communication to as high a pitch of excellence as was possible. To lend -to the scheme the prospect of _financial_ success, he laboured to show -that his proposals, if adopted, would secure a larger revenue to the -Post-Office than it had ever yet yielded; whilst, as far as the public -were concerned, it was evident that they would gladly pay higher for a -service which was performed so much more efficiently. Mr. Pitt, who -always lent a ready ear to proposals which would have the effect of -increasing the revenue, saw and acknowledged the merits of the scheme -very early. But, first of all, the Post-Office officials must be -consulted; and from accounts[55] which survive, we learn how bitterly -they resented proposals not coming from themselves. They made many and -vehement objections to the sweeping changes which Palmer's plans would -necessitate. "The oldest and ablest officers in the service" represented -them "not only to be impracticable, but dangerous to commerce and the -revenue."[56] The accounts of the way in which they met some of his -proposals is most amusing and instructive. Thus, Palmer recommended Mr. -Pitt to take some commercial men into his councils, and they would not -fail to convince him of the great need there was for change. He also -submitted that the suggestions of commercial men should be listened to -more frequently, when postal arrangements for their respective districts -should be made. Mr. Hodgson, one of the prominent officers of the -Post-Office, indignantly answered that "it was not possible that any set -of gentlemen, merchants, or outriders (commercial travellers, we -suppose), could instruct officers brought up in the business of the -Post-Office. And it is particularly to be hoped," said this gentlemen, -with a spice of malice, "if not presumed, that the surveyors need no -such information." He "ventured to say, that the post as then managed -was admirably connected in all its parts, well-regulated, carefully -attended to, and not to be improved by any person unacquainted with the -whole. It is a pity," he sarcastically added, "that Mr. Palmer should -not first have been informed of the nature of the business in question, -to make him understand how very differently the post and post-offices -are conducted to what he apprehends." - -Mr. Palmer might not be, and really was not, acquainted with all the -working arrangements of the office he was seeking to improve: yet it -was quite patent to all outside the Post-Office that the entire -establishment needed remodelling. Mr. Hodgson, however, and his -_confreres_ "were amazed," they said, "that any dissatisfaction, any -desire for change, should exist." The Post-Office was already perfect in -their eyes. It was, at least, "almost as perfect as it can be, without -exhausting the revenue arising therefrom." They could not help, -therefore, making a united stand against any such new-fangled scheme, -which they predict "will fling the commercial correspondence of the -country into the utmost confusion, and which will justly raise such a -clamour as the Postmaster-General will not be able to appease." Another -of the principal officers, a Mr. Allen, who seems to have been more -temperate in his abuse of the new proposals, gave it as his opinion, -"that the more Mr. Palmer's plan was considered, the greater number of -difficulties and objections started to its ever being carried completely -into execution." - -From arguing on the general principles involved, they then descend to -combat the working arrangements of the theatre-manager with even less -success. Mr. Palmer complains that the post is slow, and states that it -ought to outstrip all other conveyances. Mr. Hodgson "could not see -_why_ the post should be the swiftest conveyance in England. Personal -conveyances, I apprehend, should be much more, and particularly with -people travelling on business." Then followed Mr. Draper, another -official, who objected to the coaches as travelling too fast. "The -post," he said, "cannot travel with the expedition of stage-coaches, on -account of the business necessary to be done in each town through which -it passes, and without which correspondence would be thrown into the -utmost confusion." Mr. Palmer had proposed that the coaches should -remain fifteen minutes in each town through which they passed, to give -time to transact the necessary business of sorting the letters. Mr. -Draper said that half an hour was not enough, as was well enough known -to persons at all conversant with Post-Office business. Living in this -age of railways and steam, we have just reason to smile at such -objections. Then, as to the appointment of mail-guards, Mr. Palmer -might, but Mr. Hodgson could, see no security, though he could see -endless trouble, expense, and annoyance in such a provision. "The man -would doubtless have to be waited for at every alehouse the coach -passed." He might have added that such had been the experience with the -post-boys under the _regime_ which he was endeavouring to perpetuate. -Mr. Palmer stipulated, that the mail-guards should in all cases be well -armed and accoutred, and such officers "as could be depended upon as -trustworthy." But the Post-Office gentlemen objected even to this -arrangement. "There were no means of preventing robbery with effect,[57] -as the strongest cart or coach that could be made, lined and bound with -iron, might easily be broken into by determined robbers," and the -employment of armed mail-guards would only make matters worse. Instead -of affording protection to the mails, the following precious doctrine -was inculcated, that the crime of murder would be added to that of -robbery; "for," said the wonderful Mr. Hodgson, "when once desperate -fellows had determined upon robbery, resistance would lead to murder"! -These were peace and non-resistance principles with a vengeance, but -principles which in England, during the later years of Pitt's -administration, would seldom be heard, except in furtherance of some -such selfish views as those which the Post-Office authorities held in -opposition to Mr. Palmer's so-called innovations. - -Mr. Palmer's propositions also included the timing of the mails at each -successive stage, and their departure from the country properly -regulated; they would thus be enabled to arrive in London at regular -specified times, and not at any hour of the day or night, and might, to -some extent, be delivered simultaneously. Again: instead of _leaving_ -London at all hours of the night, he suggested that all the coaches for -the different roads should leave the General Post-Office at the same -time; and thus it was that Palmer established what was, to the stranger -in London for many years, one of the first of City sights. Finally, Mr. -Palmer's plans were pronounced impossible. "It was an impossibility," -his opponents declared, "that the Bath mail could be brought to London -in sixteen or eighteen hours." - -Mr. Pitt was less conservative than the Post-Office authorities. He -clearly inherited, as an eloquent writer[58] has pointed out, his -father's contempt for impossibilities. He saw, with the clear vision for -which he was so remarkable, that Mr. Palmer's scheme would be as -profitable as it was practicable, and he resolved, in spite of the -short-sighted opposition of the authorities, that it should be adopted. -The Lords of the Treasury lost no more time in decreeing that the plan -should be tried, and a trial and complete success was the result. On the -24th of July, 1784, the Post-Office Secretary (Mr. Anthony Todd) issued -the following order:--"His Majesty's Postmasters-General, being inclined -to make an experiment for the more expeditious conveyance of mails of -letters by stage-coaches, machines, &c., have been pleased to order that -a trial shall be made upon the road between London and Bristol, to -commence at each place on Monday, the 2d of August next." Then follows a -list of places, letters for which can be sent by these mail-coaches, and -thus concludes: "All persons are therefore to take notice, that the -letters put into any receiving-house before six of the evening, or seven -at this chief office, will be forwarded by these new conveyances; all -others for the said post-towns and their districts put in afterwards, or -given to the bellmen, must remain until the following post at the same -hour of seven." - -The mail-coaches commenced running according to the above advertisement, -not, however, on the 2d, but on the 8th of August. One coach left London -at eight in the morning, reaching Bristol about eleven the same night. -_The distance between London and Bath was accomplished in fourteen -hours._ The other coach was started from Bristol at four in the -afternoon on the same day, reaching London in sixteen hours. - -Mr. Palmer was installed at the Post-Office on the day of the change, -under the title of Controller-General. It was arranged that his salary -should be 1,500_l._ a-year, together with a commission of two and a half -per cent. upon any excess of net revenue over 240,000_l._--the sum at -which the annual proceeds of the Post-Office stood at the date of his -appointment. - -The rates of postage, as we have before incidentally pointed out, were -slightly raised--an addition of a penny to each charge; but, -notwithstanding this, the number of letters began at once, and most -perceptibly, to increase. So great was the improvement in security and -speed, that, for once, the additions to the charges were borne -ungrudgingly. Coaches were applied for without loss of time by the -municipalities of many of our largest towns,[59] and when they were -granted--as they appear to have been in most of the instances--they were -started at the rate of six miles an hour. This official rate of speed -was subsequently increased to eight, then to nine, and at length to ten -miles an hour.[60] - -The opposition to Mr. Palmer's scheme, manifested by the Post-Office -officials before it was adopted, does not seem to have given way before -the manifest success attending its introduction. Perhaps Mr. Palmer's -presence at the Council Board did not conduce to the desirable unanimity -of feeling. However it was, he appears for some time to have contended -single-handed with officials determinately opposed to him. When goaded -and tormented by them, he fell into their snares, and attempted to carry -his measures by indirect means. In 1792, when his plans had been in -operation about eight years, and were beginning to show every element of -success, it was deemed desirable that he should surrender his -appointment. A pension of 3,000_l._ was granted to him in consideration -of his valuable services. Subsequently he memorialized the Government, -setting forth that his pension fell far short of the emoluments which -had been promised to him, but he did not meet with success. Mr. Palmer -never ceased to protest against this treatment; and his son, -Major-General Palmer, frequently urged his claims before Parliament, -until, in 1813, after a struggle of twenty years, the House of Commons -voted him a grant of 50,000_l._ Mr. Palmer died in 1818. - -Now that Mr. Palmer was gone from the Post-Office, his scheme was left -to incompetent and unwilling hands. All the smothered opposition broke -out afresh; and if it had been less obvious how trade and commerce, and -all the other interests promoted by safe and quick correspondence, were -benefited by the new measures; and if it had not been for the vigilant -supervision of the Prime Minister--who had let the reformer go, but had -no intention of letting his reforms go with him--all the improvements of -the past few years might have been quietly strangled in their infancy. -Though we know not what the country lost in losing the guiding-spirit, -it is matter of congratulation that the main elements of his scheme were -fully preserved. Though the Post-Office officials scrupled not to -recommend some return to the old system, Mr. Palmer's plans were fully -adhered to until the fact of their success became patent to both the -public and the official alike. In the first year of their introduction, -the net revenue of the Post-Office was about 250,000_l._ Thirty years -afterwards the proceeds had increased sixfold, to no less a sum than a -million and a half sterling! Though, of course, this great increase is -partly attributable to the increase of population, and the national -advancement generally, it was primarily due to the greater speed, -punctuality, and security which the new arrangements gave to the -service. Whilst, financially, the issue was successful, the result, in -other respects, was no less certain. In 1797, the greater part of the -mails were conveyed in one-half of the time previously occupied; in some -cases, in one-third of the time; and on the cross-roads, in a quarter of -the time, taken under the old system. Mails not only travelled quicker, -but Mr. Palmer augmented their number between the largest towns. Other -spirited reforms went on most vigorously. Three hundred and eighty -towns, which had had before but three deliveries of letters a-week, now -received one daily. The Edinburgh coach required less time by sixty -hours to travel from London, and there was a corresponding reduction -between towns at shorter distances. Ten years before the first Liverpool -coach was started, a single letter-carrier sufficed for the wants of -that place; before the century closed, _six_ were required. A single -letter-carrier sufficed for Edinburgh for a number of years;[61] now -_four_ were required. - -No less certain was it that the mails, under the new system, travelled -more securely. For many years after their introduction, not a single -attempt was made, in England, to rob Palmer's mail-coaches. It is -noteworthy, however, that the changes, when applied to Ireland, did not -conduce to the greater security of the mails. The first coach was -introduced into Ireland in 1790, and placed on the Cork and Belfast -roads, a few more following on the other main lines of road. Though -occasionally accompanied by as many as _four_ armed guards, the -mail-coaches were robbed, according to a competent authority, "as -frequently as the less-aspiring riding-post." - -Not many months after the establishment of mail-coaches, an Act -was passed through Parliament, declaring that all carriages and -stage-coaches employed to carry his Majesty's mails should henceforth be -exempt from the payment of _toll_, on both post- or cross-roads. -Previously, all post-horses employed in the same service travelled free -of toll. This Act told immediately in favour of the Post-Office to a -greater extent than was imagined by its framers. Innkeepers, who, in -England, were the principal owners of stage-coaches,[62] bargained for -the carriage of mails, very frequently at merely nominal prices. In -return, they enjoyed the advantages of the coach and its passengers, -travelling all roads free of toll. - -Arrived at the end of the century, we find the mail-coach system is now -an institution in the country. Other interests had progressed at an -equal rate. Travelling, as a rule, had become easy and pleasant. Not -that the service was performed without any difficulty or hindrance. On -the contrary--and it enters within the scope of our present object to -advert to them--the obstacles to anything like a perfect system seemed -insurmountable. Though the difficulties consequent on travelling, at the -beginning of the present century, were comparatively trifling on the -_principal post-roads_, yet, when new routes were chosen, or new -localities were designed to share in the common benefits of the new and -better order of things in the Post-Office, these same difficulties had -frequently to be again got over. Cross-roads in England were greatly -neglected--so much so, in fact, that new mail-coaches which had been -applied for and granted, were often enough waiting idle till the roads -should be ready to receive them. The Highway Act of 1663, so far as the -roads in remote districts were concerned, was completely in abeyance. -Early in the century we find the subject frequently mentioned in -Parliament. As the result of one discussion, it was decided that every -inducement should be held out to the different trusts to make and repair -the roads in their respective localities; while, on the other hand, the -Postmaster-General was directed by the Government to indict all -townships who neglected the duty imposed upon them. Under the Acts of 7 -& 8 George III. c. 43, and 4 George IV. c. 74, commissioners were -appointed to arrange for all necessary road improvements, having certain -privileges vested in them for the purpose. Thus, they recommended that -certain trusts should have loans granted to them, to be employed in -road-making and mending. Mr. Telford, at his death, was largely employed -by the Road Commissioners--the improvements on the Shrewsbury and -Holyhead road being under his entire superintendence. And it would seem -that the above-mentioned road needed improvement. When, in 1808, a new -mail-coach was put on to run between the two places, no fewer than -twenty-two townships had to be indicted by the Post-Office authorities -for having their roads in a dangerous and unfinished state. - -In Scotland and Ireland, great improvements had also been made in this -respect, considering the previously wretched state of both countries, -Scotland especially. At a somewhat earlier period, four miles of the -best post-road in Scotland--namely, that between Edinburgh and -Berwick--were described in a contemporary record as being in so ruinous -a state, that passengers were afraid of their lives, "either by their -coaches overturning, their horses stumbling, their carts breaking, or -their loads casting, and the poor people with burdens on their backs -sorely grieved and discouraged;" moreover, "strangers do often exclaim -thereat," as well they might. Things were different at the close of the -last century; still, the difficulties encountered in travelling, say by -the Bar, may well serve to show the internal state of the country. -"Those who are born to modern travelling," says Lord Cockburn,[63] "can -scarcely be made to understand how the previous age got on. There was no -bridge over the Tay at Dunkeld, or over the Spey at Fochabers, or over -the Findhorn at Forres. Nothing but wretched peerless ferries, let to -poor cotters, who rowed, or hauled, or pushed a crazy boat across, or -more commonly got their wives to do it.... There was no mail-coach north -of Aberdeen till after the battle of Waterloo.... I understand from -Hope, that after 1784, when he came to the bar, he and Braxfield rode a -whole north circuit; and that, from the Findhorn being in a flood, they -were obliged to go up its bank for about _twenty-eight miles_, to the -Bridge of Dulsie, before they could cross. I myself rode circuits when I -was an Advocate Depute, between 1807 and 1810." A day and a half was -still, at the end of the last century, taken up between Edinburgh and -Glasgow. In 1788, a direct mail-coach was put on between London and -Glasgow, to go by what is known as the west coast route, _via_ -Carlisle.[64] The Glasgow merchants had long wished for such a -communication, as much time was lost in going by way of Edinburgh. On -the day on which the first mail-coach was expected, a vast number of -them went along the road for several miles to welcome it, and then -headed the procession into the city. To announce its arrival on -subsequent occasions, a gun was fired. It was found a difficult task, -however, to drive the coach, especially in winter, over the bleak and -rugged hills of Dumfriesshire and Lanarkshire; the road, moreover, was -hurriedly and badly made, and at times quite impassable. Robert Owen, -travelling between his model village in Lanarkshire and England, tells -us[65] that it often took him two days and three nights, incessant -travelling, to get from Manchester to Glasgow in the coach, the greater -part of the time being spent north of Carlisle. On the eastern side of -the country, in the direct line between Edinburgh and London, a grand -new road had been spoken of for many years. The most difficult part, -viz. that between Edinburgh and Berwick, was begun at the beginning of -the present century, and in 1824, a good road was finished and opened -out as far south as Morpeth, in Northumberland. A continuation of the -road from Morpeth to London being greatly needed, the Post-Office -authorities engaged Mr. Telford, the eminent engineer, to make a survey -of the road over the remaining distance. The survey lasted many years. A -hundred miles of the new Great North Road, south of York, was laid out -in a perfectly straight line.[66] All the requisite arrangements were -made for beginning the work, when the talk of locomotive engines and -tramways, and especially the result of the locomotive contest at -Rainhill in the year 1829, had the effect of directing public and -official attention to a new and promising method of travelling, and of -preventing an outlay of what must have been a most enormous sum for the -purposes of this great work.[67] The scheme was in abeyance for a few -months, and this time sufficed to develop the railway project, and -demonstrate its usefulness to the postal system of the country. But we -are anticipating matters, and must, at any rate, speak for a moment of -the services of Mr. Macadam. The improvements which this gentleman -brought about in road-making had a very sensible effect on the -operations of the mail-coach service. Most of the post-roads were -_macadamized_ before the year 1820, and it was then that the service was -in its highest state of efficiency. Accelerations in the speed of the -coaches were made as soon as ever any road was finished on the new -principle. From this time, the average speed, _including stoppages_, was -nine miles, all but a furlong. The fastest coaches (known as the "crack -coaches" from this circumstance, and also for being on the best roads) -were those travelling, in 1836, between London and Shrewsbury -(accomplishing 154 miles in 15 hours), London and Exeter (171 miles in -17 hours), London and Manchester (187 miles in 19 hours), and London and -Holyhead (261 miles in 27 hours). On one occasion, the Devonport mail, -travelling with foreign and colonial letters, accomplished the journey -of 216 miles, including stoppages, in 21 hours and 14 minutes. - -In 1836, there were fifty four-horse mails in England, thirty in -Ireland, and ten in Scotland. In England, besides, there were forty-nine -mails of two horses each. In the last year of mail-coaches, the number -which left London every night punctually at eight o'clock was -twenty-seven; travelling in the aggregate above 5,500 miles, before they -reached their several destinations. We have already stated how the -contracts for _horsing_ the mail-coaches were conducted; no material -change took place in this respect up to the advent of railways. Early in -the present century, it was deemed desirable that the mail-coaches -should all be built and furnished on one plan. For a great number of -years, the contract for building and repairing a sufficient number was -given (without competition) to Mr. John Vidler. Though the Post-Office -arranged for building the coaches, the mail contractors were required to -pay for them; the revenue only bearing the charges of cleaning, oiling, -and greasing them, an expense amounting to about 2,200_l._ a-year. In -1835, however, on a disagreement with Mr. Vidler, the contract was -thrown open to competition, from which competition Mr. Vidler, for a -substantial reason, was excluded. The official control of the -coaches, mail-guards, &c., it may here be stated, was vested in the -superintendent of mail-coaches, whose location was at the General -Post-Office. - -Had Hogarth's pencil transmitted to posterity the _tout ensemble_ of a -London procession of mail-coaches, or of one of them at the door of the -customary halting-place (what Herring has done for the old Brighton -coach the "_Age_," with its fine stud of blood-horses, and a real -baronet for driver), the subject could not but have occasioned marked -curiosity and pleasure. No doubt he would have given a distinguished -place to the guard of the mail. The mail-guard was no ordinary -character, being generally _d'accord_ with those who thought or -expressed this opinion. Regarded as quite a public character, -commissions of great importance were oftentimes intrusted to him. The -country banker, for example, would trust him with untold wealth. Though -he was paid only a nominal sum by the Post-Office authorities for his -official services, he was yet enabled to make his position and place a -lucrative one, by the help of the regular perquisites and other -accidental windfalls which we need not further specify. Gathering _en -route_ scraps of local gossip and district intelligence, he was often -"private," and sometimes "special," correspondent to scores of different -people. The _Muddleton Gazette_, perhaps the only newspaper on his line -of road, was submissively dependent upon him. More of him anon: here we -would only add that he had special duties on special occasions. The -mail-coach was looked for most anxiously in times of great excitement. -During the trial of Queen Caroline, says Miss Martineau, "all along the -line of mails, crowds stood waiting in the burning sunshine for news of -the trial, which was shouted out to them as the coach passed."[68] -Again, at the different stages in the history of the Reform Bill, the -mail-roads were sprinkled over for miles with people who were on the -_qui vive_ for any news from London, and the coachman and guards on the -top of the coaches shouted out the tidings.[69] When the Ministry -resigned, many of the guards distributed handbills which they had -brought from London, stating the facts. - -In these days of cheap postage and newspapers in every household, it may -be difficult to comprehend the intense interest centring in the -appearance of the mail on its arrival at a small provincial town. The -leather bag of the Post-Office was almost the undisputed and peculiar -property of the upper ten thousand. When there was good reason to -suppose that any communication was on its way to some member of the -commonalty, speculation would be eager among the knot of persons met to -talk over the probable event. Thus we may understand with what eagerness -the mail would be looked for, and how the news, freely given out, -especially in times of war, would be eagerly devoured by men of all -ranks and parties. - -It only remains to notice, in conclusion, the annual procession of -mail-coaches on the king's birthday, which contemporaries assure us was -a gay and lively sight. One writer in the early part of the century goes -so far as to say that the cavalcade of mail-coaches was "a far more -agreeable and interesting sight to the eye _and the mind_ than the gaud -and glitter of the Lord Mayor's show," because the former "made you -reflect on the advantages derived to trade and commerce and social -intercourse by this _magnificent establishment_" (the Post-Office). -Hone, in his _Every-day Book_, writing of 1822, tells us that George -IV., who was born on the 12th of August, changed the annual celebration -of his birthday to St. George's-day, April 23d. "According to custom," -says he, "the mail-coaches went in procession from Millbank to Lombard -Street. About twelve o'clock, the horses belonging to the different -mails with entire new harness, and the postmen and postboys on horseback -arrayed in their new scarlet coats and jackets, proceed from Lombard -Street to Millbank and there dine; from thence, the procession being -re-arranged, begins to march about five o'clock in the afternoon, headed -by the general post letter-carriers on horseback. The coaches follow -them, filled with the wives and children, friends and relations, of the -guards or coachmen; while the postboys sounding their bugles and -cracking their whips bring up the rear. From the commencement of the -procession, the bells of the different churches ring out merrily and -continue their rejoicing peals till it arrives at the Post-Office again, -from whence the mails depart for different parts of the kingdom." Great -numbers assembled to witness the cavalcade as it passed through the -principal streets of the metropolis. The appearance of the coachmen and -guards, got up to every advantage, and each with a large bouquet of -flowers in his scarlet uniform, was of course greatly heightened by the -brilliancy of the newly-painted coach, emblazoned with the royal arms. - - -FOOTNOTES: - -[51] No one who has read _Roderick Random_ can forget the novelist's -description of his hero's ride from Scotland to London. As it is -generally believed to be a veritable account of a journey which Smollett -himself made about the middle of the last century, the reader may be of -opinion that the improvement here spoken of was not so great as it might -have been. Roderick, however, travelled in the "_stage-waggon_" of the -period. He and his faithful friend Strap having observed one of these -waggons a quarter of a mile before them, speedily overtook it, and, -ascending by means of the usual ladder, "tumbled into the straw under -the darkness of the tilt," amidst four passengers, two gentlemen and two -ladies. When they arrived at the first inn Captain Weazel desired a room -for himself and his lady, "with a separate supper;" but the impartial -innkeeper replied he "had prepared victuals for the passengers in the -waggon, without respect of persons." Strap walked by the side of the -waggon, changing places with his master when Roderick was disposed to -walk. The mistakes, the quarrels, and the mirth of the passengers, are -told by the novelist with a vivacity and humour which would have been -admirable but for their coarseness. After five days' rumbling in the -straw, the passengers get quite reconciled to each other; "nothing -remarkable happened during the remaining part of our journey, _which -continued six or seven days longer_." - -There were also a few bad roads. Arthur Young, in his famous _Tour in -the North of England_, has described a Lancashire turnpike-road of about -the same period in the following vigorous phraseology:--"I know not in -the whole range of language terms sufficiently expressive to describe -this infernal road. To look over a map and perceive that it is a -principal road, one would naturally conclude it to be at least decent; -but let me most seriously caution all travellers who may purpose to -travel this terrible country to avoid it as they would the devil, for a -thousand to one they will break their necks or their limbs by -over-throws or breakings-down. They will here meet with ruts which -actually measured four feet deep and floating with mud, and this only -from a wet summer; what, therefore, must it be after a winter? The only -mending which it in places receives is the tumbling in some loose -stones, which serve no other purpose but jolting a carriage in the most -intolerable manner. These are not merely opinions, but facts, for I -actually passed three carts broken down in these eighteen miles of -execrable memory." The road in question was that between Wigan and -Preston, then a regular post-road and now on the trunk line of mail -conveyance into Scotland. - -[52] Chambers' _Traditions of Edinburgh_, vol. i. p. 168. - -[53] Baines's _History of Lancashire_, p. 83. - -[54] The Bath post was no exception. The letters which left London at -two o'clock on Monday morning did not reach Worcester, Norwich, or -Birmingham till the Wednesday, Exeter not till Thursday, and Glasgow and -Edinburgh for about a week. - -[55] _Vide_ Report of the Committee of House of Commons in 1797, on "Mr. -Palmer's Agreement for the Reform and Improvement of the Post-Office and -its Revenue," p. 115. - -[56] Report of the Committee appointed to inquire into the state of the -Public Offices in 1788. - -[57] Post-Office robberies had been exceedingly numerous within a few -years of the change which Palmer succeeded in inaugurating. Though one -prosecution for a single robbery cost the authorities no less a sum than -4,000_l._, yet they regarded the occurrences as unavoidable and simply -matters of course. - -[58] Mr. M. D. Hill, in _Fraser's Magazine_, November, 1862. - -[59] The Liverpool merchants were the first to petition the Treasury for -the new mail-coach. "This petition being complied with in the course of -a few months, the letters from London reached Liverpool in thirty hours. -At first these coaches were small vehicles, drawn by two horses, which -were changed every six miles. They carried four passengers, besides the -coachman and guard, both dressed in livery, the latter being armed to -the teeth, as a security against highwaymen."--Baines's _History of -Liverpool_. In October, 1784, York applied for a mail-coach, to pass -through that place on its way to the North. - -[60] This velocity was not attained without considerable misgivings and -distrust on the part of travellers. When the eight was increased to ten -miles an hour, the public mind was found to be in different stages of -alarm and revolt. Vested interests indulged in the gloomiest forebodings -on those who should thus knowingly spurn the way of Providence. -Lord-Chancellor Campbell relates that he was frequently warned against -travelling in the mail-coaches improved by Palmer, on account of the -fearful rate at which they flew, and instances were supplied to him of -passengers who had died suddenly of apoplexy from the rapidity of the -motion. - -[61] Sir Walter Scott relates that a friend of his remembered the London -letter-bag arriving in Edinburgh, during the year 1745, with but one -letter for the British Linen Company. About the same time the Edinburgh -mail is said to have arrived in London, containing but one letter, -addressed to Sir William Pulteney, the banker. - -[62] In Ireland, on the contrary, the trade was in the hands of two or -three large contractors, who charged heavily for work only imperfectly -performed. Until the introduction of railways, the mail service of -Ireland, owing to the absurd system adopted, was always worked at a -greater cost, comparatively, than in England. In 1829, the Irish -service, of considerably less extent, cost four times as much as the -entire mail establishment of England. Mr. Charles Bianconi has been the -Palmer of Ireland. In the early part of the present century he observed -the want of travelling accommodation and formed plans for serving the -country by a regular system of passenger-cars. He succeeded in inducing -the different postmasters (who, up to the year 1830, had the conveyance -of mails in their own hands, getting certain allowances for the service -from Government, and then arranging for carriage in the cheapest way -possible) to let him carry their mails. This he did at a cheap rate, -stipulating, however, that he should not be required to run his cars at -any inconvenient time for passenger traffic. On the amalgamation of the -English and Irish Offices in 1830, Mr. Bianconi, who had now established -a good reputation, entered into contracts with the general authorities -to continue the work, though on a larger scale than ever, the extent of -which may be judged by the fact that in 1848 he had 1,400 horses -employed. The growth and extent of railway communication necessarily -affected his establishment, but, with unabated activity, Mr. Bianconi -directed his labours into new districts when his old roads were invaded -by the steam-engine and the rail. He is described to have been "ready at -a moment's notice to move his horses, cars, and men to any district, -however remote, where any chance of business might show itself." A year -or two ago this indefatigable man was still busy, and held several -postal contracts; his establishment (1860) consisting of 1,000 horses, -and between sixty and seventy conveyances, daily travelling 3,000 or -4,000 miles and traversing twenty-two counties. - -[63] _Memorials of his Time_, vol. i. p. 341. - -[64] Dr. Cleland, in his _Statistical Account of Glasgow_, tells us that -before this time, viz. in 1787, the course of post from London to -Glasgow was by way of Edinburgh, _five_ days in the week. Only five -mails arrived in Glasgow from London on account of no business being -transacted at the Edinburgh Office on Sundays. It now occurred, however, -to some one of the astute managers of the Post-Office, that the _sixth_ -mail, which the Sunday regulations of the Edinburgh Office prevented -being passed through that medium, might be sent by the mail-coach to -Carlisle, while a supplementary coach should travel every sixth night -between Carlisle and Glasgow. This was done, and the result was the -saving of an entire day between London and Glasgow. The other mails -continued, as usual, for twelve months longer, it having taken the -authorities the whole of that time to discover that the five mails, -which required _five_ days to reach Glasgow by way of Edinburgh, might, -like the sixth, be carried by way of Carlisle, in _four_ days. Dr. -Cleland, however, does not seem to have perceived that there might be -some other reason for adhering to the old route, such as increased -outlay, &c. - -[65] _Life of Robert Owen._ _Written by himself._ London, 1857. - -[66] Smiles' _Lives of the Engineers_. - -[67] _Ibid._ - -[68] _History of England during the Thirty Years' Peace_, vol. i. p. -257. - -[69] _Ibid._ vol. ii. p. 62. - - - - -CHAPTER VI. - -THE TRANSITION PERIOD AT THE POST-OFFICE. - - -It must not be supposed that the improvements in mail-conveyance were -the only beneficial changes introduced into the Post-Office during the -fifty years which we have designated as the mail-coach era. It is true -that, compared with the progress of the country in many other respects, -the period might be termed uneventful. Still, there are incidental -changes to chronicle of some importance in themselves, and likewise -important in their bearing on the present position of the Post-Office. -If we retrace our steps to the year 1792, we shall find, for instance, -that in that year an entirely new branch of business was commenced at -the General Post-Office. We refer to the origin of the Money-Order -establishment. The beginnings of this system, which, as the reader must -be aware, has of late years assumed gigantic proportions, were simple -and unassuming in the extreme. The Government of the day had expressed a -desire for the establishment of a medium by which soldiers and sailors -might transmit to their homes such small sums as they could manage to -save for that purpose. Three officers of the Post-Office jointly -submitted a scheme to make a part of the Post-Office machinery available -in this direction, and a monopoly was readily conceded to them. -The undertaking was further favoured with the sanction of the -Postmasters-General. The designation of the firm was to be "Stow & Co.," -each of the three partners agreeing to find a thousand pounds capital. -The stipulations made were, that the business should be carried on at -the cost and at the risk of the originators, and that they, in return, -should receive the profits. It was agreed, also, that they should enjoy -the privilege of sending all their correspondence free of postage--no -inconsiderable item saved to them. Contrary to anticipations, the -proceeds were considerable--not so much on account of the number of -transactions, as on the high commission that was charged for the -money-orders. Their terms were eightpence for every pound; but if the -sum exceeded two pounds, a stamp-duty of one shilling was levied by -Government in addition. No order could be issued for more than five -guineas; and the charge for that sum amounted to four shillings and -sixpence, or nearly five per cent. When it is considered that the -expense did not end here, but that a letter containing a money-order was -subjected to _double postage_, it cannot be wondered at that those who -dealt with the three monopolists were few in number, and only persons -under a positive necessity to remit money speedily. Such a system, it -will be admitted, could not of itself be expected to foster trade. When -the general public were admitted to the benefits of the Money-order -Office--as they were some few years after the establishment of the -office--it does not appear that the business was greatly increased. -Almost from the commencement, the managers drew yearly proceeds, which -varied but slightly from year to year, averaging about 200_l._ each. -While, on the one hand, this office was seen to be a most useful -institution, good in principle, and likely, if properly managed, to -contribute largely to the general revenue of the Post-Office; on the -other hand, it was clearly stationary, if not retrograde in its -movements. In 1834, the attention of practical men was more immediately -called to the question by a return which was asked for by the House of -Commons, for a detailed account of the poundage, &c. on money-orders of -each provincial post-office, and the purpose or purposes to which the -monies were applied. The Postmaster-General replied, that the -Money-order Office was a private establishment, worked by private -capital, under his sanction; but he could give no returns, because the -accounts were not under his control. In 1838, a new Postmaster-General, -Lord Lichfield, sought and obtained the consent of the Treasury to -convert the Office into a branch under his immediate direction. In that -year the chief Money-order Office commenced business in two small rooms -at the north end of St. Martin's-le-Grand, with a staff of three clerks. -Though the charges were reduced to a commission of sixpence for sums -under two pounds, and of one shilling and sixpence for sums up to five -pounds, the new branch was worked at a loss, owing to the high rates of -postage and the double payment to which letters containing enclosures -were subjected. After the introduction of penny postage, the change was -so marked, that the immense success of this branch establishment may be -considered as entirely owing to the reduction of postage-rates. Had the -penny-postage scheme done no more for the nation than assisted the -people in the exercise of a timely prudence and frugality, stimulating -them, as it can be proved, to self-denial and benevolence, it would have -done much. But we are anticipating an important era. Soon after the -passing of the Penny-postage Act, the commission on money-orders was -reduced to threepence instead of sixpence, and sixpence for any amount -above two pounds and under five pounds. In 1840, the number of -money-order transactions had increased to thousands, in the place of -hundreds under the old _regime_. The money passed through the office in -the advent year of cheap postage amounted to nearly half a million -sterling, the Post-Office commission on the sum exceeding 6,000_l._ The -rate of increase, subsequently, may best be shown by taking a month's -work ten years afterwards. Thus, during one month of 1850, twice as many -orders were taken out and paid as were issued and paid during 1840, the -particulars of which year were given above. The same rate of increase -has continued up to the present moment. During the year 1862, the number -of orders had, in round numbers, risen to more than seven and a half -millions, or a money-value exceeding sixteen millions sterling, the -commission on the whole amounting to more than one hundred and -thirty-six thousand pounds.[70] - -By the statute of Queen Anne, letters might be brought from abroad by -_private ships_ under certain distinctly-specified regulations. On the -contrary, no law existed enabling the Postmaster-General to _send_ bags -of letters by the same medium until 1799, when an Act was passed with -this object. Masters of such ships refusing to take bags were subjected -to heavy penalties.[71] The postage of letters so sent (on account of -the slowness of transit in the majority of cases) was fixed at half the -usual rates. This Act is the foundation of the ship-letter system, by -means of which, besides the regular packet communication, letters are -forwarded to all parts of the world. At the same period the Government -rigorously adhered to the law as laid down with regard to letters -_brought_ by private vessels. A case was tried in 1806 in the Court of -King's Bench--"King _v._ Wilson"--in which the defendant--a merchant who -had had letters brought from the Continent in a ship of his own, and -pleaded that he had a right to do so--was cast in heavy damages, and -told that "all and every such letters, as well as others," must pass -through the Post-Office in the usual way. - -In the year 1814, the business of the Post-Office had increased so -greatly, that an agitation was commenced with the object of securing -better accommodation for its despatch than was afforded by the office in -Lombard Street. The first General Post-Office was opened in Cloak Lane, -near Dowgate Hill, and removed from thence to the Black Swan in -Bishopsgate Street. After the Great Fire of 1666, a General Office was -opened in Covent Garden, but it was soon removed to Lombard Street, to a -house which had been the residence of Sir Robert Viner, once Lord Mayor -of London. It was now proposed that a large and commodious building -should be specially erected in some central part of the City, and the -business once more transferred. In the Session of 1814 we find a Mr. -Butterworth presenting a petition to the House of Commons from four -thousand London merchants, in favour of an early removal of the -Post-Office from Lombard Street. He was assured, he said, that the -present office "was so close and confined, as to be injurious to the -health of those concerned;" he further stated, that "two guineas were -expended weekly for vinegar to fumigate the rooms and prevent infectious -fevers." Another hon. member stated that the access to the office was so -narrow and difficult, that the mail-coaches were prevented from getting -up to it to take the letter-bags. It is curious to note that even this -change was contested. Counter-petitions were presented to Parliament, -stating that the Lombard Street office was convenient enough, and that -the movement was got up by interested parties. Many years passed before -the discussions ended and the preliminary arrangements were made. -Nothing could better serve to show the stationary character of the -Post-Office than the fact that, year by year, and in the opinion of the -authorities, the Lombard Street establishment sufficed for its wants and -requirements. In 1825, however, Government acquiesced in the views of -the great majority of London residents, and St. Martin's-le-Grand--the -site of an ancient convent and sanctuary--was chosen for a large new -building, to be erected from designs by Sir R. Smirke. It was five -years in course of erection, and opened for the transaction of business -on the 25th of September, 1829. The building is of the Grecian-Ionic -order, and is one of the handsomest public structures in London. The -basement is of granite, but the edifice itself, which is 400 feet in -length and 80 feet in width, is built of brick, faced all round with -Portland stone. In the centre is a grand portico with fluted columns, -leading to the great hall, which forms a public thoroughfare from St. -Martin's-le-Grand to Foster Lane. - -From the date of the opening of the new General Post-Office, -improvements were proposed and carried out very earnestly. Under the -Duke of Richmond, reforms in the establishment set in with considerable -vigour.[72] He seems to have been the first Postmaster-General during -the present century who thought the accommodation which the Post-Office -gave to the public was really of a restrictive nature; that more -facility might easily be given to the public; and that the system of -management was an erroneous one. In 1834, the Duke of Richmond submitted -a list of improvements to the Treasury Lords, in which there were at -least thirty substantial measures of reform proposed. It is true that -many of these measures had been strongly recommended to him by the -Commissioners of Post-Office Inquiry, who had sat yearly on the -Post-Office and other revenue branches of the public service. The -previous policy, however, of the authorities was to put on a bold front -against any recommendations not originating with themselves. The Duke of -Richmond had considerably less of this feeling than some of his -predecessors. Thus, to take the principal measure of reform concluded in -his time--namely, the complete amalgamation of the Scotch and Irish -Offices with the English Post-Office--we find that the twenty-third -report of the Commissioners, signed by "Wallace," W. J. Lushington, -Henry Berens, and J. P. Dickenson, spoke strongly on the inadequacy "of -the present system of administration to reach the different parts of the -country," and urging the expediency "of providing against any more -conflict of opinion, and of securing a more extended co-operation, as -well as unity of design, in the management of the distinct Offices of -England, Scotland, and Ireland." Again, in 1831, on the recommendation -of the Commission, the Postmaster-General ordered that the boundaries of -the London district post--which, in 1801, became a "Twopenny Post," and -letters for which post, if delivered beyond the boundaries of the cities -of London and Westminster and the borough of Southwark, were charged -threepence--should now be extended to include all places within _three_ -miles of the General Post-Office. Two years afterwards, on the -recommendation of another Commission, the limits of the "Twopenny Post" -were again extended to places not exceeding _twelve_ miles from St. -Martin's-le-Grand, and this arrangement continued till the time of -uniform penny postage. The Duke of Richmond likewise appointed a daily -post to France, established a number of new mail-coaches, and abolished, -in great part, the system of paying the clerks, &c. of the Post-Office -by fees, substituting fixed salaries in each case.[73] - -In 1830, on the opening of the Liverpool and Manchester Railway, -the mails of the district were consigned to the new company for -transmission. The railway system developed but slowly, exerting little -influence on Post-Office arrangements for the first few years. After -public attention had been attracted to railways, many proposals were -thrown out for the more quick transmission of mails, to the supercession -of the mail-coach. One writer suggested the employment of balloons. -Professor Babbage threw out suggestions, in his _Economy of Machinery -and Manufactures_, 1832, pp. 218-221, deserving more attention, because -in them we see shadowed forth two at least of the greatest enterprises -of our time. After proceeding to show, in a manner which must have been -interesting to the post-reformers of 1839-40, that if the cost of -letter-carrying could be reduced, the result might be (if the -Post-Office people chose) a cheaper rate of postage and a corresponding -increase in the number of letters, he proceeded to expound a scheme -which, though vague, was described in words extremely interesting, -seeing that he wrote long anterior to the time of the electric -telegraph. Imagine, says he, a series of high pillars erected at -frequent intervals, as nearly as possible in a straight line between two -post-towns. An iron or steel wire of some thickness must be stretched -over proper supports, fixed on these pillars, and terminating at the -end, say of four or five miles, in a very strong support, by which the -whole may be stretched. He proposed to call each of these places -station-houses, where a man should be in attendance. A narrow -cylindrical tin case, to contain bags or letters, might be suspended on -two wheels rolling upon the wire, whilst an endless wire of smaller size -might be made to pass over two drums, one at each end, by which means -the cylinder could be moved by the person at the station. Much more of -the details follow, and our author thus concludes:--"The difficulties -are obvious; but if these were overcome, it would present many -advantages besides velocity." _We might have two or three deliveries of -letters[74] every day_; we might send expresses at any moment; and "it -is not impossible that a stretched wire might itself be made available -for a _species of telegraphic communication yet more rapid_." After the -first few years of railways, all other speculators quietly withdrew into -the shade. In the Post-Office, towards 1838 and 1839, the influence of -railways promised soon to be paramount, and it was now that Acts were -passed in Parliament "to provide for the conveyance of mails by -railways." - -In 1836, Sir Francis Freeling, the Secretary of the Post-Office, died, -when his place was filled by Lieutenant-Colonel Maberly. The latter -gentleman, who was an entire stranger to the department, was introduced -into the Post-Office by the Treasury for the purpose, as it was stated, -of zealously carrying out the reforms which another commission of -inquiry had just recommended.[75] On the premature fall of Sir Robert -Peel's first Cabinet, early in the previous year, the Earl of Lichfield -had succeeded to the office of Postmaster-General under Lord Melbourne. -The two new officers set to work in earnest, and succeeded in -inaugurating many important reforms. They got the Money-order Office -transferred, as we have already seen, from private hands to the General -Establishment; they began the system of registering valuable letters; -and, taking advantage of one of Mr. Hill's suggestions, they started a -number of day-mails to the provinces. Towards the close of 1836, the -stamp duty on newspapers was reduced from about threepence-farthing net -to one penny, a reduction which led to an enormous increase in the -number of newspapers passing through the Post-Office. - -Though all these improvements were being carried out, and in many -respects the Post-Office was showing signs of progression, the -authorities still clung with a most unreasonable tenacity to the -accustomed rates of postage, and of necessity to all the evils which -followed in the train of an erroneous fiscal principle. Contrary to all -experience in any other department, the Government obstinately refused -to listen for a moment to any plan for the reduction of postage rates, -or, what is still more remarkable, even to the alleviation of burdens -caused directly by the official arrangements of the period. For example, -Colonel Maberly had no sooner learnt the business of his office, than he -saw very clearly an anomaly which pressed heavily in some cases, and was -felt in all. He at once made a proposition to the Treasury that letters -should be charged in all cases according to the exact distance between -the places where a letter was posted and where delivered, and not -according to the distance through which the Post-Office, _for purposes -of its own_, might choose to send such letters. It may serve to show the -extent to which this strange and anomalous practice was carried, if we -state that the estimated reduction in the postal revenue, had Colonel -Maberly's suggestion been acted upon, was given at no less than -80,000_l._ annually! The Lords of the Treasury promptly refused the -concession. - -In 1837 the average general postage was estimated at 9-1/2_d._ per -letter; exclusive of foreign letters, it was still as high as 8-3/4_d._ -In the reign of Queen Anne the postage of a letter between London and -Edinburgh was less than half as much as the amount charged at the -accession of Queen Victoria, with macadamized roads, and even with -steam. Notwithstanding the heavy rates, or let us say, on account of -these rates, the net proceeds of the gigantic monopoly of the -Post-Office remained stationary for nearly twenty years. In 1815, the -revenue derivable from the Post-Office was estimated at one and a half -millions sterling. In 1836, the increase on this amount had only been -between three and four thousand pounds, though the population of the -country had increased immensely; knowledge was more diffused, and trade -and commerce had extended in every direction. Had the Post-Office -revenue increased, for instance, in the same ratio as population, we -should have found the proceeds to have been increased by half a million -sterling; or at the ratio of increase of stage-coach travelling, it must -have been two millions sterling. - -The high rates, while they failed to increase the Post-Office revenue, -undoubtedly led to the evasion of the postage altogether. Illicit modes -of conveyance were got up and patronised by some of the principal -merchants in the kingdom. Penal laws were set at defiance, and the -number of contraband letters became enormous. Some carriers were doing -as large a business as the Post-Office itself. On one occasion the -agents of the Post-Office made a seizure, about this time, of eleven -hundred such letters, which were found in a single bag in the warehouse -of certain eminent London carriers. The head of the firm hastened to -seek an interview with the Postmaster-General, and proffered instant -payment of 500_l._ by way of composition for the penalties incurred, and -if proceedings against the firm might not be instituted. The money was -taken, and the letters were all passed through the Post-Office the same -night.[76] For one case which was detected, however, a hundred were -never made known. The evasion of the Post-Office charges extended so far -and so wide that the officials began to declare that any attempt to stop -the smuggling, or even to check it, was as good as hopeless. -Prosecutions for the illicit conveyance of letters had, in fact, ceased -long before the misdemeanours themselves. - -The Post-Office was now ripe for a sweeping change. Mr. Wallace, the -member for Greenock, had frequently called the attention of the House of -Commons to the desirability of a thorough reform in the Post-Office -system. We find him moving at different times for Post-Office returns. -For instance, in August, 1833, Mr. Wallace[77] brought forward a subject -which, he said, "involved a charge of the most serious nature against -the Post-Office--viz. that the Postmaster-General, or some person acting -under his direction, with the view of discovering a fraud upon its -revenue, has been guilty of a felony in the opening of letters." He -moved on this occasion for a return of all and every instruction, -bye-law, or authority, under which postmasters are instructed and -authorized, or have assumed a right, to open, unfold, apply strong -lamp-light to, or use any of them, or any other means whatever, for -ascertaining or reading what may be contained in words or in figures in -any letter, of any size or description, being fastened with a wafer or -wax, or even if totally unfastened by either. At the same time he moved -for a return of all Post-Office prosecutions,[78] especially for the -expenses of a recent case at Stafford. In reply, the Post-Office -answered in a parliamentary paper that no such instruction had ever been -issued from the General Post-Office. Every person in the Post-Office was -required to take the oath prescribed by the Act of 9 Queen Anne, c. 10. -It was added, that "whenever it is noticed that a letter has been put -into the post unfastened, it is invariably sealed with the official seal -for security." In reply to the other return, the Post-Office were forced -to admit that the cost of prosecuting a woman and a female child at the -suit of the Post-Office at the late Stafford Assizes exceeded three -hundred and twenty pounds. - -There can be no question that Mr. Wallace's frequent motions[79] for -Post-Office papers, returns, statistics, detailed accounts of receipt -and expenditure, &c., were the means of drawing special attention to the -Post-Office, and that they were of incalculable service to the progress -of reform and the coming reformer. Mr. Wallace seems to have been -exceedingly honest and straightforward, though he was somewhat blunt and -outspoken. He succeeded in gaining the attention of the mercantile -community, though the Government honoured him with just as much -consideration as he was entitled to from his position, and no more.[80] -In estimating properly the penny-post system, and the labours of those -who inaugurated the reform, the share Mr. Wallace had in it should by no -means be lost sight of. - - -FOOTNOTES: - -[70] These items are exclusive of those relating to colonial -money-orders. - -[71] The Government can grant a release to any ship fixed for this -service. It will be remembered by many readers that after the -_Peterhoff_ was taken by Admiral Wilkes of the United States' navy, -February, 1863, the proprietors of the vessel, who had other ships on -the same line (with all of which the Post-Office sent ship-letters), -asked the Government for the protection of a mail-officer. On the -principle of choosing the least of two evils, and rather than take such -a decisive step, which might lead to troubles with the United States' -Government, Earl Russell relieved the _Sea Queen_ from the obligation to -carry the usual mail-bag to Matamoras. - -[72] The Duke of Richmond, though opposed to the Reform Bill, was a -member of Lord Grey's Cabinet. Indefatigable in the service of the -department over which he was placed from 1830 to 1834, he refused at -first to accept of any remuneration of the nature of salary. In -compliance, it is stated, with the strong representation of the Treasury -Lords, as to the objectionable nature of the principle of gratuitous -services by public officers, "which must involve in many cases the -sacrifice of private fortune to official station," His Grace consented -to draw his salary _from that time only_. - -[73] The salary of the Secretary to the Post-Office in the last century -was 600_l._ a-year, and a commission of 2-1/2 per cent. on the produce -of the mail-packets.--(Vide _Pitt's Speeches_, vol. i. p. 53-5, Debate -of June 17, 1783.) In 1830 the Secretary's salary was 300_l._ a-year, -but what with compensations, fees, and other emoluments, his annual -income is stated to have amounted to no less than 4,560_l._--(_Mirror of -Parliament_, 1835). The clerks, according to a Parliamentary return, -were paid small salaries, regulated on different scales, but their -income consisted principally of emoluments derived from other sources. -The _established_ allowances, charged on the public revenue, consisted -of sums for postage, stationery, payment in lieu of apartments, and for -continuing indexes to official books. The remaining emoluments, of -course not chargeable against the revenue, arose from _fees on -deputations_, commissions, expresses, profits on the publication of the -_Shipping_ and _Packet Lists_, payments for franking letters on the -business of the Land-Tax Redemption, and for the Tax-Office, &c. and -from Lloyd's Coffee House for shipping intelligence, &c. There were, -besides, other gratuities for special services. - -[74] We give the following simply to show the vagaries of clever, -scientific men. Speaking of London, the Professor said:--"Perhaps if the -steeples of churches, properly selected, were made use of--as, for -instance, St. Paul's--and if a similar apparatus were placed at the top -of each steeple, and a man to work it during the day, it might be -possible to diminish the expense of the twopenny post, and make -deliveries every half-hour over the greater part of the metropolis." P. -221. - -[75] Evidence of Colonel Maberly before the _Select Committee on -Postage_, 1843, p. 170. - -[76] Mr. Matthew Devonport Hill. 1862. - -[77] _Mirror of Parliament._ Barrow. 1833. - -[78] Now and then the House was enlivened and amused by even Post-Office -discussions. Thus, in the discussion on the above motion, Mr. Cobbett -complained that a letter of his, which "was not only meant to be read, -but to be printed," had never been received by him, nor could he get any -satisfaction out of the Post-Office authorities. He advised all -honourable members who had complaints to make against the Post-Office, -to make them at once to the House, without having any interview with -Ministers. For his own part, with regard to letters being opened, he -felt sure that the Post-Office read all the letters it cared to read; so -he took care to _write accordingly_. He didn't care about his letters -being read, provided they were allowed to go on, as he addressed them. - -_Mr. Secretary Stanley_ (the present Lord Derby) thought it would be a -subject of deep regret that any negligence on the part of the -Post-Office had prevented the elaborate lucubrations of the hon. member -for Oldham from appearing in the _Register_ on the appointed Saturday. - -_Mr. Cobbett._ It never appeared at all. - -Mr. Secretary Stanley was grieved. He felt sure, however, that the hon. -member spends too much time over the midnight oil not to have kept a -copy of his precious essay. He protested against hon. members taking up -the time of the House with complaints against a department which managed -its work very well. - -[79] Some of his motions must have been far from palatable to the powers -that were, and we confess to thinking some of them wanting in charity -and good taste. For example, September 7, 1835, we find him moving for a -return, to supplement another which had been sent in imperfectly drawn -up, which should show "what the special services are for which Sir -Francis Freeling receives 700_l._ a-year, the number of rooms allotted -to him at the General Post-Office, and how often he resides there. Also -the number allotted to the Under-Secretary; whether the whole or part, -and what parts are furnished at the public expense; also the annual sum -for coals and candles, for servants, &c.; also the probable expense of -expresses, messengers, and runners, passing between the Post-Office and -the Secretary at his private residence," and a number of other items -still more trifling. - -[80] _The Quarterly Review_, for October, 1839, speaking of his motions -for different papers, says, "What _grounds_ he had for making them could -only be imagined. They were, in fact, the kind of random motions with -which a member _fishes for abuses, but is still more anxious to catch -notoriety_." The italics are not ours. - - - - -CHAPTER VII. - -SIR ROWLAND HILL AND PENNY POSTAGE. - - -Miss Martineau, in her history of the _Thirty Years' Peace_, narrates a -somewhat romantic incident to account for Mr. Hill's original relation -to our subject, tracing the fiscal reform with which his name is -indissolubly connected to the "neighbourly shilling" well laid out of a -"pedestrian traveller in the Lake District." Unluckily for the -historian, the incident never happened to Mr. Hill. The repeated motions -of Mr. Wallace in the House of Commons are proved beyond dispute to have -brought home the subject to the consideration of many thoughtful minds, -and amongst those, to one who had scholarly leisure and philosophical -ingenuity to bring to its service. - -Born in 1795, and for many years a tutor in his father's school near -Birmingham, Mr. Rowland Hill was, at this time, the secretary of the -Commissioners for conducting the Colonization of South Australia, upon -the plan of Mr. Edward Gibbon Wakefield. At this post, according to the -testimony of the commissioners themselves, Mr. Hill laboured -unweariedly, "evincing," as they said, "considerable powers of -organization." Mr. Hill, in one place,[81] gives a clear account of the -way he prepared himself for the work he took in hand, when once his -attention was arrested by the subject. "The first thing I did was to -read very carefully all the reports on post-office subjects. I then put -myself in communication with the hon. member for Greenock, who kindly -afforded me much assistance. I then applied to the Post-Office for -information, with which Lord Lichfield was so good as to supply me. -These were the means I took to make myself acquainted with the -subject." In January, 1837, Mr. Hill published[82] the results of his -investigations, and embodied his scheme in a pamphlet entitled _Post -Office Reform: its Importance and Practicability_. This, the first -edition, was circulated privately amongst members of the legislature and -official men; the second edition, published two months afterwards, being -the first given to the world. The pamphlet, of which we will here -attempt a _resume_, immediately created a sensation; especially so in -the mercantile world. Mr. Hill may be said to have started with the -facts to which we have already adverted[83], namely, that the -Post-Office was not progressing like other great interests; that its -revenue, within the past twenty years, instead of increasing, had -actually diminished, though the increase of population had been six -millions, and the increase in trade and commerce had been proportionate. -The increase in the ratio of stage-coach travellers was still more -clear; but this fact need not be pressed, especially as one smart -quarterly reviewer answered, that, of course, the more men travelled, -the less need of writing. - -From the data which Mr. Hill was enabled to gather--for accounts of any -sort were not kept as accurately at the Post-Office then as now, and -there were no accounts of the number of inland letters--he estimated the -number of letters passing through the post. He then took the expenses of -management and analysed the gross total amount. He proved pretty -clearly, and as nearly as necessary, that the _primary distribution_, as -he termed the cost of receiving and delivering the letters, and also -the cost of transit, took two-thirds of the total cost of the management -of the Post-Office. Of this sum, the amount which had to do with the -_distance_ letters were conveyed, Mr. Hill calculated at 144,000_l._ out -of the total postal expenditure of 700,000_l._ Applying to this smaller -sum the estimated number of letters--deducting franks and taking into -account the greater weight of newspapers--he gave the apparent _average_ -cost of conveying each letter as less than one-tenth of a penny. The -conclusion to which he came from this calculation of the average cost of -transit was inevitable, and that was, that if the charge must be made -proportionate (except, forsooth, it could be shown how the postage of -one-tenth or one-thirty-sixth of a penny could be collected) it must -clearly be uniform, and for the sake of argument, and not considering -the charge as a tax, or as a tax whose end was drawing near, any packet -of an equal weight might be sent throughout the length and breadth of -the country at precisely the same rate. - -The justice and propriety of a uniform rate was further shown, but in a -smaller degree, by the fact that the relative cost of transmission of -letters under the old system was not always dependent on the distance -the mails were carried. Thus, the Edinburgh mail, the longest and most -important of all, cost 5_l._ for each journey. Calculating the -proportionate weight of bags, letters, and newspapers, Mr. Hill[84] -arrived at the absolute cost of carrying a newspaper of an average -weight of 1-1/2 oz. at one-sixth of a penny, and that of a letter of an -average weight of 1/4 oz. at one-thirty-sixth of a penny. These sums -being the full cost for the whole distance, Mr. Hill assumed, fairly -enough, that the same rating would do for any place on the road. It was -admitted on all hands, that the chief labour was expended in making up, -opening, and delivering the mails; therefore the fact whether it was -carried one mile or a hundred made comparatively little difference in -the expenditure of the office. The expenses and trouble being much the -same, perhaps _even less_ at Edinburgh than at some intermediate point, -why should the charges be so different? But the case could be made still -stronger. The mail for Louth, containing as it did comparatively few -letters, cost the Post-Office authorities, as the simple expense of -transit, one penny-farthing per letter. Thus, an Edinburgh letter, -costing the Post-Office an infinitesimal fraction of a farthing, was -charged one shilling and three-halfpence to the public, while a letter -for Louth, costing the Post-Office fifty times as much, was charged to -the public at the rate of tenpence! Nothing was clearer, therefore, that -if Mr. Hill's propositions were opposed (and his opponents did not -advocate the payment according to the actual cost of transit), that -those who were adverse to them must fall into the absurdity of -recognising as just an arrangement which charged the highest price for -the cheapest business! At first sight it looked extravagant, that -persons residing at Penzance or near the Giant's Causeway, at Watford or -Wick, should pay equal postage for their letters. The intrinsic _value_ -of the conveyance of a letter, it must be admitted, is a very different -thing from its _cost_, the value being exactly equal to the time, -trouble, and expense saved to the correspondents, of which, perhaps, the -only _measure_ appeared to be the actual distance. Looked at more -narrowly, however, in the clear light of Mr. Hill's investigations, it -became obvious that it was really "a nearer approximation to perfect -justice"[85] to allow distant places to feel the benefits of the -measure; passing over the little inequalities to which it might give -rise; while all might pay such a sum as would cover the expenses in each -and every case.[86] - -Mr. Hill succeeded likewise in proving many of the facts adverted to in -the preceding chapter. He showed that the high rates were so excessive -(not only varied according to distance, but doubled if there was an -enclosure, with _fourfold_ postage if the letter exceeded an ounce in -weight) as greatly to diminish, where they did not absolutely prevent, -correspondence. Not only so, but the high rate created an illicit -traffic, involving all classes of the country in the meshes of a -systematically clandestine trade. These facts and their results on the -public revenue shine out of the pamphlet as clear as noonday. - -But this was not all. The expenses of the department, or the _secondary -distribution_, might be much reduced by simplifications in the various -processes. The existing system resulted in a complicated system of -accounts, involving great waste of time as well as offering inducements -to fraud. The daily work of exposing letters to a strong light, in order -to ascertain their contents, also offered a constant temptation to the -violation of the first duty of the officers of the State, in respect to -the sanctity of correspondence. If, instead of charging letters -according to the number of sheets or scraps of paper, a weight should be -fixed, below which, whatever the contents of a letter, a certain rate be -charged, much trouble would be saved to the office, not to speak of any -higher reason. Again, he suggested that if anything could be done to -expedite the delivery of letters by doing away with the collection of -postage from door to door, a great object would be gained; that five or -six times the number of letters might be delivered with the existing -machinery, and this even in less time than under the old system. The -only requisite was, that some plan for the prepayment of letters should -be devised, so that the Post-Office might be relieved from the duty of -charging, debiting, &c. and the letter-carriers from collecting the -postage. The Post-Office authorities had had the question of prepayment, -by means of some kind of stamp or stamped covers, under consideration -prior to this time. The Commissioners of Post-Office Inquiry deliberated -on the measure in the early part of 1837 (after Mr. Charles Knight had -suggested a penny stamp, or stamped cover, for collecting the now -reduced postage on newspapers), considering it very favourably. Hence it -arose that that part of the proposals relating to prepayment by stamped -labels or covers, formed part of Mr. Hill's scheme, and was considered -with it. - -Mr. Hill, in his able pamphlet, exhausted the subject. By a variety of -arguments, he urged upon the nation a trial of his plans--begged for an -unobstructed and cheap circulation of letters, expressing his most -deliberate conviction,[87] that the Post-Office, "rendered feeble and -inefficient by erroneous financial arrangements," was "capable of -performing a distinguished part in the great work of national -education," and of becoming a benefaction and blessing to mankind. He -left the following proposals to the judgment of the nation:--(1) A large -diminution in the rates of postage, say even to one penny per letter -weighing not more than half an ounce. (2) Increased speed in the -delivery of letters. (3) More frequent opportunities for the despatch of -letters. And (4) Simplification in the operations of the Post-Office, -with the object of economy in the management. The fundamental feature in -the new scheme was, of course, the proposal that the rate of postage -should be uniform, and charged according to weight. - -No wonder that the scheme, of which, in our own order, we have just -attempted an outline, roused feelings of delight and approbation from -the people at large, throughout the length and breadth of the land. -Still less is it a matter of surprise that the Government and the -Post-Office authorities, in charge of the revenue, should stand aghast -at the prospect of being called upon to sanction what they considered so -suicidal a policy. Lord Lichfield, the Postmaster-General at the time, -speaking for the Post-Office authorities, as to its practicability, -described the proposal in the House of Lords,[88] "of all the wild and -visionary schemes which I have ever heard of, it is the most -extravagant." On a subsequent occasion, his opinion having been -subjected for six months to the mellowing influence of time, he is less -confident, but says that, if the plan succeeds (in the anticipated -increase of letters), "the walls of the Post-Office would burst--the -whole area on which the building stands would not be large enough to -receive the clerks and the letters."[89] On the one side, many -well-known names[90] were ranked in opposition, who believed that the -scheme, among other drawbacks, would not only absorb the existing -revenue, but would have to be supported by a ruinous subsidy from the -Exchequer. On the other side of the question, however, there were many -intelligent writers and great statesmen ready to advocate the sacrifice -of revenue altogether, if necessary, rather than not have the reform; -while an immense number believed (and Mr. Hill himself shared in this -belief) that the diminution would only be temporary, and should be -regarded as an _outlay_ which, in the course of years, would yield -enormous profits. "Suppose even an average yearly loss of a million for -ten years," says a celebrated economist of the period; "it is but half -what the country has paid for the abolition of slavery, without the -possibility of any money return. Treat the deficit as an outlay of -capital. Even if the hope of ultimate profit should altogether fail, let -us recur to some other tax ... any tax but this, certain that none can -operate so fatally on all the other sources of revenue. Letters are the -_primordia rerum_ of the commercial world. To tax them at all is -condemned by those who are best acquainted with the operations of -finance." Nor was Mr. Hill to be cried down. He admitted, as we have -said, that his plans, if carried out, would result in a diminution of -revenue for a few years to come. On the reliable _data_ which he had -collected, he calculated that, for the first year, this decrease might -extend to as much as 300,000_l._; but that the scheme would pay in the -long run, and pay handsomely, he had no manner of doubt whatever. His -case was strengthened by all previous experience. The number of letters -would increase in the ratio of reduction of postage. In 1827, the Irish -postage-rates were reduced, and an immediate increase of revenue to a -large extent was the result. The rate for ship-letters was reduced in -1834. In four years the number increased in Liverpool from fifteen to -sixty thousand; in Hull from fifteen to fifty thousand. The postage of -letters between Edinburgh and the adjacent towns and villages was -reduced in 1837 from twopence to a penny. In rather more than a year the -number of letters had more than doubled. - -Mr. Hill's proposals were instantly hailed with intense satisfaction, -especially by the mercantile and manufacturing classes of the community. -Whatever might be said in Parliament, public opinion in the country was -decided on the question, that if the success of the new scheme was -sufficient to cover the charges of the Post-Office establishment, it -ought by all means to be carried out. Scarcely ever was public sympathy -so soon and so universally excited in any matter. The progress of the -question of post-reform was in this, and some other respects, very -remarkable, and shows in a strong light how long a kind of extortion may -be borne quietly, and then what may be accomplished by prompt and -conjoint action. Before Mr. Hill's pamphlet appeared no complaints -reached the Legislature of the high rates of postage. During the year in -which it did appear five petitions reached the House of Commons, praying -that its author's scheme might at least be considered. In the next year -320, and in the first half of the year 1839 no fewer than 830, petitions -were presented in favour of the measure. Within a few, the same number -were sent up to the House of Lords. During the agitation, it is -calculated that no less than 5,000 petitions reached St. Stephen's, -including 400 from town-councils and other public bodies--the Common -Council of London, and the Society for the Diffusion of Useful -Knowledge, among the number. - -During the month of February, 1838, Mr. Wallace moved for a Select -Committee of the Commons to investigate and report upon Mr. Hill's -proposals; but the Government resisted the motion.[91] They intimated -that the matter was under their consideration, and they intended to deal -with it themselves. But the community were dissatisfied. They continued -to petition till Ministers were compelled to show a greater interest in -the subject, which they did "by proposing little schemes, and -alterations, and devices of their own, which only proved that they were -courageous in one direction, if not in another."[92] Meanwhile, the -"Merchandise Committee"--formed of a number of the most influential and -extensive merchants and bankers in London, with Mr. Bates, of the house -of Baring & Co. for chairman--was called into existence through the -manifested opposition to reasonable reform. Large sums were subscribed -by this committee for the purpose of distributing information on the -subject by means of pamphlets and papers, and for the general purposes -of the agitation. So great and irresistible, in fact, was the pressure -applied in this and other ways, that the Government found it impossible -any longer to refuse an inquiry. A month or two after Mr. Wallace's -motion, Mr. Baring, the then Chancellor of the Exchequer, proposed a -Committee "to inquire into the present rates or modes of charging -postage, with a view to such reduction thereof as may be made _without -injury to the revenue_; and for this purpose, to examine especially into -the mode recommended, of charging and collecting postage, in a pamphlet -by Mr. Rowland Hill." It was noticed that most of the members nominated -by the Chancellor of the Exchequer were favourable to the Government, -all but two--Lord Lowther and Sir Thomas Fremantle--having voted for the -Ballot. The Conservatives did not grumble, however, as on this subject -the Government was conservative enough. The Committee sat sixty-three -days, concluding their deliberations in August, 1838. They examined all -the principal officers of the Post-Office and the Stamp Department, and -eighty-three independent witnesses of different pursuits and various -grades. The Post-Office authorities were specially invited to send any -witnesses they might choose; and as the Postmaster-General and the -Secretary of the Post-Office objected to the penny rate as likely to be -ruinous to the revenue, and to the principle of uniformity as unfair and -impossible, we may be certain that the witnesses sent were judiciously -chosen. The examination was by no means _ex parte_, but seems to have -been carried on with the greatest fairness. Those members of the -Committee who were particularly pledged to the protection of the -revenue, as well as Lord Lowther--who had a thorough knowledge of the -subject from having sat on a previous Commission--appear to have missed -no opportunity of sifting the opinions and the statements of each -witness. The members of the Committee did their work, altogether, with -zeal, great discrimination, and ability. The plan and the favourable -witnesses stood the scrutiny with wonderful success; and Mr. Hill -himself bore up, under what George Stephenson regarded as the greatest -crucial test to which mortal man can be subjected, with tact and -firmness, fully proving, in evidence, the soundness of the conclusions -on which judgment had to be passed. - -We may say here, as we have not before referred to the circumstance, -that it was necessary to make it clear to the Committee, the amount of -increase in correspondence necessary to the success of the scheme. In -opposition to the views of official men,[93] Mr. Hill held that a -fivefold increase in the number of letters would suffice to preserve the -existing revenue, and he hazarded a prediction that that increase would -soon be reached. As regarded the means of conveyance, he showed that the -stage-coaches, &c. already in existence could carry twenty-seven times -the number of letters they had ever yet done; and this statement passed -without dispute. The evidence was clear and convincing as to the vast -amount of contraband letters daily conveyed; and no less certainly was -it shown that, if Mr. Hill's schemes were carried out, the temptation to -evasion of postage would be at once abolished, inasmuch as there would -then be no sufficient inducement to resort to illegal mediums. A Glasgow -merchant stated before the Committee, that he knew five manufacturers in -that city whose correspondence was transmitted illegally in the -following proportions, viz.--(1) three to one; (2) eighteen to one; (3) -sixteen to one; (4) eight to one; and (5) fifteen to one. Manchester -merchants--among whom was Mr. Cobden--stated that they had no doubt that -four-fifths of the letters written in that town did not pass through the -Post-Office. No member of the Committee had any idea of the extent to -which the illicit conveyance of letters was carried. A carrier in -Scotland was examined, and confessed to having carried sixty letters -daily, on the average, for a number of years--knew other carriers who -conveyed, on an average, five hundred daily. He assured the Committee -that the smuggling was alone done to save the postage. "There might be -cases when it was more convenient, or done to save time, but the great -object was cheapness." The labouring classes, especially, had no other -reason. "They avail themselves of every possible opportunity for getting -their letters conveyed cheaply or free." In his opinion, the practice -could not be put a stop to until the Post-Office authorities followed -the example that was set them in putting down illicit distillation in -Scotland. "I would reduce the duty, and that would put an end to it, by -bringing it down to the expense of conveyance by carriers and others." -Mr. John Reid--an extensive bookseller and publisher in Glasgow--sent -and received, illicitly, about fifty letters or circulars daily. "I was -not caught," he said, "till I had sent twenty thousand letters, &c. -otherwise than through the post." He constantly sent his letters by -carriers; he also sent and received letters for himself and friends, -inclosed in his booksellers' parcels. Any customer might have his -letters so sent, by simply asking the favour. It also came out in -evidence, that twelve walking-carriers were engaged exclusively in -conveying letters between Birmingham and Walsall and the district, a -penny being charged for each letter. The most curious modes of -procedure, and the oddest expedients[94] for escaping postage, were -exhibited during the sitting of the Committee. One, largely patronized -by mercantile houses, consisted in having a number of circulars printed -on one large sheet, when, on its arrival at a certain town, a mutual -friend or agent would cut it up, and either post or deliver the parts. -Nay, matters had been brought to such a state, that a leading journal, -commenting on the matter of illicit letter-conveyance just previous to -the sittings of the Committee, went the length of saying, that, -"_fortunately_ for trade and commerce, the operation of the Government -monopoly is counteracted by the clandestine conveyance of letters."... -"The means of evasion are so obvious and frequent, and the power of -prevention so ineffectual, that the post has become only the -_extraordinary_, instead of the usual, channel for the conveyance of -letters." Notwithstanding this testimony, the evidence of the -Post-Office officials on this and the other heads of inquiry betrayed -fully the usual degree of official jealousy of interference, and quite -an average amount of official partiality. Thus, Colonel Maberly argued, -that if the postage of letters were reduced to a penny it would not stop -smuggling: in which case they might as well have smuggling under the one -system as the other. But his zeal on this point overcame his discretion. -"For," he continued, "1,000 letters might still be sent as a -coach-parcel for seven shillings, whereas the Post-Office charge for -them would be four guineas." But the gallant colonel seems altogether to -have forgotten that the item of _delivery_ is, after all, the chief item -in all Post-Office charges. A few more examples of the statements of the -authorities may here be given. Thus, the Secretary said, relative to an -increase of letters, that "the poor were not disposed to write letters" -(10,851). He thought that, during the first year, the letters would not -double, even if franking were not abolished (2,949). "If the postage -be reduced to one penny, I think the revenue would not recover -itself for forty or fifty years." Lord Lichfield said that he had -ascertained that each letter then cost "within the smallest fraction of -twopence-halfpenny" (2,795). With regard to the principle of the uniform -rate, Colonel Maberly thought it might be "desirable, but impracticable" -(10,939). "Most excellent for foreign postage, but impracticable for -inland letters" (3,019). He also said that the public would object to -pay _in advance_ whatever the rate (10,932-3). - -The Committee next had their attention called to still more important -facts, viz. that the number of letters conveyed illegally bore no -proportion to the number which were not written at all on account of the -high rates of postage. On the poor the Post-Office charges pressed -grievously, and there seemed no other course open to them than that, if -their letters could not be received without the payment of exorbitant -rates, they must lie in the hands of the authorities. It is only -necessary to compare the income of a labouring man with his pressing -wants to see that it was idle to suppose that he would apply his little -surplus to the enjoyment of post-letters other than in cases of life and -death. The Committee were absolutely flooded with instances in which -the Post-Office charges seriously interfered with the wants and -reasonable enjoyments of the poor. On the general question involved, -nearly all the witnesses, of whatever rank or grade, evidenced that the -public, to an enormous extent, were deterred from writing letters and -sending communications, which otherwise, under a cheaper tariff, they -would write and send. That this part of the case was proved may be -concluded from the language of the Committee themselves:--"The multitude -of transactions which, owing to the high rates of postage, are prevented -from being done, or which, if done, are not announced, is quite -astonishing. Bills for moderate amounts are not drawn; small orders for -goods are not given or received; remittances of money are not -acknowledged; the expediting of goods by sea and land, and the sailing -or arrival of ships not advised; printers do not send their proofs; the -country attorney delays writing to his London agent, the commercial -traveller to his principal, the town-banker to his agent in the country. -In all these, and many other cases, regularity and punctuality is -neglected in attempts to save the expenses of exorbitant rates of -postage." - -On all the other parts of the scheme, and on the scheme itself as a -whole, the Committee spoke no less decisively. Generally and briefly, -they considered that Mr. Hill's strange and startling facts had been -brought out in evidence. They gave their opinion that the rates of -postage were so high as materially to interfere with and prejudice trade -and commerce; that the trading and commercial classes had sought, and -successfully, illicit means of evading the payment of these heavy -charges, and that all classes, for the self-same reason, corresponded -free of postage when possible; that the _rate_ of postage exceeded the -_cost_ of the business in a manifold proportion; and that, altogether, -the existing state of things acted most prejudicially to commerce and to -the social habits and moral condition of the people. They conclude, -therefore,-- - - 1. That the only remedy is a reduction of the rates, the more - frequent despatch of letters, and additional deliveries. - - 2. That the extension of railways makes these changes urgently - necessary. - - 3. That a _moderate_ reduction in the rates would occasion loss, - without diminishing the peculiar evils of the present state of - things, or giving rise to much increased correspondence, and, - - 4. That the principle of a low, uniform rate, is _just in itself_, - and when combined with prepayment and collection by stamp, would be - exceedingly convenient and highly satisfactory to the public. - -So far, their finding, point by point, was in favour of Mr. Hill's -scheme. They reported further that, in their _opinion_, the -establishment of a penny rate would not, after a temporary depression, -result in any ultimate loss to the revenue. As, however, the terms of -their appointment precluded them from recommending any plan which -involved an immediate loss, they restricted themselves to suggesting an -uniform _twopenny_ rate. - -The Commissioners of Post-Office Inquiry,--consisting of Lord Seymour, -Lord Duncannon, and Mr. Labouchere,--who were charged with an "inquiry -into the management of the Post-Office," had already concluded their -sittings, and had decided upon recommending Mr. Hill's plan as far as it -concerned the "twopenny post" department; that being the only branch -then under consideration. "We propose," say they, and the words are -significant, "that the distinction in the rates and districts, which now -applies to letters delivered in the twopenny and threepenny post, shall -not in any way affect correspondence transmitted under stamped covers; -and that any letter not exceeding half an ounce shall be conveyed free -within the metropolis, and the district to which the town and country -deliveries extend, _if inclosed in an envelope bearing a penny stamp_." - -With these important recommendations in its favour, the scheme was -submitted to Parliament. It had met with so much approval, and the -subject seemed so important, that the Government took charge of the -measure. The Chancellor of the Exchequer had the project of a uniform -rate of postage embodied in a Bill, which passed in the session of 1839. -This Act, which was affirmed by a majority of 102 members, conferred -temporarily the necessary powers on the Lords of the Treasury. Many of -the Conservative party opposed the Government proposals. Sir Robert -Peel's chief argument against the change was, that it would necessitate -a resort to a direct tax on income. In order, however, to strengthen the -hands of the Government, now that the question was narrowed in all minds -to the single one of revenue, the majority in the House of Commons -pledged themselves to vote for some _substituted_ tax, if, upon -experiment, any substitute should be needed.--(_Hansard_, vol. xlix.) - -No one out of Parliament, at any rate, who read Mr. Hill's pamphlet -attentively, but was convinced of the practicability of the measure, and -the careful perusal of the evidence collected by the Committee -appointed, determined any waverer as to the necessity of its being -adopted. Still there existed serious misgivings in the country as to the -steps which the Melbourne administration must soon announce. That there -were some few objections to Mr. Hill's plan, and some difficulties about -it, cannot be doubted; the nation at large had decided for it, however, -and some of the principal men in the country, not favourable to the -existing ministry, decided for it also. The Duke of Wellington was -"disposed to admit that that which was called Mr. R. Hill's plan, was, -if it was adopted as it was proposed, of all the plans, that which was -most likely to be successful."[95] The Duke of Richmond pressed upon the -ministers, that if they gave their sanction to any uniform plan, it -should be to Mr. Hill's, "for that alone, and not the twopenny postage, -seems to me to give hope of ultimate success."[96] - -On the 12th of November, 1839, the Lords of the Treasury issued a -minute, under the authority of the Act before referred to, reducing the -postage of all inland letters to the uniform rate of _fourpence_. - -The country, generally, was greatly dissatisfied. Mr. Hill's measure was -what was required, and the fourpenny rate was in no respect his plan, -nor did it even touch the question of the _practicability_ of the -uniform postage proposed by the reformer. This quarter measure of the -Government did not even suffice to exhibit the benefits of a low rate of -postage; was consequently a most improper test, and likely to be -prejudicial to the interest of the penny post. The increase of letters -was in no place more than fifty per cent., whilst the decrease in the -Post-Office revenue was at the rate of forty per cent. In London, for -instance, the diminution of receipts was at the lowest computation, -450_l._ a day, and the number of letters were only just doubled. The -plan did not abolish the franking system. It did not abolish smuggling, -inasmuch as a letter might be sent illicitly for a penny. How, -therefore, it was argued, can it be expected that in the interior of the -country, at any rate, and without Custom House officers, or any other -responsible officers, a duty of 300 per cent. can be levied on the -carriage of an article so easily transported as a letter? For a few -weeks all was dissatisfaction. More than that, business men trembled for -the success of the whole scheme, and lest the Government should return -to the old _regime_. The Treasury Lords were convinced, however, that -they had made a mistake, and they resolved to give the measure a full -and fair trial. On the 10th of January, 1840, another minute was issued, -ordering the adoption of a uniform penny rate. By adopting Mr. Hill's -plan, the Government simply placed itself in the position of a trader, -who declared that he intended for a time to be satisfied with a part of -his former profits; but hoped eventually to secure himself against loss -by increased business, greater attractiveness, and diminished cost -of management. In six months, the policy of the Government was -acknowledged on all hands to be the correct one, for on the 10th of -August the Treasury had its minute confirmed by the Statute 3 & 4 Vict. -chap. 96. The _Quarterly Review_,[97] as an exception to the general -feeling, stigmatizes the measure "as one of the most inconsiderate jumps -in the dark ever made by that very inconsiderate assembly." It is -"distinguished by weakness and rashness," &c. But the judgment of -posterity is sadly against the reviewer. - -A Treasury appointment was given to Mr. Hill to enable him to work out -his plans, or, in the wording of the said appointment, "to assist in -carrying into effect the penny postage." He only held his office about -two years, for when the Conservative party came into power in 1841, he -was politely bowed out of it on the plea that his work was finished; -that his nursling had found its legs, and might now be taken into the -peculiar care of the Post-Office authorities themselves. A study of the -past history of the Post-Office might have enlightened the minds of the -members of the Executive Government as to the advisability or otherwise, -of leaving entirely the progress of Post-Office improvement in the hands -of the authorities. Mr. Hill intreated the new premier, Sir Robert Peel, -to let him remain at any pecuniary sacrifice to himself, but -his entreaties were unavailing. He must watch his scheme from a -distance.[98] - -Speaking of the hindrances which Mr. Hill met with in official circles, -we are reminded of a pamphlet which appeared shortly after this period, -evidently from some Post-Office official, "_On the Administration of the -Post-Office_." This precious pamphlet has been long consigned to -well-merited oblivion, and we only rescue it for a moment from the limbo -of all worthless things, to show the spirit which then actuated some of -those in office. It reminds us forcibly of the criticism which Mr. -Palmer's scheme called forth from the leading spirits of the Post-Office -of his day. The pamphlet, illogical and abusive throughout, laid it down -as a principle that "the Post-Office is not _under any obligation_ to -convey the correspondence of the public." Again, that "the Post-Office -is a Government monopoly for the benefit of the public revenue, and -exists for the _sole_ purpose of profit." Then there are praises for the -old, and abuses for the new _regime_. "The celerity, the certainty, the -security with which so vast a machine executed such an infinite -complexity of details, were truly admirable!" Mr. Hill comes in for a -good share of detraction. He is counselled to leave his "pet scheme" to -the "practical men" of the Post-Office. In the following flowery -language he is recommended "to behold it (his project) as a spectator -from the shore, viewing his little bark in safety, navigated by those -who are practically best acquainted with the chart, wind, and waves." - -Mr. Hill's popularity outside the Post-Office contrasted favourably with -the estimation in which he was held inside. The whole community had -become impressed with the value of his measures and the important -services he had rendered. Spurred on to exertions by the treatment he -had received at the hands of an administration, which, to use the fine -expression of Lord Halifax in reference to another public benefactor, -"refused to supply the oil for a lamp which gave so much light," a -public subscription was opened throughout the country, which, joined in -by all classes, was quickly represented by a handsome sum. The money, -which amounted to over thirteen thousand pounds, and which was only -considered an expression of national gratitude, and by no means a full -requital for his services, was presented to him at a public banquet got -up in London under the auspices of the "Merchandise Committee." In an -address which accompanied the testimonial, Mr. Hill's measure of reform -was pronounced one "which had opened the blessings of a free -correspondence to the teacher of religion, the man of science -and literature, the merchant and trader, and the whole British -nation--especially the poorest and most defenceless portions of it--a -measure which is the greatest boon conferred in modern times on all the -social interests of the civilized world." Mr. Hill's bearing on the -occasion in question is described as most modest and unassuming. He -expressed his gratitude for the national testimonial in few but telling -phrases. He delicately alluded to his proscription from office, -regretting that he could not watch the progress of his measure narrowly, -and pointed out improvements which were still necessary to give complete -efficiency to his reform. Mr. Hill gave ample credit to those who had -sustained him in his efforts to carry his plans through Parliament, and -especially named Messrs. Wallace and Warburton, members of the special -Committee of 1838, Mr. Baring the Ex-chancellor of the Exchequer, and -Lords Ashburton and Brougham. - -We shall have frequent occasion as we advance, to mention Mr. Hill's -name in connexion with Post-Office history during the past twenty years; -but we may here notice the remaining particulars of Mr. Hill's -_personal_ history. On the restoration of the Whigs to power in 1846, -Mr. Hill was brought back into office, or rather first placed in office -at St. Martin's-le-Grand, as secretary to the Postmaster-General, the -present Marquis of Clanricarde. In 1854, on Colonel Maberly's removal to -the Audit Office, Mr. Hill attained the deserved honour of Secretary to -the Post-Office under the late Lord Canning--the highest fixed -appointment in the department, and second only in responsibility to that -of Postmaster-General. In 1860 Mr. Hill was further honoured with the -approval of his sovereign, and few will question it, when we say it was -a worthy exercise of the royal prerogative, when he was called to -receive the dignity of Knight Commander of the Bath. - -The arduous exertions, extending over a quarter of a century, and the -ever-increasing duties of the Secretary of the Post-Office have, within -the last few years, begun to tell upon the physical system of Sir -Rowland Hill, and have more than once caused him to absent himself from -the post which he has made so honourable and responsible. During the -autumn of last year he obtained leave of absence from active duty for -six months--his place being filled by Mr. Tilley, the senior assistant -secretary of the Post-Office--a step which was generally understood to -be preparatory to his resignation, should no improvement be manifest in -his health. Now (March, 1864) his retirement is announced, and he leaves -us and passes "not into obscurity, but into deserved repose." May he be -long spared to enjoy the rest and quiet which he has so well earned, and -the gratitude and sympathy which must be universally felt for him. His -early work, that would have been Herculean, even if he had not been -assailed by foes without and foes within, must have caused him immense -labour of hand and labour of brain; the carrying out also of many -important subsequent measures, which may be said to have followed as -necessary corollaries of his great reform, must have occasioned him an -amount of bodily and mental toil and excitement of which the "roll of -common men" have neither experience nor conception. Not to speak of his -services to commerce, Sir Rowland Hill, more than any living -individual, has succeeded in drawing close the domestic ties of the -nation, and extending in innumerable ways the best interests of social -life. He deserves well of his country, and we are only giving expression -to a feeling which is uppermost at this moment in most men's minds, when -we add the hope that a debt of gratitude may soon be discharged by some -gracious national tribute.[99] - -The Executive Government, on its part, has shown a just and highly -appreciative estimate of Sir Rowland Hill's remarkable services in the -provision which has been made for him on his retirement. By a Treasury -minute, dated March 11th, 1864, advantage is taken of the special clause -in the Superannuation Act, relating to extraordinary services, to grant -him a pension of three times the usual retiring allowance. The language -in which this resolution is couched--doubtless from the pen of Mr. -Gladstone--is unusually complimentary for this class of official -documents. After recounting Sir Rowland Hill's eminent services--the -facts of which are based upon a statement just presented by the veteran -reformer himself, (see Appendix H)--and stating the amount of his -pension if treated on the ordinary superannuation allowance, the Lords -of the Treasury say that they consider the present a fitting case for -special arrangement. "Under the circumstances, it may justly be averred -that my Lords are dealing on the present occasion with the case not -merely of a meritorious public servant, but of a benefactor of his race; -and that his fitting reward is to be found not in this or that amount of -pension, but in the grateful recollection of his country. But my Lords -discharge the portion of duty which belongs to them with cordial -satisfaction, in awarding to Sir Rowland Hill for life his full salary -of 2,000_l._ per annum." Lord Palmerston has further given notice that -he will move in the House of Commons, that the pension be continued to -Lady Hill, in the event of her surviving her husband.[100] - -One thing only mars the gracefulness of the minute in question. A vague -and indefinite attempt is made towards partitioning the merit of the -original suggestion of the penny postage scheme between Sir R. Hill and -some other nameless projector or projectors. On the contrary, we have -not been more definitely led to any conclusion in the range of postal -subjects which have claimed our attention, than to the one which gives -to Sir Rowland Hill the entire merit of the suggestion, and the chief -merit in the carrying out, of penny-post reform. It would, of course, -have been impossible to carry out and perfect the system without the -cordial assistance and co-operation of the other principal officers of -the Post-Office; for the past twenty years that assistance seems to have -been faithfully rendered; and Sir Rowland Hill, in retiring, pays a just -tribute to those who have laboured to promote the new measures, and into -whose able hands they have now fallen. - - -FOOTNOTES: - -[81] _Select Committee of Postage_, 1843, p. 133. - -[82] Miss Martineau, quoting from the _Political Dictionary_, vol. ii. -p. 563, says that Mr. Hill first offered his scheme to the Government of -Lord Melbourne before it was presented to the country. However this may -be, Mr. Hill makes no mention of the fact in his frequent appearances -before Committees of the House of Commons, &c. - -[83] _Post-Office Reform_, p. 2, third edition. - -[84] _Post-Office Reform_, p. 14, third edition. - -[85] _Our Exemplars, Poor and Rich_, edited by Matthew Davenport Hill. -London, 1851, p. 317. - -[86] _The Westminster Review_, July, 1860, p. 78, in an able but -exceedingly _ex parte_ article on "The Post-Office Monopoly," doubts -whether Mr. Hill's system is a near approximation to perfect justice, -being, in its opinion, "by no means the _summum bonum_ of letter-rates." -"A charge of one penny for the carriage of all letters of a certain -_weight_ within the United Kingdom, irrespective of distance, is -eminently arbitrary."... "No one in London who has written two letters, -one to a friend residing in the same town as himself, and another to one -in Edinburgh, can have failed, in affixing the stamps to them, to -observe the unfairness of charging the same sum for carrying the one 400 -yards and the other 400 miles, when the cost of transmission must in the -one case be so much more than in the other." These quotations plainly -show that Mr. Hill's early arguments have been lost upon the reviewer. -If Mr. Hill demonstrated one thing more plainly than another, it was -that the absolute cost of the transmission of each letter was so -infinitesimally small, that if charged according to that cost, the -postage could not be collected. Besides, it is not certain that the one -letter would cost the Post-Office more than the other. Moreover, to the -sender the value of the conveyance of the local letter was equal to its -cost, or he would have forwarded it by other means. No doubt a strong -argument might be based on these grounds, as to the justice of a lower -rate for letters posted and delivered in the same town. Such a measure -might be supported on Mr. Hill's principles; but the apparent anomaly is -surely no argument against a State monopoly of letter-carrying. - -[87] _Post-Office Reform_, p. 8. - -[88] _Mirror of Parliament_, 15th June, 1837. - -[89] _Ibid._ 18th December, 1837. - -[90] Rev. Sydney Smith, Mr. McCullagh. - -[91] Hansard, xxxviii. p. 1099. - -[92] Miss Martineau, vol. ii. p. 429. - -[93] Lord Lichfield said it would require a twelvefold increase, "and I -maintain," said he, "that our calculations are more likely to be right -than his."--(_Report_, 2821.) - -[94] Mr. Hill related some of these in his pamphlet. Thus, at page 91, -we read:--"Some years ago when it was the practice to write the name of -a Member of Parliament for the purpose of franking a newspaper, a friend -of mine, previous to starting on a tour into Scotland, arranged with his -family a plan of informing them of his progress and state of health, -without putting them to the expense of postage. It was managed thus: he -carried with him a number of old newspapers, one of which he put into -the post daily. The postmark, with the date, showed his progress; and -the state of his health was evinced by the selection of the name, from a -list previously agreed upon, with which the newspaper was franked. 'Sir -Francis Burdett,' I recollect, denoted vigorous health." Better known is -the anecdote of a postal adventure of Samuel Taylor Coleridge, already -adverted to at the commencement of the present chapter. The story is -told originally, in Mr. Hill's pamphlet also:--Once, on the poet's -visits to the Lake district, he halted at the door of a wayside inn at -the moment when the rural postman was delivering a letter to the barmaid -of the place. Upon receiving it she turned it over and over in her hand -and then asked the postage of it. The postman demanded a shilling. -Sighing deeply, however, the girl handed the letter back, saying she was -too poor to pay the required sum. The poet at once offered to pay the -postage, and in spite of some resistance on the part of the girl, which -he deemed quite natural, did so. The messenger had scarcely left the -place, when the young barmaid confessed that she had learnt all she was -likely to learn from the letter; that she had only been practising a -pre-conceived trick: she and her brother having agreed that a few -hieroglyphics on the back of the letter should tell her all she wanted -to know, whilst the letter would contain no writing. "We are so poor," -she added, "that we have invented this manner of corresponding and -franking our letters." - -[95] Select Committee on Postage, 1843. - -[96] _Ibid._ - -[97] October, 1859, Art 9. See also Raikes' _Diary_, vol. iii. - -[98] "Lord Lowther," so Mr. Hill was told, "was a steady friend to Post -reform, and was well acquainted with the department." Without doubt the -new Postmaster-General's feelings, however ridiculous, were consulted in -this matter. Mr. Hill's anxiety for the general scheme, and for -subsequent minor proposals, was quite natural. When refused the Treasury -appointment, he asked to be taken into the Post-Office there to see his -plans worked out. Lord Lowther, when he comes to speak on the proposal, -somewhat indignantly asks the Treasury Lords if "the character and -fortunes of the thousands employed in the Post-Office are to be placed -at the mercy of an _individual_ who confesses that he is 'not very -familiar with the details of the methods now practised.'" "It is easy to -imagine," continued Lord Lowther, "the damage the community might -sustain from _his tampering_ with a vast machine interwoven with all the -details of Government and necessary to the daily habits and events of -this great Empire!" The matter is not one of "detail," but of -"principle;" if their Lordships want this or that carried into -execution, they have only to say so, and Lord Lowther will see that it -is done, "though it may be in opposition to my own opinion." - -[99] We find that Birmingham, at which town Sir Rowland Hill spent some -of the earlier years of his life, has been the first to move in the -matter. At a meeting held March 3, a statue was voted to cost 2,000_l._ -to be placed in the new public hall. A petition to the House of Commons -was likewise adopted. - -[100] This motion has twice been deferred, owing, it is said, to -representations made by members of both sides of the House of Commons. A -few days ago, an influential deputation from the House met the First -Lord of the Treasury at his official residence, the members of which -strongly urged, that in place of the deferred pension to Lady Hill, a -Parliamentary Grant, sufficient though reasonable, be made to Sir -Rowland Hill at once. It is considered certain that, when the House -resumes after Easter, Lord Palmerston will propose a grant, most -probably, of 30,000_l._ - - - - -CHAPTER VIII. - -EARLY RESULTS OF THE PENNY-POSTAGE SCHEME. - - -There are, of course, two aspects in which to contemplate the measure of -penny-post reform. The first relates to its social, moral, and -commercial results; the second views it in its financial relationship. -When the system had been in operation two years, it was found that the -success of the scheme in its first aspect had far surpassed the most -sanguine expectations ever formed of it by any of its advocates. As a -financial measure, it cannot be said to have succeeded originally. In -this latter respect it disappointed even Mr. Hill, who, though he never -mentioned the date when the revenue derivable from the Post-Office would -be recovered under the new system, was very emphatic in his assurances -that the loss during the first year would not exceed 300,000_l._ -Calculating upon a fourfold increase of letters, in his pamphlet[101] he -estimated the net revenue, after deducting for franks and newspapers, in -round numbers at 1,300,000_l._; a sum only 300,000_l._ less than the -revenue of 1837. We do not say that Mr. Hill originally calculated on -recovering the absolute _net_ revenue by the collection of postage; but -any deficiency which might continue after the scheme was fairly tried, -he expected to see supplied, eventually, by increased productiveness in -other departments of the revenue, which would be benefited by the -stimulus given to commerce by improved communication.[102] Before the -Parliamentary Committee he was equally explicit:[103] when asked, if, -on a fivefold increase, there would still be a deficiency on the net -revenue, he answered in the affirmative, to the extent of, he should -think, 300,000_l._ He again, however, stated his conviction that the -deficit would be made up by the general improvement of trade and -commerce in the country. It is true that events proved that the falling -off in the _gross_ revenue was considerably in excess of all the -calculations which had been made: but even under this head, much may be -said; and in considering the different results of penny postage, we -expect to be able to point out that the scheme had intrinsic qualities -in it, which, under proper treatment, must have made it in all respects -a success. Mr. Hill met another Parliamentary Committee in 1842, when -his recommendations--in their principal features, at any rate--had been -acted upon for nearly two years. In the course of this further -investigation--to the circumstances attending which we shall presently -allude--much information relative to the carrying out of the measure, -its successes, and failures, was elicited. - -It was shown beyond all dispute, that the scheme had almost entirely -prevented breaches of the law, and that if any illicit correspondence -was carried on, it was simply and purely in matters where the question -of speed was involved; that the evils, amounting to social prohibitions, -so prevalent before the change, had been, for the most part, removed. -Commercial transactions, relating even to very small amounts, were now -managed through the post. Small orders were constantly transmitted; -the business of the Money-order Office having increased almost -_twenty-fold_--first, from the reduction of postage in 1840, and then -from the reduction of the fees in November of the same year. These -orders are generally acknowledged. Printers send their proofs without -hesitation;[104] the commercial traveller writes regularly to his -principal, and is enabled for the first time to advise his customers of -his approach; private individuals and public institutions distribute -widely their circulars and their accounts of proceedings to every part -of the land. Better than any account that we might give of the reception -of this boon by the country, and the social and commercial advantages -which were immediately seen to follow from it, we may here give some -account of the correspondence which flowed in upon Mr. Hill between -1840-1842, and which he read to the select committee appointed to try -the merits of his scheme. Ten times the weight of evidence, and far more -striking instances of the advantages of the penny-post scheme might -_now_ be adduced, but it must be remembered that we are here speaking -merely of first results, and when the scheme had been but two years in -operation. Numbers of tradesmen wrote to say how their business had -increased within the two years. One large merchant now sent the whole of -his invoices by post; another increased the number of his "prices -current" by 10,000 per annum. Messrs. Pickford and Co. the carriers, -despatched by post _eight_ times the number of letters posted in 1839; -whilst the letters, had they been liable to be charged as per single -sheet, would have numbered 720,000 in 1842 from this one firm, against -30,000 letters in 1839. In this case we have an exemplification of the -correctness of the argument upon which Mr. Hill built his scheme; for -the increase of money actually paid for postage was at the rate of 33 -per cent. Mr. Charles Knight, the London bookseller, said the penny -postage stimulated every branch of his trade, and brought the country -booksellers into almost daily communication with the London houses. Mr. -Bagster, the publisher of a Polyglot Bible in twenty-four languages, -stated to Mr. Hill that the revision which he was just giving to his -work as it was passing through the press would, on the old system, have -cost him 1,500_l._ in postage alone, and that the Bible could not have -been printed but for the penny post. Secretaries of different benevolent -and literary societies wrote to say how their machinery had been -improved; conductors of educational establishments, how people were -everywhere learning to write for the first time in order to enjoy the -benefits of a free correspondence, and how night-classes for teaching -writing to adults were springing up in all large towns for the -same object. Mr. Stokes, the honorary secretary of the Parker -Society--composed of the principal Church dignitaries and some -intelligent laymen--which has done so much for ecclesiastical literature -by reprinting the works of the early English reformers, stated that the -Society could never have come into existence but for the penny postage. -One of the principal advocates for the repeal of the Corn Laws -subsequently gave it as his opinion, that their objects were achieved -_two years earlier_ than otherwise would have been the case, owing to -the introduction of cheap postage. After a lapse of twenty years, many -more useful societies might be mentioned of which the same could be -said. An interesting letter from the late Professor Henslow, the then -Rector of Hitcham in Suffolk, may be given, as it contains a pretty -accurate estimate of the social advantages accruing to the masses. The -professor had, consequent upon the change at the Post-Office, arranged a -scheme of co-operation for advancing among the landed interest of the -county the progress of agricultural science. After stating that the mere -suggestion of such a thing had involved him in a correspondence which he -could not have sustained if it had not been for the penny postage, he -goes on to say: "To the importance of the penny postage to those who -cultivate science, I can bear most unequivocal testimony, as I am -continually receiving and transmitting a variety of specimens by post. -Among them, you will laugh to hear that I have received three living -carnivorous slugs, which arrived safely in a pill-box! That the penny -postage is an important addition to the comforts of the poor labourer, I -can also testify. From my residence in a neighbourhood where scarcely -any labourers can read, much less write, I am often employed by them as -an amanuensis, and have frequently heard them express their satisfaction -at the facility they enjoy of now corresponding with distant relatives. -The rising generation are learning to write, and a most material -addition to the circulation of letters may soon be expected. Of the vast -domestic comfort which the penny postage has added to homes like my own, -I need say nothing more." Miss Harriet Martineau bore testimony to the -social advantages of the measure in the neighbourhood where she resided. -A celebrated writer of the period[105] gives it as his opinion, that -"the penny-post scheme was a much wiser and more effective measure than -the Prussian system of education" just then established. "By the -reduction of the postage on letters," adds he, "the use and advantage of -education has been brought home to the common man (for it no longer -costs him a day's pay to communicate with his family). A state machinery -of schoolmasters on the Prussian system would cost far more than the -sacrifice of revenue by the reduction of postage. This measure will be -the great historical distinction of the reign of Victoria. Every mother -in the kingdom who has children earning their bread at a distance lays -her head on the pillow at night with a feeling of gratitude for this -blessing." Almost all now living, who shared the benefits of the scheme -at this early date, could probably relate some anecdote which -circumstances had brought to their knowledge as to the operation of -penny postage _on the poorer classes especially_. Thus, the then -Inspector of Prisons for Scotland, visiting the Shetland Islands in -1842, writes:[106] "The Zetlanders are delighted with cheap postage. -The postmaster told me that the increase in the number of letters is -astonishing.... Another gentleman who is well acquainted with the people -told me, that although the desire of parents to keep their offspring at -home is unusually strong in Zetland, yet that cheap postage has had the -effect of reconciling families to the temporary absence of their -members, and has thus opened to the islanders the labour-market of the -mainland." An American writer,[107] in an admirable pamphlet on cheap -postage, says: "The people of England expend now as much money as they -did under the old system; but the advantage is, they get more service -for their money, and it gives a spring to business, trade, science, -literature, philanthropy, social affection, and all plans of public -utility." Joseph Hume, writing to Mr. Bancroft, then American minister -at the court of St. James's, 1848, says: "I am not aware of any reform, -amongst the many which I have promoted during the past forty years, that -has had, and will have, better results towards the improvement of the -country socially, morally, and politically." And Mr. Hill himself, in -addressing the Statistical Society in May, 1841,[108] made a statement -which was neither an idle nor a vain boast, when he assured them that -"the postman has now to make long rounds through humble districts where, -heretofore, his knock was rarely heard." - -We have yet the second, or financial, aspect of the measure to consider. -In two years a tolerably correct idea might be formed as to the results -of the scheme financially; but it would certainly not be fair to attempt -any full estimate of such a thorough reform within a more circumscribed -period. Not that this was not attempted. Colonel Maberly discovered, at -the end of the _first week_, that Mr. Hill's plan had failed, at any -rate, as a question of revenue. No doubt the wish was father to the -thought. He not only thought so, however, but proceeded to take timely -action and shield himself and his congeners against some probable -future attack. In his own words, he charged "the officials to take care -that no obstacle was thrown in the way of the scheme, so as to give a -colour to the allegation"--which the prophetic colonel was only too sure -would be made--"that its failure was owing to the unwillingness of the -authorities to carry it fairly into execution."[109] - -In the first year of penny postage, notwithstanding all the confident -prophecies to the contrary from those who might have been supposed to -have had means of judging, the net proceeds of the Post-Office were -between four and five hundred thousand pounds, whilst the number of -letters actually sent was _tripled_. Against a million and a half yearly -revenue of the previous year, there certainly appeared an enormous -deficit; but till all other arguments were exhausted, it ought not to -have been considered either evidence or proof of the failure of cheap -postage. In the first instance, the Post-Office authorities said the -scheme would not pay its expenses: a year sufficed to prove their -mistake. It was then said that the revenue sacrificed would never be -recovered, and accidental circumstances, of which we shall presently -speak, favoured for a time this view: the argument, however, was based -on erroneous views, as subsequent events have sufficiently shown. Bad as -things appeared, there were, nevertheless, many significant signs at the -end of two years that the _gross_ revenue under the old would soon be -reached under the new system, and even prospects that the past _net_ -revenue might still be recoverable. Both these anticipations have now -been entirely realized. With a tenfold--nay, in many cases, a -hundredfold--gain to different classes of the community--with the -Post-Office supplying more situations by thousands than under the -_ancien regime_, the old gross revenue was passed in 1850-1, and the net -revenue was reached last year. Moreover, every complaint under this head -has long since been silenced. Many considerations went to hinder the -early growth of the revenue; and it is to some of these considerations -that we must now turn for a moment. - -It is of primary importance that the reader should remember that Mr. -Hill, in his pamphlet and elsewhere, expressed a decided opinion that -the maintenance of the Post-Office revenue depended upon the carrying -out of _all his plans_.[110] In a speech which he delivered at -Wolverhampton, September 7th, 1839, he said: "The mere reduction in the -rates of postage will, of course, greatly increase the number of -letters; but much will still depend on the extent to which the -facilities for despatching letters are improved by a careful employment -of the many economical and speedy modes of conveyance which now exist, -and by a solicitous attention to all the minute ramifications of -distribution. If, on the one hand, due attention is paid to the -increasing demands of the public for the more frequent and more speedy -despatch of letters, and, on the other hand, pains are taken to keep -down the cost of management, though some temporary loss of revenue will -arise, I see no reason to fear that the loss will be either great or -permanent." Mr. Hill's proposals, it will be remembered, were embraced -under four principal heads. The first, a uniform and low rate of -postage, was fully carried out; but it was the only part of the measure -which was realized at this time. The second, increased speed in the -delivery of letters; and the third, consisting of provisions for -greater facility in the despatch of letters, were not attempted, or, -if attempted, only in the slightest degree. With regard to the -simplifications of the operations of the Post-Office, which formed the -fourth great item, little or nothing was done, though that little was -rendered easy of accomplishment by the uniformity of postage-rates. Not -only was the scheme not fairly worked, and the improvements only -partially carried out, but they were crippled in their operation by -officials who, if not hostile, were half-hearted and far from anxious -for a successful issue. The natural difficulties in the way of the -measure were numerous enough without the addition of official -opposition. Trade was flourishing when the Postage Bill was carried; it -was fearfully depressed in the first year of penny postage. It is well, -as Miss Martineau points out, that none foreknew the heavy reverse which -was at hand, and the long and painful depression that ensued after the -passing of the Act, for none might then have had the courage to go into -the enterprise. - -This circumstance, accounting, as it does, for some of the deficit in -the first and second years, also served to test the real principles of -the reform.[111] Mr. Hill's plan, though given over to the apathy and -_vis inertiae_ of the authorities--to "the unwilling horses of the -Post-Office," as Mr. Baring subsequently designated them--really worked -well, though at a loss, when everything else was working ill. Moreover, -the tendency of cheap communication to improve the general revenue of -the country was clearly apparent so early as 1842; and this is a fact -which ought not to be lost sight of for a moment. The reduction of -postage-rates was to the community a reduction of taxation; the capital -released was driven into other and perhaps more legitimate channels. The -Exchequer lost revenue from one source, but it gained it in other ways, -as a consequence on the outlay at the Post-Office. In 1842, there was an -acknowledged loss to the Post-Office revenue of 900,000_l._ In the same -year, no serious defalcation appeared in the general accounts of the -country, notwithstanding the extent of the depression in trade. - -There were special as well as general considerations entering into the -question of the acknowledged deficiency in the revenue. It is clear that -Mr. Hill--who did not foresee that so much money would be sacrificed, -and who was sanguine of recovering it at no distant date--likewise -could have had but an indefinite idea of the vast amount of extra -machinery which would be called into operation by the full development -of his plans; the extent of the measures that must follow if the country -was to be equally privileged with cheap correspondence; and the -concessions that would have to be granted when the wedge was driven in -by this, his principal measure. As one only of the causes leading to the -extra heavy expenses of the Post-Office department, we may mention the -changes in the system of mail-conveyance consequent on the introduction -of railways. Dating from 1838, railways had been gradually absorbing all -the stage-coach traffic. Mr. Hill, when making his original proposals, -calculated that the number of chargeable letters might be increased -twenty-four fold without overloading the mails, and without any material -addition to the sums paid to contractors. So great and important--we -would almost say vital--was the question of _speed_ to the Post-Office, -that railways were almost immediately brought into requisition, although -the cost of the carriage of the mails was, at the outset, doubled, -tripled, and even quadrupled! Many striking examples of the great -difference in the cost of the two services are furnished in different -Post-Office Reports. For instance:[112] In 1844, a coach proprietor in -the North of England actually _paid_ to the Post-Office Department the -sum of 200_l._ annually for what he regarded as the privilege of -conveying the mails, twice a-day, between Lancaster and Carlisle. Now -the Post-Office _pays_ the Lancaster and Carlisle Railway the sum of -18,000_l._ annually for the same service. The items of charges for -mail-conveyance by railway at the present time--if they could have -been known by any means, or even guessed at, by the enterprising -post-reformer of 1837--might have had the effect of deterring him from -offering his suggestions when he did. Certain it is, that the proposals -would have had small chance of success, if those who had charge of the -fiscal concerns of the country could have known that the sum which -would have to be paid by the Post-Office to railway companies alone, in -the year 1863, would not fall far short of the whole amount standing for -the entire postal expenses of 1839. - -In 1842 Mr. Hill left the Treasury, and was thus cut off from all active -supervision of his measures. The Post-Office authorities found a friend -in Mr. Goulbourn, the new Chancellor of the Exchequer, who was known to -sympathise with their views. It had been arranged that Mr. Hill should -continue his services for some short time longer in his improvised place -at the Treasury Offices. The divergence in the views of the new chiefs -and the reformer made his position more and more unpleasant. On his -being bowed out of office, Mr. Hill petitioned the House of Commons. The -petition--which was presented by Mr. Baring, the ex-Chancellor of the -Exchequer--described briefly the Post-Office measures of 1839; his own -appointment to the Treasury; the fact of his appointment being annulled; -the benefit of the new measures in spite of their partial execution; the -obstructive policy of the Post-Office officials; and thus concludes:-- - - "That the opinion adopted by Her Majesty's Government, that the - further progress in Post-Office improvements may be left to the - Post-Office itself, is contrary to all past experience, and is - contradicted by measures recently adopted by that establishment. - - "That, notwithstanding the extreme depression of trade which existed - when the penny rate was established, and has prevailed ever since; - and notwithstanding the very imperfect manner in which your - Petitioner's plans have been carried into effect, the want of due - economy in the Post-Office, the well-known dislike entertained by - many of those persons to whom its execution has been entrusted, and - the influence such dislike must necessarily have upon its success, - yet the results of the third year of partial trial, as shown by a - recent return made to the House of Lords, is a gross revenue of - two-thirds, and a net revenue of one-third, the former amount. - - "That your Petitioner desires to submit the truth of the foregoing - allegations to the severest scrutiny, and therefore humbly prays - your honourable House will be pleased to institute an inquiry into - the state of the Post-Office, with the view of adopting such - measures as may seem best for fully carrying into effect your - Petitioner's plans of Post-Office improvement, and thus realizing - the undoubted intentions of the Legislature." - -The prayer of the petition was granted, and its proceedings are duly -chronicled.[113] The object of this committee was "to inquire into the -measures which have been adopted for the general introduction of a penny -rate of postage, and for facilitating the conveyance of letters; the -results of such measures, as far as relates to the revenue and -expenditure of the Post-Office and the general convenience of the -country; and to report their observations thereon to the House." Before -proceeding to give any account of the further measures brought under -discussion in connexion with this committee, we must give, in a few -sentences, a _resume_ of the principal improvements which had actually -been carried out during the interval of the sittings of the two -committees. - - 1. The uniform rate of one penny for a letter not above half an - ounce, with weight adopted as the standard for increase of charge. - - 2. The value of a system of prepayment was established,[114] the - necessary facility being afforded by the introduction of - postage-stamps. Double postage was levied on letters not prepaid _in - London only_. - - 3. Day-mails were established on the principal railway-lines running - out of London, thus giving some of the principal towns in the - provinces one additional delivery, with two mails from the - metropolis in one day. - - 4. An additional delivery was established in London, and two were - given to some of the suburbs. - - 5. Colonial and foreign rates for letters were greatly lowered, the - inland rates--viz. the rates paid for those letters passing through - this country--being abandoned altogether in some cases, as Mr. Hill - had recommended. - - 6. The privilege of franking, private and official, was abolished, - and low charges made for the transmission of parliamentary papers. - - 7. Arrangements were made for the registration of letters. - - 8. The Money-order Office was rendered available to a fourfold - extent. And-- - - 9. The number of letters increased from 75 millions in 1838-9, to - 219 millions in 1842-3.[115] - -This was certainly a large instalment of the improvements which the -promoters of penny-post reform hoped to see realized; but, at the same -time, it was only an instalment. The committee for which Mr. Hill had -petitioned must now judge for themselves whether all had been done that -might and ought to have been done to enhance the merits of the measure, -and make it as profitable to the country as possible. In addition, it -was requisite that they should consider several further suggestions -which Mr. Hill had, since the introduction of his plan, proposed as -likely to improve it, as well as hear him on some of the objections that -had been raised to it. Thus, with regard to the latter, the Chancellor -of the Exchequer (Mr. Goulbourn) had stated; just before the committee -was appointed, that "the Post-Office did not now pay its expenses." This -statement was startling, inasmuch as Colonel Maberly himself had given -500,000_l._ or 600,000_l._ as the proceeds of the penny postage rates in -the advent year of the measure. But Mr. Hill resolved the difficulty. -The inconsistency was explained quite simply, that in a return furnished -by the Post-Office, the whole of the cost of the packet-service--a -little over 600,000_l._--was charged against the Post-Office revenue. -Though the cost of the packets had not been charged against the -Post-Office for twenty years previously, this new item was here debited -in the accounts to the prejudice of the scheme; and Mr. Goulbourn, who -disclaimed any hostility to the new measure, thought himself justified, -under the circumstances, in making the statement in question. - -Again: It was strongly and frequently urged that correspondence was less -secure than under the old system. It was said by the Post-Office -officials, that the system of prepayment operated prejudicially against -the security of valuable letters. Under the old _regime_ it was argued, -the postman was charged with a certain number of unpaid letters, and -every such letter, so taxed, was a check upon him. "What security," it -was now asked, "can there be for the delivery of letters for which the -letter-carriers are to bring back no return?" With prepaid letters, it -was said, there was great temptation, unbounded opportunity for -dishonesty, and no check. To some extent, and so far as letters -containing coin or other articles of value were concerned, there were -some grounds for these remarks. It is a great question whether, in the -case of valuable letters, the dishonest postman would be discouraged -from a depredation by the thought that he would have the postage of the -letter to account for; but still, freedom from all such considerations, -under the new system, would clearly seem to increase the risks which the -public would have to run. Previously to the penny postage era, all -letters containing, or supposed to contain, coin or jewellery, were -registered gratuitously at the Post-Office as a security against their -loss. Under the new system, it was considered impracticable to continue -the service, and the Post-Office authorities, with the sanction of the -Treasury, dropped it altogether. The Money-order Office was available; -the fees had been greatly reduced, and the officials, in warning persons -against sending coin in letters, strongly recommended that this Office -should be used for the purpose. Still, the number of coin-letters -increased, and the number of depredations increased with them, to the -great prejudice of the measure. Mr. Hill, whilst in the Treasury, -recommended a system of registration of letters, which appears to have -been somewhat similar to a plan proposed by the Post-Office authorities -themselves in 1838. A system of registration was the result; but the -rate of charge of one shilling per letter was enough in itself to render -the entire arrangement nugatory. In October, 1841, Lord Lowther proposed -to the Treasury that they should let him put down the evil in another -way, viz. that they should allow him to use his powers, under the 3 & 4 -Vict. c. 96, sec. 39, to establish a _compulsory_ registration of -letters supposed to contain coin or jewellery, and to make the charge -for such compulsory registration a shilling per letter. The Treasury -Lords referred the proposal to Mr. Hill. He concurred in the opinion of -the Postmaster-General, and thought the principle of compulsory -registration quite fair. He pointed out, however, in a letter to the -Chancellor of the Exchequer, many objections to the plan, and contended -that, so long as the registration fee was fixed at the high rate of a -shilling, inducements enough were not held out to the public to register -their letters _voluntarily_. Mr. Hill, therefore, suggested that the fee -should be at once lowered to sixpence, to be reduced still further as -soon as practicable. The public, under a lower rate, would have little -excuse for continuing a bad practice; but if it was continued, -restrictive measures might _then_ be tried, as the only remaining method -of protecting the public from the consequences of their own imprudence. -The sixpenny rate would, he thought, be remunerative; nor would the -letters increase to a much greater number than that reached under the -old system when they were registered gratuitously. This subject was -still under discussion when the special committee was granted, when, of -course, all the proposals relative to the registration of letters were -laid before it and investigated. Strong objections were made to Mr. -Hill's proposition to lower the rate. It was contended that the number -of registered letters would so increase, that other Post-Office work -could not be accomplished. The Postmaster-General, for example, -contested the principle of registration altogether, admitting, however, -that it was useful in reducing the number of ordinary letters containing -coin, and the consequent temptations to the officers of the Post-Office. -Like many of the additional proposals, this subject was left undecided; -but no one at this date questions the propriety of the recommendations -made under this head. The charge for registration has, within the last -few years, been twice reduced, with benefit to the revenue, and no -hindrance to the general efficiency of the Post-Office. Not only so, but -the compulsory registration clause is now in active operation. - -We cannot enter far into the minutiae of the Committee's deliberations. -Mr. Hill endeavoured to show that economy in the management of the -Post-Office had been neglected. The number of clerks and letter-carriers -which had sufficed for the complex system that had been superseded, must -more than suffice for the work of the Office under his simplified -arrangements: yet no reduction had been made. Economy, he said, had been -neglected in the way contracts had been let; in the manner railway -companies were remunerated for carrying mails. He computed that the sum -of 10,000_l._ a-year had been paid to these companies for space in the -trains that had never been occupied. He also endeavoured to show that -the salaries of nearly all the postmasters in the country needed -revision; that the establishments of each should also be revised. The -changes under the new system, taken together with the changes which -railways had made, had had the effect of increasing the work of some -offices, but greatly decreasing that of many more. He proposed that -there should be a complete revision of work and wages; that postmasters -should be paid on fixed salaries; and that all perquisites, with the -exception of a poundage on the sale of postage-stamps, should be given -up. Late-letter fees had, up to the year 1840, been received by the -postmasters themselves. Under the Penny Postage Act, however, these fees -went to the revenue, and compensation, at a certain fixed rate, was -granted to the postmasters in lieu of them. Mr. Hill stated that the -amount of compensation granted was generally too much, and was to be -accounted for on the ground that the postmasters had, in all the cases, -made their own returns. - -Mr. Hill's principal recommendations to this Committee were-- - - (1) The plan of a cheap registration of letters. (2) That _all_ - inland letters should be prepaid (care being taken that postmasters - should be supplied with a sufficient stock of postage-stamps), and - double postage charged for all unpaid letters. (3) Reduction in the - staff of officers till the number of letters increased to five or - sixfold; that the London officers should be fully and not only - partially employed; and that female employment might be encouraged - in the provinces. (4) Simplification in the mode of assorting - letters. (5) The adoption of measures to induce the public to - facilitate the operations of the Post-Office--by giving complete and - legible addresses to letters, by making slits in house-doors, and - other means. (6) The establishment of a greater number of rural - post-offices, till, eventually, there should be one set up in every - village. (7) All restrictions as to the weight of parcels to be - removed, and a book-packet rate to be established, with arrangements - for conveying prints, maps, &c. &c. That railway stations should - have post-offices connected with them, and that letter-sorting - should be done on board the packets, were among his miscellaneous - suggestions. - -With especial reference to the London Office, Mr. Hill recommended (1) -the union of the two corps of general and district letter-carriers; (2) -the establishment of district offices; (3) an hourly delivery of letters -instead of one every two hours, the first delivery to be finished by -nine o'clock. - -Nearly the whole of these recommendations were combated by the officers -of the Post-Office during their examination--and successfully so--though -it is certainly remarkable that, in the face of their opinions, the -great majority of the proposals have subsequently been carried out with -unquestioned advantage to the service. It would be a weary business to -relate the objections made, and the exceptions taken to each -recommendation as it came up to be considered. Of course the _non -possumus_ argument was frequently introduced. Colonel Maberly said it -was an impossibility that there should be hourly deliveries in London. A -post-office in every village was thought equally absurd. We need only -add, that the labours of the Committee led to little practical result. -They decided, by a majority of four, not to report any judgment on the -matter. Though this result must have been eminently unsatisfactory to -Mr. Hill, especially on account of their not having expressed themselves -on his grievances, yet, by refusing to exonerate the Post-Office from -the charges which he had brought against it, the Committee may be said -to have found for the reformer. With regard to Mr. Hill's further -suggestions, they refer to the evidence, and, "entertain no doubt that -his propositions will receive the fullest consideration" from the -Treasury and the Post-Office. So they did eventually, after some weary -years of waiting. Fifty years before, Mr. Palmer, writing to Mr. Pitt, -said, "I have had every possible opposition from the Office." Mr. Hill -might truly have said the same. Thus it is that history repeats itself, -and "the thing which hath been, it is that which shall be." - - -FOOTNOTES: - -[101] _Post-Office Reform_, p. 26. - -[102] _Results of the New Postal Arrangements_, read before the -Statistical Society of London, 1841. - -[103] Second Report, p. 365. - -[104] The reader of such books as Cowper's _Life and Letters_, and -Moore's _Correspondence_, will find that the means of obtaining franks, -or carriage for their manuscripts or proofs, gave the poets frequent -uneasiness, and lost them much time. So with many needy literary men, in -what Professor de Morgan somewhat absurdly calls the "Prerowlandian -days." The Professor himself gives an instance of an author sending up -some dry manuscripts to him, under cover to a member of Parliament, -expressing a hope, we think, that the representative would feel some -interest in the subject. - -[105] Laing's _Notes of a Traveller_. - -[106] _Fraser's Magazine_, September, 1862. - -[107] Mr. Joshua Leavitt. - -[108] Page 96. - -[109] Select Committee on Postage, 1843, p. 246. - -[110] Parliamentary Committee, _Third Report_, p. 64. - -[111] "The first result of the scheme amply vindicated the policy of the -new system, but it required progressive and striking evidence to exhaust -all opposition."--_Ency. Brit._ Eighth Edition. - -[112] Postmaster-General's _First Report_. - -[113] Select Committee on the Post-Office, 1843. - -[114] In the last month of high charges, of two and a half million -letters passing through the London Office, nearly two millions were -unpaid, and few more than half a million paid. Twelve months afterwards, -the proportion of paid to unpaid letters was entirely changed, the -latter had run up to the enormous number of five and a half millions; -the former had shrunk to about half a million. - -[115] Select Committee on Postage, 1843, p. 93. - - - - -CHAPTER IX. - -THE POST-OFFICE AND LETTER-OPENING. - - -It will be fresh in the memory of many readers, that the year 1844 -revealed to the public certain usages of the Government, and a branch of -post-office business--previously kept carefully in the dark--which went -far to destroy the confidence of the nation in the sanctity of its -correspondence. In the session of 1844, Mr. Thomas S. Duncombe presented -a petition from Mr. W. J. Linton, M. Mazzini, and two other persons -residing at 47, Devonshire Street, Queen's Square, complaining that -their letters were regularly detained and opened at the Post-Office. The -petitioners declared that they "considered such a practice, introducing -the spy-system of foreign states, as repugnant to every principle of the -British constitution, and subversive of that public confidence which was -so essential to a commercial country." The petitioners prayed for an -inquiry, and Mr. Duncombe supported their prayer. Sir James Graham, then -Home Secretary, got up in the House and stated that, as regarded three -of the petitioners, their letters had not been detained; as for the case -of M. Mazzini, a warrant had been obtained from the Home-Office to stop -and open the correspondence of that person. He had the power by law and -he had exercised it. "The authority," said Sir James, "was vested in the -responsible Ministers of the Crown, and was intrusted to them for the -public safety; and while Parliament placed its confidence in the -individual exercising such a power, it was not for the public good to -pry or inquire into the particular causes which called for the exercise -thereof."[116] He hoped that the House would confide in his motives, and -that they would not call upon him to answer any further inquiries. The -speech of the Home Secretary added fuel to the flame. Had Sir James -Graham entered more fully into the subject, and gone into the real state -of the law, it is probable that the subject might have been allowed to -drop. Not only was the slightest explanation of the principle adopted -refused by the Home Secretary, but that refusal was given somewhat -cavalierly. Public attention was thus roused; the most exaggerated -rumours got abroad; it was openly stated by the press that a gigantic -system of espionage had been established at St. Martin's-le-Grand, and -now no mere general assurances of its unreality could dispel the talk or -stop newspaper extravagances. Sir James Graham was abused most -unreasonably. There was hardly a public print or public speaker in the -kingdom that did not heap insults or expressions of disgust on his name. -This state of things could not continue; accordingly, we find Lord -Radnor, moving soon after in the House of Lords, for a return of all the -warrants which had been issued for the detention of letters during a -certain period, animadverting especially upon the alleged practice of -general warrants to intercept all letters addressed to a certain person -instead of there being issued a separate warrant in the case of each -letter.[117] This mode of proceeding, as he truly said, if acted upon, -was a flagrant violation of the words of the statute. Lord Campbell -expressed the same views. Lord Brougham observed that the first statute -conferring this power had been framed by Lord Somers. It had been -continued ever since by various Acts, and had been exercised by Sir -Robert Walpole, Lord Grenville, and Mr. Fox, as well as under the -administrations of Lord Grey and Lord Melbourne. If Lord Campbell's -construction of the Act were correct, the sooner they had a new one the -better. Lord Denman was for putting an end to the power altogether. The -return was granted, the Duke of Wellington approving the Home -Secretary's conduct notwithstanding. - -On the 24th of June, 1844, Mr. Duncombe again called the attention of -the House of Commons to the subject, by presenting a petition from Mr. -Charles Stolzman, a Polish refugee, complaining that his letters had -been detained and opened. Mr. Duncombe contended that the Act of 1837 -never meant to confer an authority upon a Minister of the Crown to -search out the secrets of exiles resident in this country at the -instance of foreign Governments, but was only designed to meet the case -of domestic treason. "Mr. Stolzman was a friend of M. Mazzini," said Mr. -Duncombe, "and this was why his letters had been tampered with." After -describing the way in which letters were opened, he concluded a most -powerful speech by again moving for a committee of inquiry. He did not -want to know Government secrets; he doubted if they were worth knowing; -but he wanted inquiry into the practice of the Department, which he -contended was unconstitutional and contrary to law. Sir James Graham, -without entering into any further explanation, except saying that the -law had not been violated, and that if it had, the honourable member -might prove it before a legal tribunal, objected strongly, and in almost -a defiant manner, to any committee. Mr. Macaulay, Lord Howick, Mr. -Sheil, and Lord John Russell warmly supported the motion for an inquiry. -Sir Robert Peel, Lord Stanley, and Mr. Monckton Milnes opposed it, when -it was rejected by a majority of forty-four. What party speeches failed -in doing, the clamour and popular tumult outside at length accomplished. -Popular ridicule settled upon the subject; pencil and pen set to work -upon it with a will. Newspapers were unusually, and sometimes -unreasonably, free in their comments, and all kinds of stories about the -Post-Office went the round of the press. Sir James Graham had to bear -the brunt of the whole business; whereas the entire Cabinet, but -especially Lord Aberdeen, the Foreign Secretary, ought equally to have -shared the opprobrium. As it was, the bearing of the Home Secretary in -the House of Commons was singularly unwise and unadroit. The subject had -now come to be regarded as of too great public importance to be suffered -to rest; besides, it was an attractive one for the Opposition side of -the House. Mr. Duncombe renewed his motion towards the end of July in -the same session. It was in a slightly altered form, inasmuch as he now -moved for a select committee "to inquire into a department of Her -Majesty's Post-Office commonly called 'the secret or inner office,' the -duties and employment of the persons engaged therein, and the authority -under which the functions of the said office were discharged." Mr. -Duncombe made some startling statements as to the mode and extent of the -practice of letter-opening, all of which he declared he could prove if -the committee was granted. The Government saw the necessity of giving -way, in order that the public mind might be quieted. The Home Secretary -now acknowledged, that since he was last questioned on the subject, the -matter had assumed a very serious aspect, and he thought it was time -that the truth, the whole truth, and nothing but the truth, should be -told. Though he would have readily endured the obloquy cast upon him, -even though it should crush him, rather than injure the public service; -and though he had endured much, especially after the votes and speeches -of the Opposition leaders--all men conversant with official duties--in -favour of Mr. Duncombe's former motions, he now felt himself relieved -from his late reserve, and felt bound to confess that he believed it to -be impossible to maintain the power confided to him longer without a -full inquiry. He would now not only consent to the committee, but would -desire that it should make the fullest possible inquiry, and he would -promise on his part, not only to state all he knew, but lend all the -resources of his Department to attain that object. In accordance with -this determination, he proposed that the Committee should be a secret -one, invested with the amplest powers to commence the investigation at -once, and should be composed of five usually voting against the -Government, viz. Sir C. Lemon, Mr. Warburton, Mr. Strutt, Mr. Orde, and -the O'Connor Don; and four who generally support them, viz. Lord Sandon -(chairman), Mr. T. Baring, Sir W. Heathcote, and Mr. H. Drummond. "To -this committee," said Sir James, "I gladly submit my personal honour and -my official conduct, and I make my submission without fear." The -committee was appointed after Mr. Wilson Patten's name had been -substituted for Mr. Drummond's, on account of the latter being a lawyer; -and after an unsuccessful attempt to add Mr. Duncombe's name, which was -rejected by 128 to 52. Its object was "to inquire into the state of the -law with respect to the detaining of letters in the General Post-Office, -and to the mode in which that power had been exercised, and that the -Committee should have power to send for persons, papers, and records, -and to report the result of their inquiry to the House." A Committee of -the House of Lords was appointed at the same time. Sir James Graham's -examination lasted four days, when he fulfilled his pledge to make a -full and unreserved disclosure of all he knew. Almost all the members of -that and former Governments were examined. Lord John Russell confessed -to having done the same as Sir James Graham when he held the seals of -the Home-Office, though he had not used the power so frequently. He also -stated that he supported Mr. Duncombe in his previous motions for -inquiry, because he thought it necessary that the public should have the -information asked for. Lord Normanby had used the power in Ireland for -detecting "low ribbonism, which could not be _ferretted out_ by other -means." Lord Tankerville testified to the existence of a warrant signed -by Mr. Fox in 1782, ordering the detention and opening of all letters -addressed to foreign ministers; another, ordering that all the letters -addressed to Lord George Gordon should be opened. Witnesses were also -brought from the Post-Office. Mr. Duncombe, on being asked for a list -of witnesses to prove his allegations, refused to hand in their names -unless he were allowed to be present during the examination. This the -Committee had no power to grant, and consequently he declined to -proceed. Mr. Duncombe appealed to the House, but the decision of the -Committee was confirmed. - -No inconsiderable part of the Committee's time was taken up in the -production and examination of records, acts, and precedents bearing on -the subject. The officers of the State Paper Office and other high -Government functionaries produced records and State papers of great -importance, from which we learn many interesting particulars of early -postal history. At some risk of being charged with anachronism, we have -thought it desirable to introduce these details in the order of the -_subject_ under treatment. - -James I. in establishing a foreign post, was more anxious that -Government secrets should not be disclosed to foreign countries, "which -cannot be prevented if a promiscuous use of transmitting foreign letters -and packets should be suffered," than that the post should be of use to -traders and merchants. There was a motive for the jealous monopoly of -postal communications; and if the proclamation from which the above is -taken (Rymer's Foedera) is not clear on the subject, the following -extract from a letter written by the one of James's secretaries to the -other, Lord Conway, is sufficiently explicit: "Your Lordship best -knoweth what account we shall be able to give in our place in Parliament -of that which passeth by letters in and out of the land, if every man -may convey letters as he chooseth." Sir John Coke, the writer of the -above, would seem to have got rid of the difficulty in a thorough -manner, if we may believe an English letter-writer addressing a friend -in Scotland, when he wrote, "I hear the posts are waylaid, and all -letters taken from them and brought to Secretary Coke."[118] - -During the Commonwealth, of course, letter-opening was to be expected. -The very reason which Cromwell gave for establishing the posts was, that -they would be "the best means of discovering and preventing many wicked -designs against the Commonwealth, intelligence whereof cannot well be -communicated but by letter of escript." Foreign and home letters shared -an equal fate. On one occasion, the Venetian ambassador remonstrated -openly that his letters had been delayed and read, and it was not -denied. At the Restoration, a distinct clause in the "Post-Office -Charter" provided that "no one, except under the immediate warrant of -one of our principal Secretaries of State, shall presume to open any -letters or pacquets not directed unto themselves." - -Under the improved Act of Queen Anne, 1711, it is again stated that "no -person or persons shall presume to open, detain, or delay any letter or -letters, after the same is or shall be delivered into the General or -other Post-Office, and before delivery to the persons to whom they are -addressed, except by an express warrant in writing under the hand of one -of the principal Secretaries of State for _every such opening_, -detaining, or delaying." This Act was continued under all the Georges, -and again agreed to in 1837, under 1 Vict. c. 32. - -During the last century, the practice of granting warrants was -exceedingly common; and they might be had on the most trivial pretences. -It was not the practice to record such warrants regularly in any -official book,[119] and few are so recorded: we can only guess at their -number from the frequent mention made of them in the State trials of the -period, and in other incidental ways. In 1723, at Bishop Atterbury's -trial, copies of his letters were produced and given in evidence against -him. A clerk from the Post-Office certified to the fact that they had -passed through the post, and that he had seen them opened, read, and -copied. Atterbury, as well he might, asked for the authority for this -practice; and, especially, if the Secretary of State had directed that -his letters should be interfered with? A majority in the House of Lords -decided that the question need not be answered. It is pleasant to relate -that twenty-nine peers recorded an indignant protest against this -decision. One of them proposed to cross-examine the Rev. (!) Edward -Willes, "one of His Majesty's Post-Office decipherers," but the majority -going to a still greater length, resolved: "That it is the opinion of -this House that it is not consistent with the public safety to ask the -decipherers any questions which may tend to _discover the art or mystery -of deciphering_."[120] Again, at the trial of Horne Tooke for high -treason in 1795, a letter written to him by Mr. Joyce, a printer, was -intercepted at the Post-Office, and was stated by the prisoner to be the -immediate occasion of his apprehension. On his requiring its production, -a duly certified copy was brought into Court by the Crown officers and -given in evidence. - -Twelve years after the trial of Bishop Atterbury, members of both Houses -became alarmed for the safety of their correspondence, and succeeded in -getting up an agitation on the subject. Several members of the House of -Commons complained that their letters had been opened. Revelations were -made at this time which remind us strongly of the episode of 1844, both -discussions resulting in a parliamentary committee of inquiry. It was -stated in the debate of 1735, that the liberty which the Act gave "could -serve no purpose but to enable the idle clerks about the office to pry -into the private affairs of every merchant and gentleman in the -kingdom."[121] It transpired on this occasion that a regular -organization existed, at enormous expense, for the examination of home -and foreign correspondence. The Secretary of the Post-Office stated that -the greater part of 45,000_l._ had been paid, without voucher of any -kind, to Robert, Earl of Oxford, for defraying the expenses of this -establishment. Among the principal annual expenses were the salaries of -the chief decipherers[122] (Dr. Willes and his son), 1,000_l._; the -second decipherer, 800_l._; the third, 500_l._; four clerks, 1,600_l._; -doorkeeper, 50_l._; incidental charges, but principally for seals, -100_l._ The result of the inquiry was, that the Committee condemned the -practice, and the House declared that it was a breach of privilege on -the part of the Government to use the power except in the exact manner -described in the statute. - -Whether any real improvement took place may best be judged by the -following circumstances. Walpole, who doubtless carried his prerogative -in those matters beyond any two Secretaries of State we could mention, -lent his ear to both public and private applications alike, issuing -warrants even to further cases of private tyranny. In the Report of the -Secret Committee, p. 12, we find that a warrant is granted, in 1741, for -what purpose may be judged by the following: "At the request of A, a -warrant is issued to permit A's eldest son to open and inspect any -letters which A's youngest son might write to two females, one of which -that youngest son had imprudently married." And this inquisitorial -spirit beginning with the highest, descended even to the lowest class of -officials. A writer in the _Encyclopaedia Britannica_, vol. xviii. p. 405 -(quoting from the _State Trials_, vol. xviii. p. 1369), tells us, in -relation to this subject, that so little attention was paid to the -requirements of the Act of Queen Anne, or the Committee of the House of -Commons just referred to, the very bellmen took to scrutinizing the -letters given them for their bags. One of those functionaries was -examined at the trial of Dr. Hensey in 1758, and deposed as follows: -"When I have got all my letters together I carry them home and sort -them. In sorting them I observed that the letters I received of Dr. -Hensey were generally directed abroad and to foreigners; and I, knowing -the Doctor to be a Roman Catholic, advised the examining-clerk at the -office to inspect his letters." This witness, in answer to the -questions, "How came you to know Dr. Hensey to be a Roman Catholic?" and -"What had you to do with his religion?" clinched his evidence thus: "We -letter-carriers and postmen have great opportunities to know the -characters and dispositions of gentlemen, from their servants, -connexions, and correspondents. But, to be plain, if I once learn that a -person who lives a genteel life is a Roman Catholic, I immediately look -upon him as one who, by education and principle, is an inveterate enemy -to my King and country." - -At the beginning of the present century an improvement was carried out. -It was seen that the indiscriminate issue of the warrants was stimulated -and fostered by the fact that no account was kept of them. As a means of -placing a necessary check upon the officers, Lord Spencer, then Home -Secretary, introduced the custom in 1806, of recording the dates of all -warrants granted, and the purposes for which they were issued. Since the -year 1822, the whole of the warrants themselves have been preserved at -the Home Office. In comparing the number of warrants issued by different -Home Secretaries during the present century, we find that Sir James -Graham enjoys the unenviable notoriety of having granted the greatest -number, though the fact is partly explained by the commotion which the -Chartists made in the north of England, 1842-3. - -The revelations made in the two Committees with reference to foreign -correspondence, especially that of foreign Ministers accredited at the -English Court, were very remarkable, and not likely to induce confidence -in our postal arrangements on the part of other powers. It was shown -that in times of war whole foreign mails had been known to have been -detained, and the letters almost individually examined. The Lords' -Committee went so far as to say it was clear, "that it had been for a -long period of time and under successive administrations, up to the -present time, an established practice that the foreign correspondence of -foreign Ministers passing through the General Post-Office should be sent -to a department of the Foreign Office, before the forwarding of such -correspondence, according to the address." What the feelings of foreign -Governments were at this revelation may well be imagined. They would -know, of course, that the English Government, hundreds of years ago, -had not scrupled to lay violent hands on the letters of their -representatives, if by any possibility they could get hold of them. When -Wolsey, for example, wanted possession of the letters of the ambassadors -of Charles V. he went to work very openly, having ordered "a watche -should be made" in and about London, and all persons going _en route_ to -the Continent to be questioned and searched. "One riding towards -Brayneford," says an early record, "when examyned by the watche, -answered so closely, that upon suspicion thereof, they searched hym, and -found secretly hyd aboute hym a pacquet of letters in French." In the -reign of Queen Mary, Gardiner ordered that the messengers of Noailles, -the French ambassador, should be taken and searched in much the same -manner.[123] Notwithstanding this, they would scarcely be prepared for -the information that later Governments, with less to fear, had preferred -more secret measures, establishing a system of espionage which was -certainly not in accordance with the English character, or likely to -subserve the interests of peace in Europe. That the arrangement with -regard to foreign mails was unlawful, may be judged by the prompt -action which was taken in the matter. "Since June, 1844, the -Postmaster-General," so runs the Lords' Report two months later, "having -had his attention called to the fact, that there was no sufficient -authority for this practice, has discontinued it altogether." - -The Commons' Committee reported that the letter-opening warrants might -be divided into two classes--(1) Those issued in furtherance of criminal -justice, usually for the purpose of affording some clue to the -hiding-place of an offender, or to the mode or place of concealment of -property. (2) Those issued for the purpose of discovering the designs of -persons known or suspected to be engaged in proceedings dangerous to the -State, or deeply involving British interests, from being carried on in -the United Kingdom. In the case of both classes of warrants, the mode of -proceeding was nearly similar. The first were issued on the application -of the law-officers; the principal Secretary of State himself determined -when to issue the latter. No record was kept of the grounds on which the -second class of warrants were issued. "The letters which have been -detained and opened are," according to the Committee,[124] "unless -retained by special order, as sometimes happens in criminal cases, -closed and re-sealed _without affixing any mark to indicate that they -have been so detained and opened_, and are forwarded by post according -to their respective superscriptions." They then classed the warrants -issued during the present century in the following way:--For thefts, -murders, and frauds, 162; for treason and sedition, 77; foreign -correspondence, 20; prisoners of war, 13; miscellaneous, 11; and for -uncertain purposes, 89. Undoubtedly, with one class of letters, the -Government were only performing a duty in applying the law as laid down -in 1 Vict. c. 33. The information obtained by the warrants to find the -_locale_ of Chartist disaffection was described by the Committee as most -valuable and useful to the Government. While the whole history of the -transaction in question grates unpleasantly on English ears, there can -be no doubt that in other cases--such as frauds on the banks and -revenue, forgeries, murders, &c.--the power was used impartially to the -advantage of individuals and the benefit of the State. Whether, however, -the discoveries and the benefits were so many as to counterbalance the -odium of countenancing what was so like a public crime, and which -violated public confidence in the Post-Office, or whether the issue of a -few warrants annually, in proportion to the 40,000 committals[125] which -took place yearly at that time, could by any means be called an -efficient instrument of police, are vastly different questions. With -regard to the general question of letter-opening, the issue was -altogether vague and uncertain. Though the _practical_ end of the -inquiry was, no doubt, gained, and warrants may almost be said to have -ceased, still the Committees recommended Parliament to decide that the -power and prerogative of opening letters, under certain given -circumstances, should _not_ be abrogated. They argued that, if the -_right_ of the Secretary of State was denied, it would be equivalent to -advertising to every criminal conspirator against the public peace, that -he might employ the Post-Office with impunity.[126] It was decided, in -consequence of this finding, that the law should remain unaltered. - -Mr. Duncombe was not satisfied. In the next session he attempted to -revive the subject by calling the attention of the House to what he -termed the evasive and unsatisfactory character of the report of the -Secret Committee, and moving the appointment of a Select Committee to -investigate the whole subject over again; but he met with little -success. Sir J. Graham, Sir. R. Peel, Viscount Sandon, Mr. Warburton, -Mr. Ward, and Lord John Manners, spoke against his motion, which he then -withdrew. Upon this, Lord Howick tried to carry a resolution for the -appointment of a Committee to inquire into the case of Mr. Duncombe's -letters only. Mr. Disraeli seconded the motion, desiring not to have the -Government censured, but to see the practice condemned. Mr. Roebuck -believed that the country would not be content until the invidious power -intrusted to the Secretary of State respecting letter-opening was -absolutely abolished. Lord John Russell spoke against the motion, which -was negatived by 240 to 145 members.[127] A few days later Mr. Duncombe -renewed his attack in another form, moving that Colonel Maberly, -Secretary to the Post-Office, should attend at the bar and produce -certain books connected with his office. The Home Secretary resisted the -motion, grounding his objection on the reports of the Committees and the -necessities of the public service. Lord John Russell and a great number -of the Liberal party concurring in this view, the motion was again -rejected by 188 to 113.[128] For some weeks the subject was not again -noticed in Parliament, and probably would have dropped; but it was a -theme on which the Press could not be induced to be silent. Fresh events -occurring in Italy, owing, it was said, to the past action of the -English Government at the Post-Office, Mr. Sheil gave notice of a -resolution, which he moved on the 1st of April, 1845, expressing regret -that Government had opened the letters of M. Mazzini, thus frustrating -the political movement in Italy. Few members, however, showed any desire -to prolong a desultory debate, and thirty-eight only were found willing -to affirm Mr. Sheil's proposition. Mr. Wakley, a day or two afterwards, -tried to revive the same discussion, but a motion which he made was -negatived by three to one. On the 8th of April, 1845, Mr. Duncombe, -while intimating his desire to waive personal questions, and disclaiming -all party feeling, moved for leave to bring in a Bill "to secure the -inviolability of letters passing through the Post-Office." He was at war -with the system, not with the Government. Let the Government approach -the subject in a fair and not in a party spirit. All the Ministers, -however, and the chiefs of the Liberal party, again stoutly resisted any -change in the law; and this long controversy was finally set at rest by -an adverse decision of 161 to 78. - -The English people, it must be added, all along objected less to the -_power_ which the Government possessed in the exertion of their -discretion, than to the _manner_ in which that power was exercised. Mr. -Duncombe's statements during the earlier stages of the discussions, -relating to the "secret office"--never denied--could not be forgotten by -the public when they intrusted their letters to the custody of the -Post-Office. The revelations in question caused a perfect paroxysm of -national anger, because it was felt, throughout the length and breadth -of the land, that such arrangements were repugnant to every feeling of -Englishmen. Had the officers of the Government broken open letters in -the same way as, under certain circumstances, the law allows the -sheriff's officers to break open houses and writing-desks, there might -still have been complainings, but these complainings would neither have -been so loud nor yet so justifiable.[129] There was something in the -melting apparatus, in the tobacco-pipe, in the forged plaster of paris -seals, in the official letter-picker, and in the place where, and manner -how, he did his work, utterly disgusting to John Bull, and most -unsuitable to the atmosphere of England. The law, it is true, remains -unaltered, but it is believed to be virtually a dead letter. - - -FOOTNOTES: - -[116] Hansard, 1844. - -[117] _Ibid._ - -[118] Lang's _Historical Summary of the Post-Office in Scotland_. -Postmaster-General's _Third Report_. - -[119] Report of Secret Committee, 1844, p. 9. - -[120] _Lords' Journal_, xxii. pp. 183-6. - -[121] _Commons' Journal_, vol. xxii. p. 462. - -[122] The place was not only lucrative, but in the path of promotion. We -find that, for the proper performance of these very unclerical duties, -the Rev. Dr. was first rewarded with the Deanery of Lincoln and -afterwards with the Bishopric of St. David's. - -[123] Froude. - -[124] Report of Secret Committee, 1844, pp. 14-17. - -[125] Report of the Secret Committee, 1844, pp. 14-17. - -[126] _Ibid._ Commons' Committee. - -[127] Hansard, 1844-5. - -[128] _Ibid._ - -[129] Among many expressions of opinion to which the inquiry on the -subject gave rise, we find the following characteristic effusion from -Thomas Carlyle: "It is a question vital to us that sealed letters in an -English post-office be, as we all fancied they were, respected as things -sacred; that opening of men's letters, a practice near of kin to picking -men's pockets, and to other still viler and far fataler forms of -scoundrelism, be not resorted to in England, except in cases of the very -last extremity. When some new Gunpowder Plot may be in the wind, some -double-dyed high treason, or imminent national wreck not avoidable -otherwise, then let us open letters; not till then. To all Austrian -Kaisers and such like, in their time of trouble, let us answer, as our -fathers from of old have answered--Not by such means is help here for -you." - - - - -CHAPTER X. - -THE DEVELOPMENT OF THE POST-OFFICE. - - -From the year 1844 to the present time the progress of the Post-Office -institution has been great and unexampled. Among Mr. Hill's minor -proposals were those for the institution of day-mails, the establishment -of rural posts, and the extension of free deliveries. The period between -the passing of the Penny Postage Act and the year 1850 saw these useful -suggestions carried out to an extent which proved highly beneficial to -the public. With regard to the day-mails, Mr. Hill proposed that on the -_morning_ of each day, as well as evenings, mails should leave London -after certain country and continental mails had arrived, by which means -letters, instead of remaining nearly twenty-four hours in London, might -be at once forwarded to their addresses, and two mails per diem be thus -given to most English towns. The Earl of Lichfield would seem to have -seen the useful and practicable nature of these proposals, for, being -Postmaster-General at the time, he did not wait to adopt them till the -passing of the Act of 1839. As early as 1838 one or two day-mails were -established, running out of London. Before 1850 we find the list -included those of Dover, Southampton, Bristol, Birmingham, and -Cambridge. These day-mails are now established on every considerable -line of railway in the kingdom. London, in 1864, possesses not only -day-mails on all the lines running from the metropolis, but one to -Ireland, and two by different routes into Scotland. Further, a great -number of railways in the United Kingdom have stipulated to take mails -by any passenger-train. - -Mr. Hill also contemplated the establishment of rural posts in every -village. In 1840, the number of village post-offices was about 3,000. At -that time nothing but "guarantee posts"--by means of which parties in -the country might obtain additional accommodation on their consenting to -bear the whole additional expense--were granted to new localities. Mr. -Hill urged upon the Post-Office authorities the abandonment of this -plan, and the gradual establishment of ordinary post-offices. He -calculated that an annual outlay of 70,000_l._ would suffice to give 600 -additional daily posts to neglected districts, and he pledged his word -that the outlay would be remunerative. There are now more than 8,000 -additional rural post-offices, the erection of which has done all for -the public and the Post-Office revenue that Mr. Hill anticipated. - -The extension of free deliveries, also strongly urged by Mr. Hill, has -progressed fairly from that time to this. Round each provincial town -there used to be drawn a cordon, letters, &c. for places beyond which -had either to be brought by private messenger, or were charged an extra -sum on delivery as a gratuity to the postmaster. From year to year new -places have been included in these free deliveries; soon the most remote -and inaccessible parts of our country--the nooks and crannies of our -land--will enjoy nearly equal privileges with our large towns, more -rural messengers being appointed as this work approaches completion. - -In 1848, the advantages of a book-post were granted to the country. By -the new rate, a single volume might be sent to any part of the United -Kingdom at the uniform rate of sixpence per pound. The privileges of -this book-post were gradually extended to the colonies. The railway -companies, at the time and subsequently, complained loudly that the -Post-Office, by establishing the book-post, had entered into an unfair -competition with them. This competition was described as very -injurious, on account of the low rates at which books and book-packets -were conveyed. It was answered, however--and in this answer the country -very generally agreed--that the railway companies had no legal or -equitable right to the monopoly of parcel-traffic; and if they had, the -exceptions taken in the case of the book-post were only to books and -printed matter intimately connected with objects such as the diffusion -of knowledge and the promotion of education--matters with which the -Post-Office was now most immediately concerned. The facts, however, -were, that very few indeed of the packets sent by the book-post were -such as had been previously sent by railway. The Post-Office, by -offering its vast machinery for the transmission of such articles, -especially to remote districts, gave facilities which had never before -been offered, and which caused books and documents to pass through the -Post-Office which otherwise, had no book-post existed, would not have -been sent through any other channel. A Select Committee, which sat in -1854, on the conveyance of mails by railway, took evidence on this -point, and in their report stated it as their opinion, that a large -proportion of the packets sent would not have been so forwarded but for -the facilities offered by the Post-Office in their distribution. - -Any loss, however, which the railways might experience in this respect -was more than counterbalanced when the Executive abolished the -compulsory impressed stamp on newspapers, this arrangement giving rise -to a conveyance of newspaper-parcels by railway-trains to an enormous -extent, and proportionately lessening the work and profits of the -Post-Office. - -The year 1849 is principally remarkable for the agitation which existed -with respect to Sunday labour at the General Post-Office. Previous to -this year no work was allowed in the London establishment, but now an -arrangement was proposed to receive the mails as on other days, officers -attending, though not during the period of Divine service, to assort -and dispose of the letters received. Public meetings were held in London -and many of the principal towns to protest against any increase of the -Post-Office work. Public opinion in the metropolis was pretty unanimous -against any change; in the provinces it was more divided. The -authorities gave way before the force of opinion, and the London office -has remained closed ever since on the first day of the week. In the -country different arrangements are made. In Scotland, and in one or two -English towns, no letter-delivery takes place from house to house, a -short time only being allowed for the public to apply for their letters -at the post-office windows. In the majority of English towns the early -morning delivery only is made. The day-mails, as a rule, do not run on -Sundays. The post-offices in the major part of our English and Scotch -villages are entirely closed on Sundays. - -Wires having been laid down to St. Martin's-le-Grand from the different -railway stations, telegraph messages were first used to expedite -post-office business on the 31st of August, 1849. All important matters, -such as bag or registered letter irregularities, requiring prompt -notice, are made known or explained through the medium of the electric -telegraph. - -Commissioners were appointed from about this year to secure the services -of railways on the most equitable terms, and to arbitrate for that -purpose between the Post-Office and the railway companies. The -Committee, on the conveyance of mails by railways, suggested this -course. On the debate which followed the report of the Committee to -which we have before alluded, Sir Robert Peel frankly acknowledged "the -enormous error" into which he, and the House generally "had fallen when -the railroad bills were under discussion. They ought to have foreseen," -said he, "when these bills were before them, that they were in fact -establishing a monopoly, a monopoly in respect to which there could be -no future condition. They ought to have foreseen that, if the railroads -were successful, other modes of internal communication would almost -necessarily fall into disuse, and they ought, therefore, to have -stipulated--_as it would have been perfectly just and easy for them to -have done_--that certain public services should be performed at a -reasonable rate." However, as this had not been done, Parliament could -only fall back upon its inherent right to say on what terms such -services should be provided from time to time; for which purpose they -could not do better than employ arbitration, as it was the same course -pursued when the companies disputed with the owners of property the -value of land compulsorily taken for railway works. Sir James -Graham[130] moved a declaratory clause on the occasion, that arbitrators -should take into consideration the cost of the construction of the -particular lines in awarding the sums for different services. Mr. -Labouchere, the Vice-President of the Board of Trade, speaking for the -Government, wished the arbitrators to be wholly free, but he gave a -pledge on behalf of the Post-Office that no attempt would be made to -exclude the cost of construction from the consideration of the -arbitrators. With this assurance, the Opposition expressed themselves -satisfied. - -In 1855, the Postmaster-General, the late Lord Canning, commenced the -practice of furnishing the Lords of the Treasury, and through them the -public, with annual reports on the Post-Office. These reports, which -have been continued up to the present time, show the progress of the -Department from year to year, and present to the general reader, as well -as to the statistician, a vast mass of interesting information. Compared -with the reports of the Committee of Revenue Inquiry or of the -Commissioners of Post-Office Inquiry, they are lucid and interesting in -their nature. Though constructed on the same plan and little varied from -year to year, they are much above the ordinary run of official -documents. Lord Canning, in recommending the adoption of the plan, gave -as one reason among many, that the Post-Office service was constantly -expanding and improving, but that information respecting postal -matters, especially postal changes, was not easily accessible. This -information, he believed, could be given without any inconvenience, -whilst many misapprehensions, and possibly complaints, might be avoided. -The public might thus see what the Post-Office was about; learn their -duty towards the Department, and find out--what half the people did not -then and perhaps do not even yet understand--what were the benefits and -privileges to which they were justly entitled at its hands. - -The Duke of Argyll succeeded Lord Canning in the management of the -Post-Office in 1855, and his years of office are distinguished by many -most important improvements and reforms. One important change consisted -in the amalgamation of the two corps of London letter-carriers, effected -soon after the installation of the Duke of Argyll at the Post-Office. -The two classes of "General Post" and "London District" letter-carriers -were perhaps best known before 1855, by the former wearing a red, and -the latter a blue, uniform. The object of this amalgamation, for which -Mr. Hill had been sedulously striving from the period of penny postage, -was to avoid the waste of time, trouble, and expense consequent on two -different men going over the same ground to distribute two classes of -letters which might, without any real difficulty, be delivered together. -The greatest objection in the Post-Office itself to completing the -change, arose from the different _status_ of the two bodies of men, the -one class being paid at a much higher rate of wages and with better -prospects than the other class. This difficulty was at length -surmounted, when the benefits of this minor reform became clearly -apparent in earlier and more regular deliveries of letters. Inside the -Post-Office the work was made much more easy and simple, and the gross -inequality existing between two bodies of public servants whose duties -were almost identical, was done away.[131] - -Still more important was the division of London into ten postal -districts, carried out during the year 1856. The immense magnitude of -the metropolis necessitated this scheme; it having been found impossible -to overcome the obstacles to a more speedy transmission of letters -within and around London, or properly to manage without some change, the -ever increasing amount of Post-Office business. Under the new -arrangements, each district was to be treated in many respects as a -separate town, district post-offices to be erected in each of them. -Thus, instead of all district post-letters being carried from the -receiving houses to the chief office at St. Martin's-le-Grand, there to -be sorted and re-distributed, the letters must now be sent to the -principal office of the district in which they were posted; sorted -there; and distributed from that office according to their address. The -time and trouble saved by this arrangement is, as was expected, -enormous. Under the old system, a letter from Cavendish Square to -Grosvenor Square went to the General Post-Office, was sorted, and then -sent back to the latter place, travelling a distance of four or five -miles: whereas, at present, with hourly deliveries, it is almost -immediately sent from one place to the other.[132] An important part of -the new scheme was, that London should be considered in the principal -provincial post-offices as ten different towns, each with its own centre -of operations, and that the letters should be assorted and despatched on -this principle. Country letters would be delivered straightway--without -any intermediate sorting--to that particular part of London for which -they were destined; whilst the sorters there having the necessary local -knowledge, would distribute them immediately into the postmen's walks. -With respect to the _smaller_ provincial towns, it was provided that -their London correspondence should be sorted into districts on the -railway during the journey to the metropolis. Thus, on the arrival of -the different mails at the several railway termini, the letters would -not be sent as formerly to the General Post-Office, but direct to each -district office, in bags prepared in the course of the journey. It was a -long time before this new and important plan was thoroughly carried out -in all its details; but now that it is in working order, the result is -very marked in the earlier delivery of letters, and in the time and -labour saved in the various processes. In fact, all the anticipated -benefits have flowed from the adoption of the measure. - -In the same year a reduction was made in the rates for book-packets. The -arrangement made at this time, which exists at present, charges one -penny for every four ounces of printed matter; a book weighing one pound -being charged fourpence. A condition annexed was, that every such packet -should be open at the ends or sides, and if closed against inspection, -should be liable to be charged at the unpaid letter rate of postage. -This penalty was soon found to be unreasonably heavy and vexatious, and -was therefore reduced to an additional charge of sixpence only. At the -present time, the conditions under which such packets may be sent -through the post are the same, but the fines inflicted for infringements -are still further reduced. - -In 1857, a new regulation provided that a book-packet might consist of -any number of sheets, which might be either printed or written, provided -there was nothing in it of the nature of a letter. If anything of the -sort should be found in the packet on examination, it was to be taken -out and forwarded separately as a letter, and charged twopence as a fine -in addition to the postage at the letter rate. The packet might consist -of books, manuscripts, maps, prints with rollers, or any literary or -artistic matter, if not more than two feet wide, long, or deep. - -In the same year, the letter-rate to all the British Colonies (which -were not previously under the lower rates) was reduced to the uniform -one of sixpence for each half-ounce, payable in advance. The privileges -of the English book-post were also extended to the Colonies; the rate at -which books &c. might be sent being threepence for every four ounces. -Exceptions were made in respect to the following places, viz.--Ascension -Island, East Indies, Hong Kong, Australia, New Zealand, and the Gold -Coast, to which places the rate charged was fourpence for four ounces, -the weight being restricted to three pounds. - -Another important improvement was made when, about the same time, the -postage on letters conveyed by private ship between this country and all -parts of the world, was reduced to a uniform rate of sixpence the -half-ounce. - -Nor were these reforms the only results of the wise rule of the Duke of -Argyll. Through his exertions, a postal convention was concluded with -France, resulting not only in a considerable reduction of postage on -letters passing between the two countries, but in the lowering of the -rate to all European countries, letters for which _went by way of -France_. An attempt was made to arrange a postal convention with the -United States during the year 1857, but like so many previous ones, it -came to nothing. - -The Duke of Argyll is also favourably remembered in the metropolitan -offices, for having granted--to the major establishment at any rate--the -boon of a Saturday half-holiday. - -But perhaps his Grace laboured most arduously to bring about a more -satisfactory relation between the railway companies and the Post-Office. -Since the advent of cheap postage, nothing had so much impeded the -progressive development of the Post-Office, as the adverse attitude of -the companies who must convey the mails, now that all other modes of -conveyance had been virtually superseded by the power of steam. Although -the Postmaster-General failed in this instance, he is none the less -entitled to the gratitude of the country for his well-meant attempt to -repair the mistake which the Executive originally made in not carefully -providing for the public service. Few could say that the existing law -was, and is, not defective. The gain to the Post-Office through railways -is certainly enormous: besides the advantage of increased speed, they -make it possible to get through the sorting and the carrying of the -mails at the same time. But here the gain ends; and the cost for the -service really done is heavy beyond all proportion. The cost of carrying -mails by coaches averaged twopence farthing a mile; the average cost -under railways is tenpence a mile, some railways charging nearly five -shillings per mile for the service they render. The cost of running a -train may be reckoned, in most cases, at fifteen pence per mile; and -thus the Post-Office, for the use of a fraction of a train, may be said -constantly to be paying at the rate of from sixty to three hundred per -cent. in excess of the whole cost of running! The Postmaster-General -stated that the terms upon which one railway company would undertake -postal service was totally disproportionate to those of a neighbouring -company. On the other hand, all the companies were alike dissatisfied, -however dissimilar the contracts, or the terms imposed and agreed -to.[133] Moreover, it was declared next to impossible to secure -regularity and punctuality in the conveyance of mails, and to agree to -amicable arbitration for the services which were done, until the -Legislature should lay down reasonable laws, binding all the companies -alike. A Bill was introduced into the House of Lords regulating the -arrangements between the Post-Office and the different companies. Though -it was carefully prepared, it was strongly opposed by the railway -interest in Parliament. The opposition was all the more unreasonable, -inasmuch as many of its clauses sought to remove objections to the -existing law which railway companies had frequently complained of. As -far as the Post-Office was concerned, it seems to have been the extent -of the wish of the authorities that the question of remuneration might -be based on the actual cost of running the trains, making due allowance, -on the one hand, for the benefits accruing to the companies from their -connexion with the mail service, and adding, on the other hand, -compensation for any special extra expenses to which the companies might -be subjected by the requirements of that service, _together with a full -allowance for profit_.[134] The Bill also provided for the more -extensive employment of ordinary passenger trains,--not, however, to the -supercession of the regular mail-trains--for the _exclusive_ employment -of certain trains for postal purposes, for penalties, &c. The measure -had been brought in late in the session, and was eventually withdrawn. -The Bill itself, with its twenty-one clauses, forms part of the Appendix -to the Postmaster-General's fourth report; and as the basis of -arrangements between the two interests is still unsettled and uncertain, -the Duke of Argyll there commends it to the careful attention of the -public, as well as to the fair consideration of the railway authorities -themselves. - -In 1858, on the accession of Lord Derby to power, Lord Colchester was -appointed to the Post-Office without a seat in the Cabinet. Improvements -continued during his short administration, both as regards inland, -foreign, and colonial postages; but nothing calls for special mention -here except an attempt on the part of the Post-Office to render the -payment of inland letters compulsory. The plan cannot be said to have -had a fair trial. Its benefits and advantages were not clearly apparent, -except to those who were acquainted with the machinery of the -Post-Office. While, without doubt, the principles upon which it was -based were sound, the objections to the arrangement lay on the surface, -and were such as could not be overcome except by the exercise of great -patience on the part of the public: the measure pressed heavily on -certain interests: a great portion of the less thoughtful organs of the -public press manifested considerable repugnance to it, and, in -consequence, the Postmaster-General was led to recommend to the -Treasury the withdrawal of the order after the expiration of a few weeks -of partial trial. As pointed out by Mr. Hill at the time, compulsory -prepayment of letters was a part of the original plan of penny postage; -it was one of the recommendations which he made having for their object -the simplification of accounts, and the more speedy delivery of letters. -The Secretary of the Post-Office in urging a fair trial of the -measure,[135] argued that after the lapse of a few months it would be -productive of good even to letter-writers, not to speak of the saving of -time, trouble, and expense to the Department. He very truly added that -there were no difficulties attributable to the new rule which might not -be surmounted by a little care or ingenuity. As it was, the public -preferred an immediate termination of the experiment to the possible and -problematical advantages that might arise from its continuance; and in -this instance the country was indulged by an early return to the old -plan. - -In the following year, Lord Colchester was succeeded by the late Earl of -Elgin as Postmaster-General, with a seat in Lord Palmerston's Cabinet. -When Lord Elgin was sent on the special mission to the East in 1860, the -Duke of Argyll held the joint offices of Lord Privy Seal and -Postmaster-General until a permanent successor was appointed in the -person of Lord Stanley of Alderley, who now (March, 1864) holds the -office. - -In 1859, the Money-order Office in London, and the money-order system -generally, were remodelled. By a process meant to simplify the accounts, -and other judicious alterations, a saving of 4,000_l._ a-year was -effected, while the public were benefited by some concessions that had -been much desired, such as the granting of money-orders up to the amount -of 10_l._ instead of 5_l._ The money-order system was likewise extended -to the colonies, the first connexion of the kind having been opened with -Canada and our European possessions of Gibraltar and Malta. It has -subsequently been extended to the principal British colonies, including -the whole of Australia. - -Important improvements were also made in the department charged with the -transmission of mails. Several accelerations--in one case a most -important one--were made in the speed of the principal mail-trains; the -number of travelling post-offices was increased; the construction of the -whole of them was improved; and the apparatus-machinery, attached to the -carriages for the exchange of mail-bags at those stations where the -mail-trains do not stop, was called more and more into requisition. - -Under the Earl of Elgin, the British Post-Office endeavoured to form -conventions with foreign countries, the object in all cases being the -increase of postal facilities. In the case of Spain and Portugal, the -authorities seem to have been successful, and partially so with the -German Postal Union. An attempt to renew negotiations with the United -States calls for mention here. The advocates of ocean penny postage (of -which so much was heard some years previously--not only a desirable, but -a practicable scheme) may thus obtain some idea of the difficulty of -coming to any reasonable arrangement between the two countries. We have -already stated that a former Postmaster-General urged upon the -Government of the United States the necessity of reduction in the rates -of postage of letters circulating from one country to the other, but was -unsuccessful at the time.[136] In 1859, the Postmaster-General of the -United States (Mr. Holt) communicated to the English Department his -concurrence in the principle of a reduction in the postage of British -letters from twenty-four to twelve cents, providing that England would -give America the lion's share of the proposed postage! The United -States' Government would agree to the change provided the new rate be -apportioned as follows, viz.:-- - - United States' Inland Postage 3 cents. - Sea Rate of Postage 7 " - British Inland Postage 2 " - -The Earl of Elgin objected to this proposal as not equitable. He argued, -with perfect truth and fairness, that each country ought to be -remunerated according to the value of the service it rendered, and that, -whether the inland service was considered (where the three items of -collection, conveyance,[137] and delivery must be taken into account), -or the sea service (undoubtedly better worked and regulated with us than -in America), this country had a fair claim to a larger share of postage -than the United States. As, however, an unrestricted intercourse between -the two countries was far more important than a nice adjustment in the -revision of the postage, the English Postmaster-General would only press -for equality, and proposed the following division:-- - - British Inland Postage 1_d._ or 2 cents. - Sea Postage 4_d._ " 8 " - United States' Inland Postage 1_d._ " 2 " - ----- --------- - 6_d._ 12 cents. - ----- --------- - -In the event of the American Government not being prepared to agree, -Lord Elgin proposed that a disinterested third party should be called -in, to whom the whole matter might be amicably referred. To this -communication no answer whatever was returned, and the English -Department had to wait until the next report of the United States -Post-Office was published, in order to ascertain how the proposals had -been received. It was found that Mr. Holt here complained that a -reasonable offer that he had made to England had been declined there, -"_and for reasons so unsatisfactory_, that for the present no -disposition is felt to pursue the matter further." It is sincerely to be -regretted that this great improvement, which would have been gladly -hailed by thousands on both sides of the Atlantic, should have been so -arrested, and especially that the United States' Government should have -been deaf to the proposition to send the matter to arbitrament. -Unquestionably, the present results, as well as the responsibility of -future exertion, lies at the door of the United States; and it is to be -hoped that, in justice to the thousands whom the Americans have -eagerly invited to populate their country--not to mention other -considerations--they will soon renew their efforts to obtain the boon of -a sixpenny postage, and be prepared to meet the mother-country on -reasonable grounds with equal terms. - -The postal service with Ireland being considered deficient, so much so, -that frequent mention was made of the subject in the House of Commons, a -new and special service was brought into operation on the 1st of -October, 1860. Night and day mail-trains have, on and from that date, -been run specially from Euston Square Station to Holyhead, and special -mail-steamers employed, at enormous expense, to cross the Channel. -Letter-sorting is carried on not only in the trains, but on board the -packets; nearly all the Post-Office work, including the preparation of -the letters for immediate delivery at London and Dublin respectively, -being accomplished on the journey between London and Dublin, and _vice -versa_--a journey which is now accomplished in about twelve hours. By -means of this new service, a great saving of time is also effected on -the arrival and departure of most of the American and Canadian mails. -It cannot but be interesting to the reader who may have followed us as -we have endeavoured to trace the progress of post communication in this -country, to know how much is really possible under the improved -facilities of our own day. A better instance could not be afforded than -that occurring at the beginning of the year 1862, when the important -news on which depended peace or war was hourly expected from the United -States. Before the packet was due, the Inspector-General of Mails took -steps to expedite the new Irish mail service, to the greatest possible -extent, in its passage from Queenstown to London, and the result is so -clearly and accurately given in the _Times_ of the 8th of January, 1862, -that we cannot do better than quote the account entire:-- - -"The arrangements for expressing the American mails throughout from -Queenstown to London, which we described as being so successfully -executed with the mails brought by the _Africa_ last week, have been -repeated with still more satisfactory results in the case of the mails -brought by the _Europa_. These results are so exceptional that we record -them in detail. The _Europa_ arrived off Queenstown, about five miles -from the pier, at 9 P.M. on Monday night. Her mails and the despatches -from Lord Lyons were placed on board the small tender in waiting, and -arrived at the Queenstown Pier at 10.5 P.M., at which point they were -transferred to an express steamboat for conveyance by river to Cork. -Leaving Queenstown Pier at 10.10 P.M., they arrived alongside the quay -at Cork at 11.15 P.M. and thirteen minutes afterwards the special train -left the Cork station for Dublin, accomplishing the journey to Dublin -(166 miles) in four hours and three minutes, _i. e._ at a speed of about -41 miles an hour, including stoppage. The transmission through the -streets between the railway termini in Dublin and by special train to -Kingstown occupied only thirty-six minutes, and in four minutes more the -special mail-boat _Ulster_ was on her way to Holyhead. The distance -across the Irish Channel, about sixty-six statute miles, was performed -by the _Ulster_, against a contrary tide and heavy sea, in three hours -and forty-seven minutes, giving a speed of about seventeen and a half -miles an hour. The special train, which had been in waiting for about -forty-eight hours, left the Holyhead Station at 8.13 A.M., and it was -from this point that the most remarkable part of this rapid express -commenced. The run from Holyhead to Stafford, 130-1/2 miles, occupied -only 145 minutes, being at the rate of no less than fifty-four miles an -hour; and although so high a speed was judiciously not attempted over -the more crowded portion of the line from Stafford to London, the whole -distance from Holyhead to Euston, 264 miles, was performed by the London -and North-Western Company in exactly five hours, or at a speed of about -52-2/3 miles an hour, a speed unparalleled over so long a line, crowded -with ordinary traffic. The entire distance from Queenstown Pier to -Euston Square, about 515 miles, was thus traversed in fifteen hours and -three minutes, or at an average speed of about thirty-four and a quarter -miles an hour, including all delays necessary for the several transfers -of the mails from boat to railway, or _vice versa_.... By means of the -invention for supplying the tender with water from a trough _in -transitu_, the engine was enabled to run its first stage of 130-1/2 -miles, from Holyhead to Stafford, without stopping." - -During the session of 1860-1, an Act was passed through Parliament for -the establishment of Post-Office Savings' Banks on a plan proposed by -Mr. Sykes, of Huddersfield. - -In order to encourage the registration of letters containing coin or -valuable articles, the registration fee was reduced, in 1862, from 6_d._ -to 4_d._ each letter. At the same time, the plan of compulsory -registration of letters was revived, and applied to all letters passing -through the _London Office_ which contained, or were supposed to -contain, coin. Last year the plan was found to have been so successful -in its results, that it was extended to _all inland letters_. The public -may judge of the benefits and blessings of this proscriptive -measure--to the officers of the Post-Office at any rate--when we state -that the convictions for letter-stealing, since the plan was fully -adopted, have been reduced more than ninety per cent. - -In 1862, the Pneumatic Conveyance Company set up a branch of their -operations at the Euston Square Station, London. The Post-Office took -advantage of this new mode of conveyance to send the mail-bags to the -North-Western District Office from this important railway terminus. The -work is, of course, accomplished with marvellous expedition. The -machinery for other localities is in course of construction, and may -ultimately extend all over the metropolis, to the supercession, as far -as the Post-Office is concerned, of the existing mail-vans. - -During the month of May, 1863, a Postal Congress--the first of the -kind--originated, we believe, by Mr. Rasson of the United States, -assembled at the _Bureau des Postes_, in the Rue Jean Jacques, Paris, -under the presidency of the French Postmaster-General, M. Vandal. The -object of the Congress was "the improvement of postal communication -between the principal commercial nations of the world." As we find that -the little republic of Ecuador was represented, the postal affairs of -_little_ kingdoms were also not overlooked. Each civilized nation was -asked to send a delegate, and all the most important States responded. -Mr. Frederic Hill, brother of Sir Rowland Hill, and Assistant Secretary, -was the English representative; the President represented France; M. -Metzler, Prussia; Mr. Rasson, the United States; M. Hencke, Hamburg, &c. -&c. The prepayment of foreign letters was one of the most difficult -subjects discussed. The Congress came to the conclusion that it would be -best to leave it optional with the writer of the letter whether the -postage should be paid to its destination, or paid on receipt; in the -latter case, however, it was thought desirable that a moderate -additional postage should be charged. Another important matter was -settled in a conclusive manner. It was first decided that the postage -of foreign letters should be regulated by weight: it then became highly -necessary, in order to the carrying out of this decision, that the -postage should be calculated by a common standard; hence the following -resolution, which was agreed to--"The metrical decimal system, being of -all systems of weighing that which is best suited to the requirements of -the postal service, it is expedient to adopt it for the international -postal relations, to the exclusion of every other system." Other -subjects of lesser importance, such as the route of foreign letters, the -division of postage rates, the transmission of coin in letters (which -they agreed to allow), were discussed very fully and, we are -assured, very amicably. The Congress seems to have arrived at a good -understanding of the principles of postal reciprocity, and good will -doubtless be the result. The Postal Congress of last year was a Peace -Congress of the most efficient kind, and in every sense of the term. - -Within the last ten years the facilities offered to letter-writers by -the Post-Office have materially increased. Four thousand additional -persons have had to be employed in the service, one half, at least, of -whom are engaged on account of the facilities and improvements in -question, whilst the remainder may be said to have been required by the -gradual increase of work in the establishment. The establishment of -mid-day mails, increasing the number of daily deliveries in almost every -provincial town; the acceleration of night-mails, allowing more time for -posting in some places, and earlier deliveries in all; the increase in -the number of village posts, to the extent of between three and four -hundred every year; the gradual extension of free deliveries; the -establishment of pillar letter-boxes as receptacles for letters; -reductions in the rate of foreign and colonial letters, and also in the -registration fee for home letters; the division of London, and to some -extent other large towns, like Liverpool, into districts; and above all, -the establishment of thousands of new savings' banks on safe principles, -in connexion with improved money-order offices; are some of the -principal advantages and facilities to which we refer. The past ten -years have been years of great, gradual, and unexampled improvement. Nor -is there anything but progress and advancement in prospect. The fact is, -that the Post-Office is capable of infinite extension and growth: -besides it belongs to the nation, and the people will expect the -development of the utmost of its utilities. At the present time the -experiment is being tried whether, without impairing its efficiency or -the performance of its more proper business, the Post-Office can -undertake the distribution of stamps; and it is not impossible, -considering that it has at its command an organization which penetrates -the entire kingdom, as no other private or public institution does, that -the Stamp Department may be transferred to the control of the -Postmaster-General. - -Further, there is no doubt but that Mr. Gladstone's Bill, if passed -through Parliament, "to amend the law relating to Government Annuities," -will have a most important effect upon the Post-Office institution.[138] -It is true that under the Savings' Bank Act any person may purchase a -deferred annuity through the Post-Office, only the clause making it -necessary to pay the purchase-money in one sum has a direct deterrent -effect upon the measure. The provisions of the new Bill, on the -contrary, allow the purchase-money to be paid in even weekly -instalments. Equally important is the second part of the Bill, which -empowers the Government to assure a person's life for 100_l._ It is -proposed to draft all this extra business on to the Post-Office -establishment, and no interest, except the insurance company interest, -is likely to say nay. Until assurance or other companies can appoint -agents, and open out offices in every town and village, the Government -is likely to have a monopoly of any business it chooses to undertake. - - -FOOTNOTES: - -[130] _Life of Sir James Graham._ By Mr. T. MacCullagh Torrens, vol. ii. - -[131] Postmaster-General's _First Report_, p. 35. - -[132] So late as the year 1842, a letter posted at any London -receiving-house after _two_ in the afternoon was not delivered at -Islington until the next morning.--Postmaster-General's _Second Report_. - -[133] See Address by the late Mr. Robert Stephenson on his election to -the Presidency of the Institution of Civil Engineers in 1855, given in -the Appendix to the larger edition of Mr. Smiles' _Life of George -Stephenson_, and also a reply to it from the Inspector-General of -Mails.--Postmaster-General's _Second Report_, pp. 45-55. - -[134] Appendix to Postmaster-General's _Second Report_, p. 51. - -[135] _Fifth Report_, Appendix, pp. 43-8. - -[136] During the progress of one of these negotiations the following -memorandum, written by Mr. Bancroft, American Minister, is so -characteristic of his people that we are tempted to amuse our readers -with its reproduction entire.--Postmaster-General's _First Report_, -Appendix, p. 83. "Approved as far as 'the rate for sea.' What follows is -superfluous and objectionable. Make your rates (England) to your -colonies and possessions, and foreign countries, what you please, high -or low, one sea-rate or a dozen, or none at all; one inland rate or a -dozen, or none at all. What your people pay we are willing to pay, but -not more, and _vice versa_. Our security is, that we pay what your -people pay from the same place for the same benefit, and _vice versa_." - -[137] In America letters are certainly carried much greater distances, -at the uniform charge of three cents, than with us for a penny; but it -must be borne in mind that there are no official deliveries of letters -in the United States. - -[138] It is possible that this useful measure may be delayed. However it -is, the Post-Office machinery is ready for this incidental application, -and it is surely thrifty to make the most of available resources, though -they may have been originally provided for very different purposes. - - - - -PART II. - -DESCRIPTIVE ACCOUNT OF THE POST-OFFICE. - - -"It has often struck me that some pains should be taken to make the main -features of the Post-Office system intelligible to the people."--_Speech -of Mr. Rowland Hill at Liverpool_, 1847. - - - - -PREFATORY. - - -It is scarcely possible to over-estimate the importance of the postal -regulations of this country. Every section of society, and, to some -extent, every individual, participates in the benefits--commercial, -social, and moral--bestowed by our cheap Post-Office. It is not our -purpose here to urge the value and utility of the Post-Office -institution--which most of our readers gratefully admit--but rather to -furnish some general information relative to the organization and -ordinary working of the Department, sensible that an intelligible -account of the principal features in the system will increase the -interest already felt in the Post-Office, as a mighty engine spreading -the influences of commerce, education, and religion throughout the -world. The Postmaster-General for 1854, in starting an annual report of -the Post-Office, stated that "many misapprehensions and complaints arise -from an imperfect knowledge of matters which might, without any -inconvenience, be placed before the public;" and also, "that the -publicity thus given will be an advantage to the Department itself, and -will have a good effect upon the working of many of its branches." - -Endeavouring to exclude all matter that is purely technical, and -presenting the reader with no more statistical information than is -necessary to a proper understanding of the subject, and only premising -that this information--for the correctness of which we are alone -responsible--has been carefully collated from a mass of official -documents not easily accessible, and others presented to the public from -time to time, we will first describe-- - - - - -CHAPTER I. - -THE ORGANIZATION OF THE POST-OFFICE. - - -The Post-Office being a branch of the public service, instituted by -statute, is, of course, under the control of the Government of the -country in every respect. The principal Acts of Parliament which now -regulate the Post-Office are those of 1 Vict. c. 32-36, entitled "An Act -to repeal the several laws relating to the Post-Office;" "An Act for the -management of the Post-Office;" "An Act for consolidating the laws -relative to offences against the Post-Office;" one to which we have -previously referred, 2 Vict. c. 98, "An Act to provide for the -conveyance of mails by railway;" 3 & 4 Vict. c. 96, "An Act for the -regulation of the duties of Postage." Besides these more important Acts, -there are others of later date relating to the Money-order Office, -colonial posts, and, more recently, one relating to the Post-Office -Savings' Banks. - -According to the latest returns,[139] there are 11,316 post-offices in -the United Kingdom, of which 808 are head-offices, and 10,508 -sub-offices. To these must be added a great number of road letter-boxes, -making a total of 14,776 public receptacles for letters, or more by -10,000 than the total number before penny postage. The total number of -letters passing through the Post-Office during the year 1863 was -642,000,000, or, in the proportion of letters to population, no less -than 22 to each person in the three kingdoms. As contrasted with the -last year of dear postage, the number of letters show an _eightfold_ -increase. The distance over which the mails travel with this enormous -amount of correspondence, in the United Kingdom alone, is nearly 160,000 -miles per day. Of the mails conveyed by railway, a distance of 50,000 -miles is accomplished every working-day; 72,000 miles per diem are -traversed on foot; and the rest are carried by mail-coaches, mail-carts, -and steamboats. - -The gross revenue of the Post-Office for the year 1863 was, in round -numbers, 3,800,000_l._, being more by nearly a quarter of a million -sterling than the proceeds for the year 1862. Of this enormous total, -England contributed upwards of 3,000,000_l._, the remainder having been -raised from Ireland and Scotland. To this sum should be added a further -item of 130,000_l._ for the impressed stamp on newspapers sent through -the post, the charges for which are collected by the Commissioners of -Inland Revenue. The actual expenditure of the Department, including the -expenses of mail-packets (great part of which appertain to the -Admiralty), amounted, in round numbers, to 3,000,000_l._ The amount of -all the items belonging exclusively to Post-Office charges is, however, -less than two and a quarter millions. The net revenue of the Post-Office -for 1863 may, therefore, be stated at 1,790,000_l._; or, counting the -whole of the packet expenses--which mode of reckoning, however, would -lead to erroneous notions of the financial success of penny postage--to -a clear revenue of 900,000_l._ - -At the end of 1862, the staff of officers employed in the British -Post-Office numbered 25,380. Of this number 25,285 were engaged in the -British Isles, 73 in foreign countries (as agents collecting the British -share of foreign postage), and 22 in the colonies.[140] Of the -_employes_ at home, between 3,000 and 4,000 are attached to the London -Office alone, while the remainder, including more than 11,000 -postmasters, belong to the establishments in the various towns and -villages of the United Kingdom. The entire staff is under the immediate -control of the Postmaster-General, assisted by the General Secretary of -the Post-Office in London. The service of the three kingdoms, -notwithstanding this direct control, is managed in the respective -capitals, at each of which there is a chief office, with a secretarial -and other departmental staffs.[141] - -_The Postmaster-General_, the highest controlling authority at the -Post-Office representing the Executive, is now always a peer of -the realm, a member of the Privy Council, and generally, though -not necessarily, a Cabinet Minister. Of course he changes with -the Government. As we have seen in the origin of the office, he -holds his appointment by patent granted under the Great Seal. The -Postmaster-General has in his gift all the postmasterships in England -and Wales where the salary is not less than 120_l._ per annum (all under -that sum being in the gift of the Treasury Lords), and to those in -Ireland and Scotland where the salary is 100_l._ and upwards. Besides -this amount of patronage, now dispensed to officers already in the -service, he has the power of nomination to all vacancies in the General -Post-Offices of London, Edinburgh, and Dublin.[142] The following -noblemen have occupied the position of Postmaster-General during the -last forty years, or since the joint Postmaster-Generalship was -abolished in 1823,[143] viz. Earl of Chichester (1823), Lord Frederick -Montague (1826), Duke of Manchester (1827), Duke of Richmond (1830), -appointed Postmaster-General of Great Britain and Ireland the year -after; Marquis of Conyngham (July, 1834), Lord Maryborough (December, -1834), Marquis of Conyngham again (May, 1835), Earl of Lichfield (June, -1835), Viscount Lowther (September, 1841), Earl St. Germains (June, -1846), Marquis of Clanricarde (July, 1846). Still more recently, we find -the Earl of Hardwicke, Viscount Canning, Duke of Argyll (twice), Lord -Colchester, the Earl of Elgin, and Lord Stanley of Alderley. - -_The Secretary of the Post-Office_ holds the highest fixed appointment -in the establishment, and may be regarded, therefore, as the responsible -adviser of the Postmaster-General. The principal secretaries during the -century have been Francis Freeling, Esq. (1797), created a baronet in -1828; Lieut.-Colonel William Leader Maberly (1836); Rowland Hill, Esq. -(1856), knighted in 1860; and, as at present, John Tilley, Esq. -(1864).[144] - -The chief office in London is divided into six principal departments, -each under the charge of a chief officer. These heads of departments are -severally responsible to the Postmaster-General for the efficiency and -discipline of their respective branches. Something like the same -arrangement, though on a much smaller scale, is preserved in the -less-important chief offices of Edinburgh and Dublin. The branches in -question consist of--(1) The Secretary's Office; (2) The Solicitor's -Office; (3) The Mail Office; (4) The Receiver and Accountant-General's -Office; (5) The Money-order Office; and (6) The Circulation Office. - -1. _The Secretary's Office_ exercises a general _surveillance_ over all -the other departments of the Post-Office, including, of course, all -provincial offices. It is the medium of communication with the Lords of -the Treasury, and also with the public. All important matters -originating in other branches, or in country offices, pass through this -office to the Postmaster-General, returning through the same channel. In -1763, the secretaries of the Post-Office had one clerk and two -supernumerary clerks assigned to them. Now, the three secretaries are -assisted in their duties by one chief clerk, one principal clerk for -foreign and colonial business, sixteen senior clerks, and thirty-eight -clerks in other two classes. There is also a force of nineteen -supplementary clerks, five official paper-keepers, and nineteen -messengers.[145] - -2. _The Solicitor's Office_, as its name implies, deals with the law -business of the Post-Office. It gives employment to a solicitor, an -assistant-solicitor, and four clerks. - -3. _The Mail Office_ has to do with all matters connected with the -transmission of mails, whether the conveyance be by railroad, water, or -stage-coach. Attached to this office are the travelling post-offices of -the country, which are under its exclusive management. The Mail Office -arranges with the different railway companies for the conveyance of the -mails, in the contracts for which are included provision for the -employment of post-offices fitted up in railway-carriages; it -also looks to the proper performance of each post-office contract -embracing mail-conveyance. The staff of the Mail Office comprises an -inspector-general of mails, a deputy inspector-general, two principal -clerks, and twenty-one clerks in three classes. The connexion between -the Mail Office in London and its important adjuncts, the travelling -post-offices, is kept up by a staff of five inspectors of mails (three -employed in England, one in Scotland, and one in Ireland), a supervisor -of mail-bag apparatus, and several subordinate officers. The travelling -offices employ a force of 54 clerks in three classes, and 139 sorters in -four classes. - -4. _The Receiver and Accountant-General's Office_ takes account of the -money of each department, remittances being received here from all the -other branches and each provincial town in England. General accounts of -revenue and expenditure are also kept, this office being charged with -the examination of the postage and revenue accounts of each postmaster. -All salaries, pensions, and items of current expenditure are also paid -through this office. In 1763, the duties of these offices, then -distinct, were performed by a receiver, an accountant, and four clerks. -Now, the appointments comprise the receiver and accountant-general, a -chief examiner, a chief cashier, a principal book-keeper, with -forty-seven clerks in three classes, and nine messengers. - -5. _The Money-order Office_, occupying a separate building in Aldersgate -Street, takes charge of the whole of the money-order business of the -country, in addition to doing an enormous amount of work as a -money-order office for the metropolis. Of course, everything relating to -this particular branch of post-office business, and also some part of -the savings' bank accounts, pass through this channel. Each provincial -postmaster sends a daily account of his transactions to this office. -Attached to the Money-order Office, we find a controller, a chief clerk, -an examiner, a book-keeper, 112 clerks in three classes, and 27 -messengers. - -6. _The Circulation Office_ in London manages the ordinary post-office -work of the metropolis. In it, or from it, all the letters, newspapers, -and book-packets posted at, or arriving in, London, are sorted, -despatched, and delivered. Not only so; but in this office nearly all -the continental, and most part of the other foreign mails for the whole -of the British Islands, are received, sorted, and despatched. Under -ordinary circumstances, moreover, British letters for a great number of -places are sent in transit through London, where it is requisite they -should be rearranged and forwarded. This daily Herculean labour is -performed by the clerks, sorters, and letter-carriers attached to the -department. The ten district-offices in London, engaged with the same -kind of work on a small scale, are subordinate to the Circulation Office -at St. Martin's-le-Grand. The Registered Letter Branch, employing no -less than fifty clerks, and the Returned Letter Branch, with the Office -for Blind Letters, are parts of the Circulation Department. The _major_ -branch of the Circulation Office comprises the controller, a -vice-controller, 15 deputy-controllers, and 251 clerks in three classes. -The _minor_ establishment, as it is called, employs no fewer than 2,398 -persons. In this force are included 42 inspectors of letter-carriers in -three classes; the rest, being composed of sorters, stampers, -letter-carriers, and messengers. - -To these six principal departments may now be added that for the -management of the new _Post-Office Savings' Banks_. Like the Money-order -Office, it occupies a separate building, in St. Paul's Churchyard. The -Savings' Bank Department keeps a personal account with every depositor. -It acknowledges the receipt of every single deposit, and upon the -requisite notice being furnished to the office, it sends out warrants -authorizing postmasters to pay withdrawals. Each year the savings' -bank-book of each depositor is sent here for examination, and at the -same time the interest accruing is calculated and allowed. The -correspondence with postmasters and the public on any subject connected -with the banks in question is managed entirely by this department. The -already-existing machinery of the Post-Office has been freely called -into operation, and the business of the new banks has increased the work -of almost all the other branches, especially those of the Receiver and -Accountant-General's and the Money-order Offices. Through the former all -the investments are received, and all remittances to postmasters for the -repayment of deposits are made; while the surplus revenue goes from that -office direct to that of the Commissioners for the Reduction of the -National Debt. Again, and as another instance of our meaning, the -Money-order Office is required to undertake the examination of the -general savings' bank account of each provincial postmaster. The staff -of the Savings' Bank Office in London is not yet complete, nor will it -be until the complete effect of the new on the old savings' bank -system be seen.[146] At present, it comprises a controller, an -assistant-controller, a principal clerk, ten first-class clerks (four of -upper and six of lower section), fifteen second-class clerks, with a -number of third-class clerks, and six messengers. - -The branches of minor importance and the miscellaneous officers of the -London Establishment, consist of a _Medical Department_, comprising one -medical officer, one assistant medical officer, and one messenger. There -are, besides, distinct medical officers attached to each of the London -districts. The amount required for this service for 1863-4, including -medicine (given gratuitously to all officers who are not in receipt of -150_l._ salary), is 1,715_l._ _A House-keeper's Department_, including a -housekeeper and sixteen female servants, requiring a yearly payment of -763_l._ Six engineers, ten constables, and six firemen are also -constantly employed and paid by the Post-Office. When we add to this -gigantic organization no less than 516 letter-receivers in London, who -receive from 4_l._ to 90_l._ a-year for partial service, the reader will -have a tolerably correct idea of the establishment required to compass -the amount of London postal business in the twenty-fourth year of penny -postage.[147] - - -_The Surveyor's Department_ is the connecting medium between the -metropolitan offices and the post-offices in provincial towns. The -postmasters of the latter are under the immediate supervision of the -surveyor of the district in which the towns are situate, and it is to -this superior officer that they are primarily responsible for the -efficient working and discipline of their respective staff of -officers. Among the many responsible duties of the surveyors, may be -mentioned[148] those of visiting periodically each office in their -district, to remedy, where they can, all defects in the working of the -postal system; to remove, when possible, all just grounds of complaint -on the part of the public; "to give to the correspondence of their -district increased celerity, regularity, and security" when opportunity -offers, and to arrange for contracts with these objects. The Act of -Queen Anne provided for the appointment of one surveyor to the -Post-Office, whose duties it should be to make proper surveys of -post-roads. Little more than a hundred years ago, one of these -functionaries was sufficient to compass the duty of surveyor in England. -There are now thirteen surveyors in the United Kingdom,[149] nine of -whom are located in England, two in Ireland, and two in Scotland. These -principal officers are assisted in their duties by thirty-two -"surveyors' clerks," arranged in two classes, and thirteen stationary -clerks. To this staff must also be added thirty-three "clerks in -charge," in two classes, who are under the direction of the surveyors, -and whose principal duty consists in supplying temporarily the position -of postmaster, in case of vacancies occurring through deaths, removals, -&c. - -There are, in all, 542 head provincial establishments in England and -Wales, 141 in Ireland, and 115 in Scotland. They vary exceedingly, no -two being exactly alike, but are settled in each town pretty much in -proportion to the demands of the place, its size, trade, &c. Sometimes, -however, the _position_ of a town--the centre of a district, for -instance--gives it more importance in an official sense than it would -otherwise acquire from other and ordinary circumstances. The number of -sub-offices attached to each town also varies greatly, according to the -position of the head-office.[150] Next to the three chief offices, the -largest establishments are those of Liverpool, Manchester, Glasgow, -Birmingham, and Bristol. Among the most important offices of the second -class, we may enumerate Aberdeen, Bath, Belfast, Cork, Exeter, Leeds, -Hull, Newcastle-on-Tyne, Norwich, Sheffield, Southampton, and York.[151] -With respect to the rest, classification would be difficult; the -postmasters receiving salaries ranging from 20_l._ to 400_l._ per annum, -and varying from those where the whole of the duty of the office is -performed by the postmaster himself, to others where he is assisted by a -large staff of clerks and other auxiliaries.[152] - -Each head-postmaster is directly responsible for the full efficiency and -proper management of his office. Under the approval of the district -surveyor, the sanction of the Postmaster-General, and the favourable -report of the Civil Service Commissioners, the postmaster is allowed to -appoint nearly the whole of his own officers, he being responsible to -the authorities for their proper discipline and good conduct. Formerly, -and up to as late as eight years ago, each postmaster rendered an -account of his transactions to the chief office quarterly. He now -furnishes weekly general accounts, and daily accounts of money-order -business, besides keeping his book open to the inspection of the -superior officers of the Post-Office.[153] - - -FOOTNOTES: - -[139] Postmaster-General's _Reports_, 1863, 1864, and _Revenue -Estimates_ for 1864-5, from which the whole of our statistics are -derived. - -[140] The colonial post-offices proper are not under the rule of the -English Postmaster-General. All appointments to these offices are made -by the Colonial Secretary, if the salary is over 200_l._; if under that -sum, by the Governors of the different colonies. - -[141] An attempt was made at further centralization a few years ago, -when it was proposed to reduce the chief offices of Edinburgh and Dublin -to the position of offices in other large towns, a measure which had the -effect of rousing the people of the sister-countries to arms. The -Commissioners of Post-Office Inquiry who sat in 1855 reported against -the proposal, considering the present system to possess advantages to -the public over those accruing from the suggested change. - -[142] For information relative to the necessary qualifications, -examinations, &c. of candidates for appointment in the metropolitan or -provincial offices, see Appendix (C). - -[143] The following list of Postmasters-General before this period, -taken from a return made to the House of Commons, March 25, 1844, may -not be uninteresting to some of our readers. After Sir Brian Tuke, the -first "Master of the Postes," we find his successors to have been Sir -William Paget, one of Henry VIII.'s Chief Secretaries of State, and John -Mason, Esq. "Secretary for the French Tongue." "The fees or wages" of -each of these functionaries are given at 66_l._ 13_s._ 6_d._ a-year. The -reader will be familiar with the Postmasters-General under Elizabeth, -James I., Charles I. and the Commonwealth. Coming to the reign of -Charles II. we find Philip Froude, Esq. acting for the Duke of York from -1678 to 1688. - - WILLIAM AND MARY. - - Sir Robert Cotton; Thomas Frankland, Esq. 1690-1708 - - QUEEN ANNE. - - Sir Thomas Frankland; Sir John Evelyn 1708-1715 - - GEORGE I. - - Lord Cornwallis; James Craggs, Esq. 1715-1720 - Edward Carteret, Esq.; Galfridus Walpole 1720-1733 - - GEORGE II. - - Edward Carteret, Esq.; Lord Thomas Lovel 1733-1739 - Sir John Eyles; Lord Lovel 1739-1744 - Lord Lovel alone (now Earl of Leicester) 1744-1759 - Earl of Besborough 1759 - - GEORGE III. - - Earl of Egmont; Hon. R. Hampden 1762 - Lord Hyde; Hon. R. Hampden 1763 - Earl of Besborough; Lord Grantham 1765 - Earl of Sandwich; Lord de Spencer 1768 - Viscount Barrington; Hon. Henry Carteret 1782 - Earl of Tankerville; Hon. H. Carteret 1784 - Lord Carteret; Lord Walsingham 1787 - Lord Walsingham; Earl of Chesterfield 1790 - Earl of Chesterfield; Earl of Leicester 1794 - Earl of Leicester; Lord Auckland 1798 - Lord Auckland; Lord Charles Spencer 1801 - Lord Spencer; Duke of Montrose 1804 - Earl of Buckinghamshire; Earl of Carysfort 1806 - Earl of Chichester alone 1814 - Earl of Chichester; Marquis of Salisbury 1816 - -When the Earl of Salisbury died in 1823, a successor was not appointed, -the joint office being abolished, principally through the exertions of -the late Marquis of Normanby. - -[144] See Appendix (A). - -[145] For further information respecting this and all the other -metropolitan offices, see Appendix (D). Extracts from the Revenue -Estimates of 1864-5. - -[146] The closing of the Birmingham old Savings' Bank, for example, must -have greatly increased the work of the central office, and this will -follow as a consequence if in other large towns the example of -Birmingham be followed. - -[147] Large as this staff undoubtedly is, it would have been larger but -for timely changes in the system of keeping accounts. In 1855 the Civil -Service Commission suggested various improvements in the organization, -which resulted in a decrease of officers attached to some of the -branches. - -[148] Postmaster General's _Second Report_. - -[149] See Appendix (A). - -[150] _Head-office_ is the official term given to the independent -post-towns, and such as are only subordinate to one of the three -metropolitan offices. _Sub-offices_ are, of course, under the -head-offices. _Receiving-offices_, at which letters are received, but -not delivered, are also under the authority of the head-office of the -neighbourhood. Those post-offices at which money-orders are issued -and paid are designated _Money-order Offices_, and include all -the head-offices and a large number of sub-offices, and a few -receiving-offices. _Packet-Offices_ are those at which the regular -mail-packets (ship-letters may be received or despatched. at any port) -are received and from which they are despatched. London and Southampton -are packet-offices for the Continental Mails, the East and West Indies, -and South America. Liverpool, and Queenstown take the United States and -Canada. The mail-packets for the Cape of Good Hope and the West Coast of -Africa sail to and from Devonport. - -[151] For further information respecting these offices, see Appendix -(D), _Revenue Estimates_; also, for a statement of the amount of postage -collected in our largest towns, see Appendix (E). - -[152] The staff of the largest provincial offices usually consists of -clerks, sorters, stampers, messengers, letter-carriers, and rural -post-messengers. The _clerks_ are now principally engaged on clerical -duties, attending to the public on money-order business, &c. or in -connexion with registered letters or unpaid-letter accounts. In offices -where the staff is smaller, the clerks also engage in sorting and -despatching letters. In many small country towns females are employed as -clerks. The _sorters_ are principally engaged in sorting duties. -_Stampers_ and _messengers_ do duties such as their designations denote. -_Letter-carriers_--the familiar "postmen" of every household--are almost -exclusively engaged in delivering letters, &c. from door to door. -_Auxiliary letter-carriers_ are those only partially so employed, -principally on the largest, or early morning delivery. _Rural -post-messengers_ is the official name for "country postmen," who make -daily journeys among the villages and hamlets surrounding each town, -delivering and taking up letters on their way. - -[153] For fuller information on this head, see Appendix, to the -Postmaster-General's _First Report_, pp. 71-4. The following forms part -of a later Document (_Ninth Report_, 1862-3), and is interesting enough -to be quoted entire: "Owing to the successful measures which the -Department has adopted by means of bonds, frequent supervision, and care -in the selection of persons admitted into the service, and afterwards -promoted therein, very few losses have occurred, of late years at least, -through defalcation. More than twenty years ago, however, a postmaster -who owed the office 2,000_l._ but who had given security for only a part -of that sum, absconded, leaving an unpaid debt of upwards of 1,000_l._ -The recovery of the debt had long been considered hopeless, but a short -time ago a letter was unexpectedly received from the postmaster's son -enclosing a remittance in payment of part of his father's debt, and -expressing a hope that after a time he should be able to pay the -remainder--a hope which was soon realized, every farthing of the debt -having now been discharged, in a manner most creditable to the gentleman -concerned." - - - - -CHAPTER II. - -ON THE CIRCULATION OF LETTERS. - - -In order to give the reader a proper idea of the channel through which -ordinary correspondence flows--the circulation of letters in the -Post-Office system--it will be necessary to devote a long chapter to the -subject. We therefore propose to post an imaginary letter in the -metropolis for a village in the far away North, following it from its -place of posting till we finally see it deposited in the hands of the -person to whom it is addressed. - - -THE GENERAL POST-OFFICE. - -The General Post-Office, the great heart of the English postal system, -is a fine and, now that so many district offices are opened in London, -very convenient building. On the ground-floor the different offices -attached to the Circulation and Mail departments are located. Upstairs -we find the Secretary's department, that of the Receiver and -Accountant-General, and other branches of the Circulation Office. -Approaching the large hall of the General Post-Office, through one of -the three-columned porticoes, we post our letter, and as it is now -nearly six o'clock P.M. we stand aside, for a few minutes only, to -witness one of the most stirring scenes in the metropolis. Throughout -the day, one side of the hall presents a busy enough scene, and its -boxes, open for the receipt of correspondence for all parts of the -world, are constantly beset with people. Not only do these huge slits -still gape for letters, but the large windows, closed through the day, -are thrown wide open as a quarter to six chimes from the neighbouring -clocks. It is then that an impetuous crowd enters the hall, and letters -and newspapers begin to fall in quite a literary hail-storm. The -newspaper window, ever yawning for more, is presently surrounded and -besieged by an array of boys of all ages and costumes, together with -children of a larger growth, who are all alike pushing, heaving, and -surging in one great mass. The window, with tremendous gape, is -assaulted with showers of papers which fly thicker and faster than the -driven snow. Now it is that small boys of eleven and twelve years of -age, panting, Sinbad-like, under the weight of huge bundles of -newspapers, manage somehow to dart about and make rapid _sorties_ into -other ranks of boys, utterly disregarding the cries of the official -policemen, who vainly endeavour to reduce the tumult into something like -post-office order. If the lads cannot quietly and easily disembogue, -they will whiz their missiles of intelligence over other people's heads, -now and then sweeping off hats and caps with the force of shot. The -gathering every moment increases in number and intensifies in purpose; -arms, legs, sacks, baskets, heads, bundles, and woollen comforters--for -whoever saw a veritable newspaper-boy without that appendage?--seem to -be getting into a state of confusion and disagreeable communism, and -"yet the cry is still they come." Heaps of papers of widely-opposed -political views are thrown in together; no longer placed carefully in -the openings, they are now sent in in sackfuls and basketfuls, while -over the heads of the surging crowd were flying back the empty sacks, -thrown out of the office by the porters inside. Semi-official legends, -with a very strong smack of probability about them, tell of sundry boys -being thrown in, seized, emptied, and thrown out again _void_. As six -o'clock approaches still nearer and nearer, the turmoil increases more -perceptibly, for the intelligent British public is fully alive to the -awful truth that the Post-Office officials never allow a minute of -grace, and that "Newspaper Fair" must be over when the last stroke of -six is heard. _One_, in rush files of laggard boys who have purposely -loitered, in the hope of a little pleasurable excitement; _two_, and -grown men hurry in with their last sacks; _three_, the struggle -resembles nothing so much as a pantomimic _melee_; _four_, a Babel of -tongues vociferating desperately; _five_, final and furious showers of -papers, sacks, and bags; and _six_, when all the windows fall like so -many swords of Damocles, and the slits close with such a sudden and -simultaneous snap, that we naturally suppose it to be a part of the -Post-Office operations that attempts should be made to guillotine a -score of hands; and then all is over so far as the outsiders are -concerned. - -Among the letter-boxes, scenes somewhat similar have been enacted. -Letters of every shape and colour, and of all weights have unceasingly -poured in; tidings of life and death, hope and despair, success and -failure, triumph and defeat, joy and sorrow; letters from friends and -notes from lawyers, appeals from children and stern advice from parents, -offers from anxious-hearted young gentlemen, and "first yesses" or -refusals from young maidens; letters containing that snug appointment so -long promised you, and "little bills" with requests for immediate -payment, "together with six-and-eightpence;" cream-coloured missives -telling of happy consummations, and black-edged envelopes telling of -death and the grave; sober-looking advice notes, doubtless telling when -"our Mr. Puffwell" would do himself the honour of calling on you, and -elegant-looking billets in which business is never mentioned, all -jostled each other for a short time; but the stream of gladness and of -woe was stopped, at least for one night, when the last stroke of six was -heard. The Post-Office, like a huge monster, to which one writer has -likened it, has swallowed an enormous meal, and gorged to the full, it -must now commence the process of digestion. While laggard boys, to whom -cartoons by one "William Hogarth" should be shown, are muttering "too -late," and retiring discomfited, we, having obtained the requisite "open -sesame," will make our way to the interior of the building. Threading -our course through several passages, we soon find ourselves among -enormous apartments well lit up, where hundreds of human beings are -moving about, lifting, shuffling, stamping, and sorting huge piles of -letters, and still more enormous piles of newspapers, in what seems at -first sight hopeless confusion, but in what is really the most admirable -order. In the newspaper-room, men have been engaged not only in emptying -the sacks flung in by strong-armed men and weak-legged boys, but also in -raking up the single papers into large baskets, and conveying them up -and down "hoists," into various divisions of the building. Some estimate -of the value of these mechanical appliances, moved of course by steam -power, may be formed from the fact that hundreds of tons of paper pass -up and down these lifts every week. As many of the newspapers escape -from their covers in the excitement of posting, each night two or three -officers are busily engaged during the whole time of despatch, in -endeavouring to restore wrappers to newspapers found without any -address. Great as is the care exercised in this respect, it will -occasionally happen that wrong newspapers will find their way into loose -wrappers not belonging to them, and under the circumstances it would be -by no means a matter of wonder if--as has been more than once pointed -out--Mr. Bright should, instead of his _Morning Star_, receive a copy of -the _Saturday Review_, or an evangelical curate the _Guardian_ or -_Punch_, in place of his _Record_ paper. - -In the letter-room the officers are no less busily engaged: a number of -them are constantly at work during the hours of the despatch, in the -operation of placing each letter with the address and postage label -uppermost, so as to facilitate the process of stamping. In the General -Post-Office the stamping is partly effected by machinery and partly by -hand, and consists simply in imprinting upon each letter the date, hour, -and place of posting, while at the same time the Queen's head with -which the letter is ornamented and franked gets disfigured.[154] It will -easily be imagined that a letter containing a box of pills stands a very -good chance of being damaged under this manipulation, as a good stamper -will strike about fifty letters in a minute. Unpaid letters are kept -apart, as they require stamping in a different coloured ink and with the -double postage. Such letters create much extra labour, and are a source -of incessant trouble to the Department, inasmuch as from the time of -their posting in London to their delivery at the Land's End or John -O'Groat's, every officer through whose hands they may pass has to keep a -cash account of them. The double postage on such letters is more than -earned by the Post-Office. All unfastened and torn letters, too, are -picked out and conveyed to another portion of the large room, and it -requires the unremitting attention of several busy individuals to finish -the work left undone by the British public. It is scarcely credible that -above 250 letters daily are posted _open_, and bearing not the slightest -mark of ever having been fastened in any way; but such is the fact. A -fruitful source of extra work to this branch of the office arises -through the posting of flimsy boxes containing feathers, slippers, and -other _recherche_ articles of female dress, pill-boxes containing -jewellery, and even bottles. The latter, however, are detained, glass -articles and sharp instruments of any sort, whenever detected, being -returned to the senders. These frail things, thrown in and buried under -the heaps of correspondence, get crushed and broken, yet all are made up -again carefully and resealed. - -When the letters have been stamped, and those insufficiently paid picked -out, they are carried away to undergo the process of sorting. In this -operation they are very rapidly divided into "roads," representing a -line of large towns: thus, letters for Derby, Loughborough, Nottingham, -Lincoln, &c. might be placed in companionship in one division or "road," -and Bilston, Wednesbury, Walsall, West Bromwich, &c. in another. When -this primary divisional sorting is finished, the letters are divided and -subdivided over and over again, with the exception of those for the -various travelling sorting-carriages upon the different lines of -railway, which remain in divisions corresponding with various portions -of the country through which the several mail-trains run. It is into one -of these divisions that our own letter falls, to be seen again, however, -when we come to describe the Travelling Post-Offices. During the time -occupied in making up the mails, the Circulation Branch of the General -Post-Office presents a busy scene, yet retains the utmost order and -regularity. Hundreds of men are engaged in the various operations of -sorting and sub-sorting, yet all proceeds really noiselessly, and as if -the hundreds and thousands of letters representing the commerce and -intelligence of the English people could not be treated too carefully. -Every now and again the sorter pauses in his rapid movements, and places -a letter on one side. In some cases this signifies that he has detected -a letter containing a _coin_ of some sort; and when such letters have -been posted without being registered by the sender, the Department takes -this duty upon itself, charging a double fee on delivery. The number of -letters of this class detected in London alone during the first six -months after the plan was brought into operation, was upwards of 58,000. -Letters which cannot be read, or letters imperfectly addressed, are also -thrown on one side and conveyed to another part of the Circulation -Branch, where gentlemen whose extraordinary faculty of discernment have -gained them the singularly inappropriate name of "blind officers" sit in -state. - - -THE BLIND LETTER-OFFICE - -is the receptacle for all illegible, misspelt, misdirected, or -insufficiently addressed letters or packets. Here the clerk or clerks, -selected from amongst the most efficient and experienced officers, guess -at what ordinary intelligence would readily denominate insoluble -riddles. Large numbers of letters are posted daily with superscriptions -which the sorters cannot decipher, and which the great majority of -people would not be able to read. Others, again, are received with -perhaps only the name of some small village, the writers thinking it a -work of supererogation to add some neighbouring town, or even a county. -Numberless, for instance, are the letters bearing such addresses -as "John Smith, gardener, Flowerdale," or "Throgmorton Hall, -Worcestershire." Circulars, by the thousand, are posted in London and -other large towns without hesitancy, and with the greatest confidence in -the "final perseverance" principle of the Post-Office people, with -addresses not more explicit than the foregoing. Many country gentlemen -would seem to cherish the idea that the names of their mansions should -be known equally far and near from their manorial acres, and somehow -they seem to inoculate their correspondents with the same absurd notion. -If, however, it be possible to reduce the hieroglyphics on some strange -letter to ordinary every-day English, or find, from diligent search in -his library of reference, information relative to imperfectly-addressed -letters (information which might have been given much more easily by the -senders), our readers may be sure that the cunning gentleman of the -Blind Office, justly known for his patience and sagacity, will do it, -unless, indeed, the letter be "stone blind," or hopelessly incomplete. -As a genuine example of stone-blind letters, take the following, the -first of a batch which has been known to pass through the blind-room of -the General Post-Office:-- - - +-----------------------------------+ - | | - | Uncle John | - | | - | Hopposite the Church | - | | - | London. Hingland | - | | - +-----------------------------------+ - -It would certainly have been a wonderful triumph of skill to have put -this letter in a fair way for delivery: for once the blind officer -would acknowledge himself beaten; and then the Dead Letter Officers -would endeavour to find "Uncle John's" _relative_, intimating to the -said relative that greater explicitness is needed if "Uncle John" must -be found. - -But they manage better with the next letter in the batch. - - +--------------------------+ - | | - | Coneyach lunentick | - | | - | a siliam | - | | - +--------------------------+ - -is part of the address of a letter which the sorter no doubt threw away -from him with some impatience. The blind officer, however, reads it -instantly, strikes his pen, perhaps, through the address, and writes on -the envelope, "Colney Hatch Lunatic Asylum," and passes it out for -delivery. - - +-------------------------+ - | | - | | - | Obern yenen | - | | - | | - +-------------------------+ - -is seen in an instant to be meant for "Holborn Union." "Isle of Wight" -is, in like manner, written on a letter improperly addressed as -follows:-- - - +-------------------------------+ - | | - | Ann M---- | - | | - | Oileywhite | - | | - | Amshire | - | | - +-------------------------------+ - -The probability is that the last-mentioned letter will come back to the -Dead Letter-Office, on account of no town being given in the address; -still, the usual course is to send it out to the local district -designated, there being always the possibility that certain individuals -may be locally known. - -"_Ashby-de-la-Zouch_" is a town to spell which gives infinite trouble to -letter-writers; but the Post-Office official is especially lenient and -patient in cases of this kind. There are fifty different ways of -spelling the name, and few letters, except those of the better classes, -give it rightly spelt. "Hasbedellar-such" is the ordinary spelling among -the poor living at a distance. - - +---------------------------------------+ - | | - | Ash Bedles in such | - | | - | for John Horsel, grinder | - | | - | in the county of Lestysheer | - | | - +---------------------------------------+ - -is a copy of a veritable address meant for the above town. - -The blind letter officers of an earlier date succumbed before the -following letter:-- - - +-------------------------------------------+ - | | - | For Mister Willy wot brinds de Baber | - | | - | in Lang-Gaster ware te gal is | - | | - +-------------------------------------------+ - -but the dead letter officers were enabled from the contents to make out -that it was meant for the editor of a Lancaster paper, "where the gaol -is." The communication enclosed was an essay written by a foreigner -against public schools! - -The blind officers are supplied with all the principal London and -provincial directories, court guides, gazetteers, &c.; and by the help -of this, their library of reference, added to their own experience and -intelligence, they are generally able to put again into circulation -without the necessity of opening them, five out of six of all the -letters which are handed over to them. The addresses of some letters are -at once seen to be the result of mistake on the part of senders. Letters -addressed "Lombard Street, Manchester," "St. Paul's Churchyard, -Liverpool," both obviously intended for London, are sent out for trial -by the letter-carriers at what are believed to be their real -destinations. (See _Ninth Report_.) Letters, again, for persons of rank -and eminence, dignitaries of the Church, prominent officers of the army -or navy, whose correct addresses are known, or can be ascertained, are -immediately sent out for delivery to their right destination, however -erroneously directed, without question or examination of contents. The -following strange letters, meant for the eye of royalty, would not be -impeded in their progress in any way:-- - - +----------------------------+ - | | - | Keen Vic Tory at | - | | - | Winer Casel | - | | - +----------------------------+ - -and another-- - - +----------------------------+ - | | - | Miss | - | | - | Queene Victoria | - | | - | of England | - | | - +----------------------------+ - -would go to Windsor Castle without fail; while the following, posted in -London at the breaking-out of the Polish Insurrection, would find its -way to St. Petersburg as fast as packet could carry it:-- - - +----------------------------------+ - | | - | To the King of Rusheya | - | | - | Feoren, with speed. | - | | - +----------------------------------+ - -When the letter-carriers and the blind officers have expended all their -skill upon certain letters in vain, the next step is to send them to - - -THE DEAD-LETTER OFFICE. - -in order that they may be returned to the writers, provided any clue can -be obtained from the contents as to their whereabouts. The branch -in which this work is accomplished is now a very considerable -establishment, employing at least a score more clerks, &c. than in the -days of the old postage. In 1763, just a hundred years ago, the records -show that two clerks only were engaged in opening "_dead and insolvent -letters_." Now, nearly fifty officers are employed in the same duties. -Nor are these duties by any means so only in name. Last year -considerably over two millions of letters were returned to their writers -through the Dead-Letter Office from failures in the attempts to -deliver them. "Three-quarters of the non-deliveries," says the -Postmaster-General, "were on account of the letters being insufficiently -or incorrectly addressed, nearly 11,000 letters having been posted -_without any address at all_." - -In every provincial post-office in England and Wales a dead or returned -letter-bag is now forwarded daily to London, containing all the letters -which, from any cause, cannot be delivered. Each letter bears on its -front, written prominently in red ink, the reason of its non-delivery. -Thus, if the addressee cannot be found, or should have left the town, -the words "Cannot be found," or "Gone--left no address," are written -respectively. On the arrival of these bags in London, inclosed in the -larger bags containing the general correspondence, they are at once -passed to the "returned-letter branch," as the Dead-Letter Office is -called, where no time is lost in opening them. Every letter received is -first examined by an experienced and responsible officer, to make sure -that it has been actually presented according to its address, and that -the reasons assigned on the cover of the letter are sufficient to -account for its non-delivery. In doubtful cases, before the letter is -opened, the directories and other books of reference, of which there is -a plentiful supply in this office, are consulted, and should it be found -or thought that there has been any oversight or neglect, the letter is -re-issued, with proper instructions, by the first post. About 300 -letters are thus re-issued daily, many of which ultimately reach the -persons for whom they are intended. - -When it has been fully ascertained that nothing further can be done to -effect the delivery of an imperfectly or improperly addressed letter, it -only remains to have it sent back to the writer. This is done, if -possible, without the letter being opened. By an arrangement of ten -years' standing, if the returned letter has the writer's name and -address embossed on the back of the envelope, impressed on the seal, or -written or printed anywhere outside, it will not be opened, but -forwarded back according to this address. We may point out here, -however, that this arrangement, excellent and satisfactory as it is, has -sometimes led to serious mistakes and confusion; so much so, in fact, -that the Postmaster-General, in his report for 1861, appealed to the -public on the subject. It would appear that the practice of using -another person's embossed envelope is on the increase. When such a -letter, according to the arrangement, is forwarded to the supposed -writer, it has frequently fallen into the wrong hands (the master and -merchant instead of the clerk or other servant), and grievous complaints -have been made on the subject. The remedy, of course, lies with -letter-writers themselves. If there are no outward marks to indicate the -sender, the letter is then opened, and, if a suitable address can be -found inside, the letter is inclosed in the well-known dead-letter -envelope and forwarded according to that address. If a letter should be -found to contain anything of value, such as bank-notes, drafts, -postage-stamps, the precaution is taken of having a special record taken -of it, and it is then sent back as a registered dead letter. Money to -the value of 12,000_l._ or 14,000_l._ is annually found in these -returned letters. Of this sum about 500_l._ per annum falls into the -public exchequer, on account of no address being found inside, and no -inquiry being made for the missing letters. A vast number of bank -post-bills and bills of exchange are likewise found, amounting in all, -and on the average, to something like 3,000,000_l._ a-year. These bills, -however, as well as money-order advices, always afford some clue to the -senders, even supposing no address should be given inside the letter, -and inquiries are set on foot at the bankers and others whose names may -be given in the paper transactions. Forty thousand letters reach the -English returned branch each year containing property of different -kinds. Many presents, such as rings, pins, brooches, never reach their -destination, and are never sent back to the sender, because they are -often unaccompanied with any letter. These articles, of course, become -the property of the Crown. - -Postmasters of Irish towns send their "dead and insolvent letters" to -Dublin, and the residuum of the local Scotch post-towns are sent to -Edinburgh. In both these capitals, this particular class of letters is -dealt with in exactly the same manner as in the London office. We are -assured that the letters themselves, and the articles found in the -Scotch and Irish dead letters, illustrate no little the characters, the -feeling, and habits of the two people. The Scotch have, comparatively -speaking, the fewest dead letters; and as the writers are generally -careful to give their addresses inside the letters, little trouble is -said to be experienced in returning them, if it is necessary. The Irish -dead letters are more numerous than either the English or the Scotch. -This mainly arises from the circumstance of the nomadic habits of a -considerable portion of the Irish people: owing also to the same -circumstance, it is impossible to return many of the letters to the -writers. The Scotch dead letters rarely contain coin or any very -valuable enclosures, while of articles of jewellery, such as usually -form presents or tokens of affection, we are told there is a "lamentable -deficiency." The Irish dead letters, on the contrary, "are full of -little _cadeaux_ and small sums of money," illustrating at the same time -both the careless and the affectionate nature of the people. - -Letters which can neither be delivered nor returned through the -Post-Office are, if found to be valuable and if posted in the United -Kingdom, appropriated to the public revenue after a certain time; if -received for delivery from a foreign State, they are sent back to the -chief office of that country for final disposition. Letters posted in -this country found to be of no value, are kept at the Post-Office for a -month and then destroyed; foreign letters under the same circumstances -are not destroyed for two months. - - -And now, unless we at once return from our digression, we shall -not be in time to see the great night-mail despatched from St. -Martin's-le-Grand. Whilst we have been occupied with a contemplation of -the few waifs and strays of our national correspondence, the great bulk -of that correspondence has been well and carefully disposed of: the -letters and newspapers which we saw two hours ago as a mass of -inextricable confusion, are now carefully stowed away in their -respective bags, and not a letter or newspaper can be found. The hall -clock is silently approaching the hour of eight, when the bags must all -be sealed and ready to leave the place. At five minutes before that -time, all is still bustle and activity; five minutes perhaps after that -hour the establishment is nearly deserted. "Everything is done on -military principles to minute time." "The drill and subdivisions of -duties are so perfect," adds a close observer, "that the alternations -are high pressure and sudden collapse." This is the more remarkable, -inasmuch as the Post-Office, is subject to great variations in the -amount of work to be done. Particular nights in the week, Mondays and -Tuesdays for example, are known as the "heaviest," and even such events -as elections, influence the labour to be performed within the same given -time. During the last election for Lambeth, 40,000 circulars were posted -in London in one day, and properly disposed of. On the 14th of February -last, 957,000 extra letters, or valentines, passed through the -Circulation Office in London. Compared with Valentine's Day 1863, there -was an increase of a quarter of a million letters! - -In place of the old mail-coaches waiting in the yard of the office until -the work is completed inside, we have now the well-known mail-vans. As -they are rapidly supplied with bags, they chase each other to the -various railway stations, from which, to all points of the compass, the -night-mails now depart. Half an hour afterwards, we find ourselves in -one of these trains watching operations not dissimilar to those we have -just left, but much more wonderful, considering how they are -accomplished. - - -THE TRAVELLING POST-OFFICE. - -The travelling post-office deserves special attention, not less on -account of the interesting nature of the work performed, than because it -serves many important ends in the system of which it forms a part. It is -to the railway post-offices that the Department is indebted for much of -the simplification of its accounts. At different points in a mail-coach -journey, long stoppages used to be made in order that the "bye" and -"forward" letters might get sorted; on the introduction of railways, it -was seen that the number of bags must either be enormously increased, -and other complications arise, or the railways could not to any extent -be rendered available for post-office purposes. Just at this juncture, -it was suggested that the work might be done during the journey, and -the obstacles were soon surmounted. Further, by means of the travelling -offices, the Post-Office is enabled to offer more time for the posting -of letters, and not only so, but to give the public the benefit of -earlier deliveries. - -The railway-mail service has now assumed quite gigantic proportions. -Twenty-six years ago, when railways were only partially used for -post-office purposes, a writer predicted that they would "soon become -the _ne plus ultra_ of rapidity," and that the Post-Office would have to -take to them more and more. "In a few years," said the writer, "railways -will have become so general, that scarcely a mail-coach will be left in -England; certainly, none will be wanted in London." Both predictions -have since been verified; for the last twenty years, railways have -gradually absorbed all the mail contracts,--year by year the estimates -for this service showing a corresponding increase.[155] The first -railway post-office journey was made on the Grand Junction Railway, -between Liverpool and Birmingham, on the 1st of July, 1837. When the -line was completed to London, in January, 1838, the travelling office -started from the metropolis. The following curious account of the "Grand -Northern Railway Post-Office," as it was called, is culled from the -_Penny Magazine_. "On the arrival of the four 'accelerators' at the -Euston Station with the mails, the railway servants immediately carry -the large sacks to a huge looking machine, with a tender attached to it, -both at the end of the train. This caravan is the flying Post-Office, -with a table for sorting letters, and holes round the walls for their -reception." The carriage was certainly either an ungainly structure, or -the above is a most ungainly report. "In ten minutes," continues the -narrator, "the omnibuses are emptied of their contents, and the train of -carriages is then _wound up_ to the station at Camden Town, where the -engine is attached, _and the Primrose Hill tunnel soon prevents us -hearing the thunder of their rapid progress_." The Londoner of 1864, in -these days of metropolitan railways can afford to smile at this last -sentence. That the change in the system of mail conveyance wrought -immediate and striking improvement at the Post-Office does not admit of -question. In a contemporary account, we find an interesting but -wonder-stricken writer stating that "by means of the extra railway -facilities, letters now pass along this line (London and Birmingham) in -a space of time so inconceivably quick, that some time must elapse -before our ideas become accustomed to such a rapid mode of intercourse." -We learn from different works published by Mr. Charles Knight, that when -the railways were extended farther northwards, the Railway Post-Office -was extended with them, and was formed into sections. Thus, when the -lines were continued north as far as Lancaster, there were two divisions -formed, one staff of clerks, &c. to the number of eight, working between -London and Birmingham, and ten between Birmingham and Lancaster.[156] -There were two mails each day in both directions. The distance between -London and Lancaster (241 miles) was accomplished in eleven hours and a -half. The weight of the railway post-office, tender, bags, and clerks, -is stated by Mr. Whishaw, in his work on railways, to have been at that -period about nine tons. At that time, the expense of the service was -regulated by the weight carried. At present, on the great trunk line of -the London and North Western Railway Company, no fewer than eight -mail-trains run daily up and down, each conveying railway post-office -carriages and post-office employes. Half of these trains are run -specially, the number of passengers being limited. The weight of mails -running over this ground must have increased fourfold at the least, -inasmuch as the number of officers have been augmented in even a greater -proportion. Surprising as was the speed at which the first railway -post-office travelled, and wonderful as it was thought at the time, one -of the mail-trains now runs nearly double the distance between London -and Lancaster during the time which used to be taken for that ground -alone. _The Limited night-mail_, travelling between the Euston Square -station in London, and Perth in Scotland, accomplishes the distance of -451 miles in eleven hours and a half, or about forty miles an hour -including stoppages! - -The railway post-office proper, is now extended over nearly every -considerable line of railway in the kingdom. It comprises a number of -divisions or sections, named generally from the locality through which -they extend, or the railway travelled over, as the Bangor and Leeds -division, the Caledonian Railway post-office. The four principal or -trunk mails, three of them being divided into two sections, are (1) the -North-Western Railway post-office, travelling between London and -Carlisle; (2) the Irish Mail, between London and Holyhead; (3) the Great -Western, between London and Exeter; and (4) the Midland, between Bristol -and Newcastle-on-Tyne. Most of these divisions have _day_- as well as -_night_-mails running over them daily. Four trains a-day, being two in -each direction, are therefore the usual proportion of mails on the chief -lines of railway. As London is the _heart_ of the postal system, so -these four principal mails may be termed its _main arteries_, while as -veins in the great system, there are a number of smaller divisions of -the railway post-office that have not been enumerated. Again, at other -parts or points not important or extensive enough for travelling -offices, railway trains are arranged to wait the arrival of the trunk -mails; and thus, to continue the figure, our letters--the life-blood of -a nation's commerce and sociality--are conveyed to the remotest corners -of the country. - -It may be imagined that a proper control of this vast machinery, -extending through almost every county in the kingdom, with its scattered -staff of officials, will be difficult; but the efficient working of the -whole is nevertheless as thoroughly and promptly maintained as in any -other department where personal supervision is more direct. Each -divisional part has distinct officers allotted to it, the number of -_clerks_ being regulated according to the number of mails running over -the division in the course of a day, and the number of _sorters_ -according to the amount of sorting duties to be performed. Each mail -travels under the charge of one clerk, while each division is locally -superintended by one senior clerk. The entire direction, however, of all -the travelling officers is vested in the Inspector-General of Mails, who -also presides over the Mail Office at St. Martin's-le-Grand. We may here -further state, that the _length_ of the divisions--the extent of one of -which forms a post-office journey or "trip"--varies slightly, averaging -about 170 miles; the average _time_ taken to perform the journeys being -between five and six hours. As a rule, the night-mails travel during the -night-time, or between eight P.M. and six A.M.; the day-mails generally -speaking throughout the day. - -But we must make ready for our journey, and enter more into detail. -While van after van is arriving with its heavy loads of mail-bags, we -have time to notice that the train standing at the great London terminus -is nearly all post-office. Two or three carriages are being filled as -full as possible with made-up bags, and two more, fitted up like -post-offices, are simply meant for operations similar to those we have -already seen at the General Post-Office, in connexion with the -unfinished work which has now to be accomplished during the journey. It -is with the remaining carriage only that we have to do. Seen from the -outside, the office itself may still answer to the description given of -it twenty-five years ago by our authority above adverted to, although -considerable improvements must have been made in its construction since -that time. Though the structure is built with a very evident serviceable -purpose, the large, heavily-painted, windowless vehicle, looks more as -if intended for the conveyance of Her Majesty's horses than Her -Majesty's mails; the roof, however, covered with glass, with other -contrivances for the purposes of ventilation, soon convinces us that it -is intended for some description of the _genus homo_. We go inside, and -find it built like an ordinary saloon carriage, about twenty-two feet -long, and as wide and spacious as the railway arrangements will allow. -It is night-time, the reader will remember, and the interior looks warm -and cheerful with its row of bright-burning moderator lamps, and, in -this respect, contrasts strongly and pleasantly, as far as we are -concerned, with the dimly-lighted station, through which the cold night -air is rushing. The reader who is following us in this description must -abstain from imagining anything like luxury in the internal fittings. -Everything here is requisite for accomplishing the work in hand, but -there is no provision for any kind of indulgence; and spacious as the -place seems at a first glance, there is not to be found, when we come to -look narrowly, a single foot of spare room. Along the whole length of -one side of the carriage, and encroaching materially upon its width, a -number of tiers of boxes--the "holes" of our ancient authority--are -arranged for the sorting processes; the smaller ones for the letters, -and the larger ones in the centre of the office--more like shelves, many -of them being movable--for the newspapers and all that vast variety of -articles forwarded according to the rules of book-post. Every available -inch of space on the other side of the office is covered with upright -pegs, in recesses sunk in the carriage-sides, upon which are hung the -bags--now made of canvas, with the names of towns conspicuously painted -upon them--to be used in the course of the journey. These recesses, as -well as the two ends of the office, are well padded over, to secure -additional safety to the officers in the event of any accident.[157] -Under the desks or counters, which run from one end of the carriage to -the other, bags are packed, to be given out as the train arrives at the -respective stations. - -In less time, however, than it would take to read the foregoing, the -mail has speeded miles away, and reached, by this time, the fox-covers -and game-preserves of those Hertfordshire landowners who, when the -railway was projected, expressed the wish that its concoctors "were at -rest in Paradise!" The train possibly "thundered" through Camden Town as -it used to do in olden times, but it would be but a momentary sensation, -not to speak of the inhabitants being now quite accustomed to it. The -post-office work commenced when the train left the station. The bags -were quickly seized by the proper sorter, cut, and their contents turned -out on the desk. Then he distributes what he finds in the bags according -to a pre-arranged order. The registered letters which have found their -way to the office he at once transfers to the clerk on duty whose -special province it is to deal with them; the bundles of ordinary -letters--in one of which packets is the identical letter we ourselves -posted--he hands over to his fellow-sorters, who, each standing opposite -to a distinct set of boxes, labelled with the names of different towns -on the route, at once sort them away. The newspapers he deals with -himself. The work thus started, the scene presently becomes one of -considerable animation and a pleasant-enough sort of excitement, till -every bundle of letters is cut open and disposed of in the boxes. There -is then a lull, but it is only temporary. It is true that the train will -not stop till the county of Warwickshire is reached; but the intervening -country is provided for nevertheless--arrangements having been made that -at all the towns we pass the exchange of letter-bags shall be effected -by means of machinery whilst the train is progressing at its usual -speed. The contrivance in question deserves minute description.[158] The -machinery is not worked in the post-office, but in an adjoining van. By -means, however, of a substantial iron gangway, the two carriages are -connected, so that we can pass easily from one to the other and see the -operation itself. As we do so we are evidently nearing some town, for -the sorter is at that moment engaged in peering out of the window into -the darkness in search of some familiar object, such as bridge, river, -or cluster of trees, by means of which he is enabled to tell his -whereabouts with almost mathematical precision. Whilst he is busy -finding his position we will take the time to explain, that the -machinery is arranged so as to secure, simultaneously in most cases, -both the receipt and the despatch of bags. For the purpose of receiving -bags, a large strong net is fixed to one side of the van, to be drawn -down at the proper moment; and close to the door, on each side of it, -securely fixed to the carriage, are hollow iron bars, inside each of -which, working by means of a rope and pulley, an iron arm is fixed, upon -which the bags to be delivered, securely strapped in a thick, leathern -pouch, are suspended. Where the exchange has to be effected at the -station we are nearing, the arrangements are just the counterparts of -this. A net is spread to catch each pouch from the extended arm of the -carriage, and pouches are hung from iron standards in the ground of -sufficient height for the net in the train. The operation itself is -just commencing. The door is pushed back into the groove in which it -works, and then the sorter, touching a spring that holds up the net, it -is loosened from its supports, and projects over the carriage-sides; the -iron arm, acting on its pulley-rope, is drawn round into the carriage, -where the pouch is rapidly fastened to it by means of a catch or -spring--but in such a manner that a touch from the net-apparatus at the -station will bring it off--and then let down, remaining by virtue of its -own weight at right angles to the door. A moment of waiting, and then -all the machinery acts its assigned part properly; the pouch disappears -from the arm (or arms, if the bags have been heavy enough for two to be -used), and at the same moment another descends into the post-office net, -and all is over and quiet as before. We mean, of course, comparative -quiet, as much as is possible amid the din and endless rattle of a train -speeding at the rate of forty miles an hour. - -We follow the sorter as he makes his way back into the post-office -carriage, carrying with him the treasures we have watched him pick up by -the wayside. These new arrivals disposed of in the orthodox way, and the -process repeated two or three times, there is suddenly a movement among -the officers as they busy themselves in collecting from the different -boxes all the letters that have been received from first to last for the -bags about to be despatched at the approaching town--the first junction -station. The letters in question are examined to test the correctness of -the sorting, then tied up in bundles in a sharp and decisive way, then -placed away carefully in the several bags, which are tied, sealed, and -ready for delivery just as the train is brought to a stand. Here they -are given out; fresh supplies are received from a number of large towns -in the immediate district, and the train is again on its way. The bags -received are at once opened; the same round of sorting, collecting, -examining, is gone through; the same process of despatching for the next -and all subsequent postal stages is repeated, just as we have described. -Little variation is noticed, except that at certain points a much -larger number of bags are thrown into the office--for instance, as the -train nears the more thickly populated parts of the midland counties, -then the "black country," as it is called, and subsequently the -manufacturing districts. At one of these points a considerable addition -was made to the staff of sorters, who fell at once to work in the vacant -spaces left for them. And it was not before they were required; for -presently the train arrives at one of the principal mail junctions in -the kingdom, where an immense number of bags wait our arrival. These -bags have been brought somewhat earlier on, by other mail trains, -arranged so as to effect a junction with us; these having in their turn -met with other trains running across the country in transverse -directions. Thus there are here, bags from towns near and towns remote, -containing letters for places from which we are, as yet, hundreds of -miles distant. The work, however, will be resumed with increased -activity, according to the number of letters which may be forthcoming, -only whatever number there may be, all must be finished in a given time. -So far, the reader may imagine the duty to be one of dull routine and -very monotonous; so as a rule we believe it is: there are circumstances -connected with the manner of travelling, however, which conspire to make -it at times somewhat varied and exceptional. One moment, and we are -clattering down a hill, and the sorting partakes, to some extent, of the -same tear-away speed; another time, we are panting up a line of steep -gradient, and the letters find their boxes very deliberately; now, the -rails are somewhat out of order, or the coupling of the carriages has -not been well attended to, or we are winding round a succession of sharp -curves, and can scarcely keep our feet as the carriage lurches first to -one side, then to the other; in all which cases, not only is our own -equilibrium a source of difficulty to us, but we see that things proceed -anything but smoothly among the letters, which refuse to go in at all, -or go in with a spirited evolution, fluttering outside, and then landing -at their destination upside down, or in some other way transgressing -official rules in such case made and provided. Then the work is -accompanied to the different kinds of music, well known to "express -travellers." Now the train is tearing away through a tunnel, or through -an interminably long cutting of thick-ribbed stone, and then under or -over a bridge. Nor is this all, nor the worst: these noises are very -frequently varied by what is anything but a lively tune on the engine -whistle, but which, supposing the signal lights to be against us, or -Cerberus asleep at his post, is too often a round of screeching and -screaming enough to waken the Seven Sleepers. - -Whatever be the general character of the work, we are bent on enjoyment -during this particular journey. The country through which the train is -now proceeding is but thinly supplied with towns, hence the number of -letters received is much smaller, and we may avail ourselves of the -opportunity which this break in the character of the duty gives us, to -examine more closely and from our own point of view, a few of the -letters which are waiting to be despatched. The sorters also, glad of a -little relaxation, have produced from their hiding places under the blue -cloth-covered counter, an oval kind of swing-seat attached to it, which -turns outside somewhat ingeniously upon a swivel, and seat themselves at -their work. - -Undoubtedly, the first thing which will strike an observer placed in -circumstances like ours, is, that the Post-Office is eminently a -democratic establishment, conducted on the most improved _fraternite et -egalite_ principles. The same sort of variety that marks society, here -marks its letters; envelopes of all shades and sizes; handwriting of all -imaginable kinds, written in all shades of ink, with every description -of pen; names the oddest, and names the most ordinary, and patronymics -to which no possible exception can be taken. Then to notice the _seals_. -Here is one envelope stamped with the escutcheoned signet of an earl; -another where the wax has yielded submissively to the initials of plain -John Brown; and yet another, plastered with cobbler's wax, with an -impression that makes no figure in _Burke_ or _Debrett_, but which, -indeed, bears many evidences of having been manufactured with hob-nails. -Then to think that Queen Victoria, and John Brown, and the cobbler -aforesaid, must each find the inevitable Queen's head, without which no -letter of high or low degree can pass unquestioned! Here they are--these -letters--mingling for a few hours at any rate in silent but common -fellowship, tossed about in company, belaboured with the self-same -knocks on the head, sent to their destination locked in loving embrace, -and sometimes, as in the case of the cobbler's, exceedingly difficult to -part. - -If we turn to consider the addresses, how amusing we find some in their -ambiguity; how blundering and stupid a few more! Some say too little, -others too much; some give the phonetic system with _malice prepense_, -others because it is nature's own rendering and they have never known -school! Sometimes (and the practice is growing) the envelope is covered -with long advertisements, for the benefit and information of the -Post-Office officials, we presume, in which case it is difficult to -arrive at the proper address of the letter at the first or even second -glance. Some give the address of the _sender_ in prominent printed -characters, and it is surely not a matter of wonder when the letter, as -not unfrequently, happens, finds its way back to the sender. In all -cases of this kind, time is of course lost to the Post-Office, and the -work of examination is necessarily deliberate, hesitating, and slow. At -one point, the quota of letters from the sister-isle is received, and it -is then perhaps that the sorter's patience is put to the severest test. -The addresses of the letters of the poorer Irish are generally so -involved--always being sent to the care of one or two individuals--that -they usually present the appearance of a little wilderness of words. As -a specimen of the kind of letter referred to, we give our readers a copy -of one which actually passed through the Post-Office some time ago, -assuring them that though the following is rather an _ultra_ specimen, -this kind of minute but indefinite address is by no means uncommon among -the class referred to:-- - - +----------------------------------------------+ - | | - | To my sister Bridget, or else to | - | | - | my brother Tim Burke, in care | - | | - | of the Praste, who lives in the parish | - | | - | of Balcumbury in Cork, or if not to | - | | - | _some dacent neighbour in Ireland_. | - | | - +----------------------------------------------+ - -The English poor oftener, as we have already seen, show their unbounded -confidence in the sagacity of the officers of the Post-Office by leaving -out some essential part of the address of a letter, but very seldom -writing too much. We once saw a letter addressed as follows:--"Mary -H----, a tall woman with two children," and giving the name of a large -town in the West of England. - -The Scotch people, as a rule, attain the golden mean, and exhibit the -greatest care in such matters. Nor can we wonder at this. The poorer -classes are certainly better educated, and whilst seldom profuse on -their letters, they are cautious enough not to leave anything of -consequence unwritten. The statistics of the Dead Letter Offices of the -three countries confirm, to some considerable extent, our rough -generalizations. - -After all, however, the cases of blunder are exceptional; and -as no really blind letters are found in the travelling offices, -because no letters are posted here, little difficulty is felt, -comparatively speaking, and nothing but patience and the Rosetta stone -of experience are needed for the performance of the duty. The great -majority of letters are like the great majority of people--ordinary, -unexceptionable, and mediocre. It could not well be otherwise. In the -railway post-office, however, much is learned from the habit of -association. The officers, of course, take some degree of interest in -the towns on his ride; for, almost domesticated on the rail, he becomes -a sort of denizen of those towns he is constantly passing, and sees, or -fancies he does, from the letters that arrive from them, a kind of -corroboration of all he has settled in his mind with regard to them. -Almost every town has its distinctive kind of letters. That town we just -passed is manufacturing, and the letters are almost entirely confined to -sober-looking advice-cards, circulars, prices current, and invoices, -generally very similar in kind and appearance, in good-sized envelopes, -with very plainly written or printed addresses. Now and then a lawyer's -letter, written in a painfully distinct hand, or a thick, fat, banker's -letter, groaning under the weight of bills and notes, escapes from -company such as we have described; but still the letters sustain the -town's real character. Now we are at an old country town, with -quiet-going people, living as their fathers did before them, and -inheriting not only their money and lands, but their most cherished -principles: their letters are just as we expected, little, quiet, -old-fashioned-looking things, remarkable for nothing so much as their -fewness. _Now_ we are among the coal-districts, and almost all the -letters have a smudged appearance, making you imagine that they must -have been written by the light of pit-candles, in some region of carbon -"two hundred fathoms down." _This_ bag comes from a sea-bathing place, -and so long as summer continues, will unmistakably remind you of -sea-shore, sea-sand, and sea-anemones. _These_ bags have previously had -to cross a broad sea ferry, and the letters tell of salt water as -certainly as if they were so many fishes. Another twenty miles, and we -come to an old cathedral town with its letters looking as orthodox as -any Convocation could wish; whilst that other town is clearly a resort -of fashion, if we may judge from the finely scented, perfumed, -elegant-looking billets that escape from its post-bag. - -And thus interested and observing, we are rapidly reaching our -destination. We are at the terminus at last. The office is emptied of -all its contents, and the bags, securely made up, are forwarded under -care of other officers in different trains, proceeding far and near. Nor -have we forgotten our own letter. In the vast mass of letters it holds a -well-secured place, being safely ensconced in one of these very bags; -and we will endeavour to be present when the bag is opened, that we may -verify our assertion. Out of the carriage and once on _terra firma_, we -feel a sensation of dreamy wonder that nothing has happened to us; that, -considering the noise and the whirl, and the excitement of the work we -have witnessed, our brain is not tied up in a knot somewhere in the -head, instead of only swimming. Dusty, tired, and sleepy, we hurry -through the streets for refreshment, if not repose, while the day is -just breaking. - -Of course, this Post-Office machinery, which we have attempted to -describe, is necessarily delicate and liable to derangements, inasmuch -as it has to depend to a great extent on the proper carrying out -throughout the country of an infinite number of railway arrangements. -Its successful working is doubtless primarily due to the special time -chosen for the conveyance of mails. The ordinary traffic disposed of, -the mail-trains take its place, and through the long night the best part -of the Post-Office work is accomplished. The good or bad management of -railway companies may assist or retard the efficiency of the Post-Office -to an almost incalculable extent. The railway post-office is like a -gigantic machine, one part interdependent on another, and all alike -dependent on the motive power of the different contracting parties. -Railway accidents are fruitful sources of discomfiture to the -Post-Office Department. The mail-trains have, within the last two or -three years, enjoyed an immunity from any very serious calamity of this -nature: yet even when this is not the case, it very seldom happens that -the Post-Office arrangements suffer, except on the particular journey -wherein the accident occurred. Fresh supplies of men and _materiel_ are -summoned with a speed that would, or ought to, surprise some other -commissariat departments, and the work proceeds the next day or night as -if the equilibrium had never been disturbed. - -As the question whether continual railway travelling is prejudicial to -health has frequently been discussed of late, it may not be out of place -to instance the case of the travelling _employes_ of the Post-Office, -which seems to show that persons in the enjoyment of good health are -benefited by railway travelling. The ratio of sickness among the -Post-Office clerks and sorters engaged upon railways is certainly not -greater, we are told, than among the same class of officers employed at -the London establishment. The fact seems to be that, were it not that -the former travel generally at night-time, are exposed to sudden changes -of weather, and are, on certain emergencies, forced to travel oftener -and further than the authorized limits, the ratio would be considerably -less than it is. Dr. Waller Lewis, the medical officer of the -Post-Office, supplies us, in a recent report, with a number of cases -that have come under his immediate notice, where incessant, and even -excessive railway travelling, does not seem to have been at all -detrimental to the health of those so engaged. "One of our best -officers," says Dr. Lewis, "states that he has no doubt that, during the -period of twenty years that he has been engaged in railway duties, he -travelled, on an average, a hundred miles a-day, Sundays included. All -this time he not only enjoyed excellent health, but he was stouter and -stronger than he has been since leaving that duty." Dr. Lewis further -tells us, that it is part of his duty to examine candidates for -appointment in this department of the public service, and again to -examine them after they have undergone a probation varying from six to -eighteen months. "In reply to my question, addressed to such officers -after a probationary term, of how they found the travelling agree with -them, some stated that they had never been so well in their lives. A -considerable number of them replied that they had not had an hour's -illness since they commenced railway duty." Of course, these -last-mentioned persons were _candidates_ for appointments in a lucrative -branch of the Post-Office, and their statements must be received subject -to this understanding and with due caution: still, it seems certain that -the general testimony borne in the travelling offices is not -unfavourable to the healthiness of the employment. - -With regard to the question of injury to the eyesight from railway -travelling, Dr. Lewis may again be supposed to speak authoritatively -when he considers "it very injurious to allow the eyes to rest on -external objects near at hand, such as telegraph-poles or wires, near -trees or hedges, &c. whilst the train is in motion;" but, speaking of -the same subject, he "does not find that in the travelling post-office -much mischief is occasioned to the sight."[159] When we remember that -the Post-Office work is generally performed by means of a strong -artificial light, and much tedious deciphering of the addresses of -letters necessarily occurs, as we have seen, during travelling, it must -be admitted that the eyesight is here put to the strongest possible -test. - - -We have now traced our letter, posted in the metropolis, through the -travelling post-office into the establishment of a provincial town. We -shall follow it presently, and not leave it till it is properly -delivered at the rural village to which we saw it addressed; but we must -take the opportunities as they occur to describe with minuteness each -particular, whether bearing directly or collaterally on our subject, as -well as to add now and then a timely exhortation to the reader. Thus, -you are indignant, perhaps, that a certain letter you ought to have had -is not to hand at the proper moment, but has suffered some delay in -transit. However, just think how many letters you do get, which come to -your desk as true as the needle to the pole. Just listen to the old -gentleman yonder as he tells how long the same business letter from a -certain old-established house used to be in arriving, and what was paid -for it when it did arrive. Above all, pray think of the travelling caged -officials--those wingless birds of the Post-Office--and of what they go -through o' nights in order that you may have your letter or your -newspaper--posted yesterday in some quiet corner of the country 500 or -600 miles away--with your buttered toast to breakfast in town! - - -A PROVINCIAL POST-OFFICE. - -Thirty years ago the arrangements in the north country town of the -district to which our imaginary letter was addressed, and which we are -engaged to visit, were of the most primitive kind. It has always been an -important town. Even anterior to the first establishment of the British -Post-Office, it was the first town in the county in which it stands. -Subsequently, it was on the direct line of one of the principal -mail-routes in the kingdom, and now, in these days of railroads, it is a -kind of junction for the district. Postally speaking, it was, and is, a -place of importance, including within its boundaries nearly a hundred -villages, all deriving their letter-sustenance from it. At the period of -time in question the post-office was situated in the most central part -of the town, the outside of the building partaking of the ugly and -old-fashioned style of the shops of that day. It was then considered -quite sufficient for the business of the place that there should be a -small room of about twelve feet square devoted to postal purposes; that -there should be a long counter, upon which the letters might be stamped -and charged, and a small set of letter-boxes for the sorting processes. -Added, however, to the proper business of the neighbourhood, there used -to be a kind of work done here which was confined to a few towns only on -the line of mails, selected for this supplementary business on account -of their central positions. The mail-coaches, as they passed and -repassed northwards and southwards, stopped here for half an hour until -certain necessary sorting operations could be performed with a portion -of the letters. In this way our particular town held the style and -designation, and with it the _prestige_, of a "Forwarding Office." - -The public required little attention, and got but little. Being prior to -the time of postage-stamps, and we may almost add of money-orders, not -to speak of savings' bank business, few applications were ever made to -the officers--consisting of a postmaster, his wife, and another -clerk--for anything but stray scraps of information relative to the -despatch of mails. The communication with the public was anything but -close, being conducted in this town--and, in fact, in all others of our -acquaintance--through a trap-door in a wooden pane in the office-window. -Near to it was a huge slit, being a passage to a basket, into which -letters and newspapers were promiscuously thrown. The principal labour -incident to the old style of postage was in regulating the amount to be -paid on the different letters. Those posted in the town for the town -itself were delivered for a penny; twopence was charged into the country -places surrounding; letters for the metropolis cost a shilling; and -Scotch letters eightpence-halfpenny at least, the odd halfpenny being -the charge as a toll for the letter crossing the Tweed. The delivery of -the letters in the town took place at any time during the day, according -to the arrival of the mails, and it was effected by a single -letter-carrier.[160] Private boxes for the principal merchants in the -town, and private bags for the country gentlemen, were almost -indispensable to those who cared for the proper despatch and security of -their correspondence. Many gentlemen who did not arrange to have private -bags (at a great yearly expense) were compelled to make frequent -journeys to the town to ascertain if any letters had arrived for them. -Some letters for places within a few miles of the town would be known to -be at the office for days and weeks unguessed at, till perhaps some one -would hear, through one of many channels, that a letter was lying at the -post-office for persons of their acquaintance, and inform them of the -fact. Letter-delivering in the rural districts was then a private -concern, and, in consequence, those letters destined for one particular -road were laid aside till a sufficient number were accumulated to make -it worth while to convey them at a charge of a penny the letter.[161] -Owing to the wretched system then in force, many country places round a -post-office were, to all intents and purposes, more remote than most -foreign countries are at this hour. One letter-carrier sufficing for the -wants of the town, we need scarcely say that the number of letters -received was exceedingly small. Not more than a hundred letters were -posted or delivered, on an average, each day, though the town was the -seat of many brisk manufactories, and was, besides, in the heart of the -colliery districts. _Now_, a single firm in the same town will cause a -greater amount of daily postal business. - -Our purpose will not allow of our describing all the attendant -circumstances of the state of things existing at this early period, or -more fully than we have already done the postal arrangements of the -past. But there were the "_expresses_," which ought not to be forgotten. -Designed to supply some sudden emergency, they were of great use where -quick intelligence was urgently required. For this purpose they might be -had from the post-office people at any hour, and generally they were -procured through the night. A special mounted messenger might be -despatched, under this arrangement, with a single letter, marked "Haste! -post haste!" carrying with him a way-bill, to account for the time it -had taken him to perform the journey. The charge for expresses was at -the rate of a shilling a mile, the speed at which they travelled -averaging ten miles an hour. - -Nor can we stay, much as we should like to do so, to picture the old -mail-coach--its glittering appearance, its pawing horses; or to describe -the royal-liveried guard, "grand and awful-looking in all the composure -of a felt superiority." In the old times it used to pull up at the -half-wooden inn near the post-office, and, during the half-hour allowed -for postal business, was the observed of all observers. The half-hour -was one of unusual bustle both at the office and at the inn; but, as -soon as the time was up, the passengers would take their seats (the -guard occupying a solitary one at the end of the coach), the mails were -thrown as a small addition to the load of bags at the top, and off the -cavalcade would start, to the tune, perhaps, of the "Blue Bells of -Scotland," if the mail was going northwards, or, if southwards, may be -"The Green Hills of Tyrol," from the clear silver key-bugle of his -Majesty's mail-guard. - -Now, this is changed, and almost all postal arrangements prior to the -days of Sir Rowland Hill are as so many things of the past. And into -what a grand establishment the Post-Office itself is metamorphosed! The -part now dedicated to the public might be part of a first-class banking -establishment. Entering by a spacious doorway, with a lofty vestibule, -there is accommodation for a score of people to stand in the ante-room -and leisurely transact their business. Then there runs along the whole -length of the first or public room a substantial mahogany counter, -behind which the clerks stand to answer inquiries and attend to the -ordinary daily business. There is a desk for the money-order clerk, and -drawers in which postage-stamps are kept. Close by we see one or two -ranges of boxes; one for callers' letters--"_the poste restante_"--and -another for those who prefer to engage private boxes to having their -letters delivered by letter-carriers. - -Outside things are changed also. The wooden pane--nay, the window -itself--has disappeared to make way for a more modern structure; and -instead of the single letterbox, there are several. Late letters are now -provided for in a separate box, and so also are newspapers. The -principal post-office work is accomplished in an interior apartment, -from which the public are studiously excluded.[162] A large table stands -in the centre of the room; a smaller one, well padded with leather, -stands near, and is used specially for letter-stamping; a number of -letter-benches--for boxes are not used much now--are arranged against -three of the four walls and in the middle of the room, on which the -letters and newspapers are sorted. Empty canvas bags of different sizes, -with tin labels attached (if the name of the town is not _painted_ on -them), books, printed papers of different kinds, bundles of string, &c. -make up the furniture of the apartment, and complete the appearance of -it immediately prior to the receipt of the early-morning mail. - -Long before the ordinary workmen in our towns are summoned from their -repose, the Post-Office work in the provinces may be said to commence by -the mail-cart clattering through the now silent streets to the railway -station, there to await the arrival of the first and principal mail, and -its first daily instalment of bags. At the given time, and only (even in -the depth of winter) very occasionally late, the train emerges out of -the darkness, its two shining lamps in front, into the silent and almost -empty station. The process described in our account of the travelling -post-office is here gone through; a rapid exchange of bags is made, and -each interest goes its separate and hurried way. During the interval, -and just before the mail-cart deposits its contents at the door of the -post-office, the clerks and letter-carriers will have been roused from -their beds, and somewhat sulkily, perhaps, have found their places in -time. They look sleepy and dull, but this is excusable; the hour is a -drowsy one, and half the world is dozing. The well-known sound of the -mail-cart breaks the spell, however, and soon they are all thoroughly -alive, nay, even interested, in the duties in which they are engaged. -The bags just arrived are immediately seized by one of their number, who -hurriedly cuts their throats, and then empties the contents upon the -huge table in a great heap: somewhere in the heap our letter is -safely deposited. The bundles of letters are quickly taken to the -letter-stampers, through whose hands they must first pass. With a speed -and accuracy which rivals machinery,[163] an agile letter-stamper will -soon impress a copy of the dated stamp of the office upon the back of a -hundred letters, and this done, they are passed over to the clerks and -sorters to arrange them in the different boxes, the process being -repeated till the whole are disposed of. The newspapers and book-packets -are taken from the table without being stamped, and sorted by the -letter-carriers. As soon as the first or preliminary sorting is over, -each sorter will proceed upon distinctive duties; some will prepare the -letters for the letter-carriers, by sorting each man's letters together, -according to their different number. When this is done, the letters are -handed to the carriers, who retire to a separate room, looking with its -desks very like a small schoolroom, and there arrange them in order to -deliver them from house to house. Other officers will prepare the -letters for the sub-officers and rural messengers. When all the letters, -&c. for a certain village are gathered up, they are counted and tied up -in bundles; if any charged letters are sent, the amount is debited -against the sub-postmaster of the place on a letter-bill--something like -an invoice--which invariably accompanies every Post-Office letter-bag -despatched from one post-town to another, or from one head office to a -sub-office. If any registered letters are of the number to be sent, the -name of each addressee is carefully written on the letter-bill. Private -and locked bags for the country gentry still survive, and may be -obtained for an annual fee of two guineas. They are attended to with -some care, and are carried to their destination with the other made-up -bags. When the mails are ready, they are sent from the Post-Office in -various ways. Those for one or two country roads are sent to a local -railway station, and taken in charge by the railway guard, who drops the -bags at the different points on the line according to their address; -others are carried by mail gigs under one or more private contractors, -while the rest are taken by country-walking postmen, who make certain -journeys during the day, returning in the evening with the letters and -bags they have gathered during their travels. Of course the rural -messengers take out loose letters as well; _e. g._ those for detached -dwellings on their line of road. Our letter falls into the hands of one -of those hard-working and deserving men.[164] The village, or rather -hamlet, to which it is addressed is too small for a post-office, but a -rural postman passes through it on his daily journeyings about ten -o'clock each morning, delivering with scrupulous fidelity everything -committed to his care. Thus, posted where we saw it last night, it -passes from hand to hand all through the long night, and eventually -reaches that hand for which it was intended 300 odd miles away, nearly -as surely as if we had travelled to deliver it ourselves. - -But to return. While some of the officers are attending in this way to -the wants of the country, others are serving the interests of the town. -A hundred or two gentlemen, bankers and manufacturers, pay an extra -guinea yearly in order to secure certain special privileges at the -Post-Office. These privileges consist, in brief, of having their letters -arranged in private boxes, each labelled with their names, and delivered -from these boxes by one of the clerks as soon as the office is opened, -or the moment the letter-carriers emerge from it to enter upon any of -the daily deliveries of letters. Of course these letters must be -prepared previously. - -The office is open to the public for money-orders and for the -transaction of the business of the new savings' banks at nine o'clock, -and continues open on every day, except Saturdays, until six, on which -day two hours longer are allowed. It is not necessary to describe the -arrangements in these branches, seeing that the public are familiar from -daily experience with them. It will suffice to say that separate clerks -are usually delegated to these duties in our large towns, and are -answerable to the postmaster for the correctness of their accounts. The -same clerk attends to the sale of postage-stamps, keeping an account -with the postmaster of the quantity _sold_, and also of the stamps -_bought_ from the public under the recent arrangement. In larger towns -where one clerk is specially retained for these duties, he is known as -the "window clerk," as it devolves upon him to answer all applications -and inquiries. - -Throughout the day, the quietness of the post-office proper is broken in -upon and varied by the arrival of some small mail. On one of these -occasions, namely, on the receipt of the day-mail from London, the -operations of the morning are gone over again on a small scale, and for -a short time the office presents an appearance of some of its early -bustle. Letters are delivered in the town, but those arriving for the -country places remain at the office till the next morning. - -The work of the Post-Office commences before "grey dawn," and long -before the usual period of ordinary business in our towns; it lasts also -far into the "dewy eve." When merchants lock up their desks and offices, -and complete their last round of duties by posting their letters, the -serious work of the Post-Office, for the second time during the day, may -be said to begin. The hour before the despatch of the principal mail in -any provincial Post-Office, thanks in great part to the dilatoriness of -the public in general, is an hour of busy activity, seldom witnessed in -any other branch of industry whatever. Almost at the same moment the -country mail-gigs from their different rides, mail-carts from the local -railway stations, the rural postmen from their walks, and the -receiving-house keepers from the outskirts of the town, approach the -post-office door, and speedily cause the office to groan as it were -under the weight of letters and bags. All the force of the office is now -engaged, and engaged with a will, if the bags are to be ready for the -London night-mail due from Scotland at the railway station in sixty -minutes. Again, the same round of bag-opening, checking, stamping (only -now the stamps must be obliterated, as the letters are about to be -despatched for the first time), and sorting, which we described in the -morning, is again repeated. The sorted letters are examined, tied up in -bundles of sixty or seventy each, and then despatched in the bags -received at the beginning of the day from the London mail. The bags are -tied, sealed, and hurried away to the station. Now, at length, the -postmaster and his staff breathe freely. For a full hour they have been -engaged as busily, yet as silently, as so many bees in a hive; but now -that the work is finished, the thoughts of rogues, lovers, bankers, -lawyers, clergymen, and shopkeepers; the loves and griefs, the weal and -woes, of the town and country lie side by side, and for a few hours at -least will enjoy the most complete and secret companionship. Every -working day, and to some extent on Sunday, the same routine of work is -prescribed and accomplished with little variation. - - -In all this consists the _prose_ of Post-Office life; but who shall -describe its _poetry_? Scarcely a day passes in any of our provincial -post-offices without some incident occurring calculated to surprise, -amuse, or sadden. Very probably within a few minutes one person will -have come to make a complaint that a certain letter or letters ought to -have arrived, and must have been kept back; another will make an equally -unreasonable request, or propound some strange inquiry which the poor -post-office clerk is supposed to be omniscient enough to answer. Most -often, however, the cases of inquiry disclose sorrowful facts, and all -the consolation which can be offered--supposing that the clerk has any -of "the milk of human kindness" in him, a quality of mind or heart, much -too rare, we confess, in the Post-Office service--will likely be the -consolation of hope. The official sees now and then brief snatches of -romance; perhaps the beginning or the end, though seldom the transaction -throughout. Amusing circumstances are often brought out by requests -tendered at the Post-Office, that letters which have been posted may be -returned to the writers. A formal, but most essential rule, makes -letters once posted the property of the Postmaster-General until they -are delivered as addressed, and must not be given up to the _writers_ on -any pretence whatever. One or two requests of this kind related to us we -are not likely soon to forget. On one occasion, a gentlemanly-looking -commercial traveller called at an office and expressed a fear that he -had inclosed two letters in wrong envelopes, the addresses of which he -furnished. It appeared from the account which he reluctantly gave, after -a refusal to grant his request, that his position and prospects depended -upon his getting his letters, and correcting the mistakes, inasmuch as -they revealed plans which he had adopted to serve two mercantile houses -in the same line of business, whose interests clashed at every point. He -failed to get his letters, but we hope he has retrieved himself, and is -now serving one master faithfully. - -Another case occurred in which a fast young gentleman confessed to -carrying on a confidential correspondence with two young ladies at the -same time, and that he had, or feared he had, crossed two letters which -he had written at the same sitting. We heartily hope a full exposure -followed. Writing of this, we are reminded of a case where a country -postmaster had a letter put into his hand through the office window, -together with the following message delivered with great emphasis: -"Here's a letter; she wants it to go along as fast as it can, cause -there's a feller wants to have her here, and she's courted by another -feller that's not here, and she wants to know whether he is going to -have her or not." If the letter was as explicit as the verbal message -to which the postmaster involuntarily lent his ear, no doubt the writer -would not be long in suspense. These cases, however, are uninteresting -compared to one related by another postmaster. A tradesman's daughter -who had been for some time engaged to a prosperous young draper in a -neighbouring town, heard from one whom she and her parents considered a -creditable authority, that he was on the verge of bankruptcy. "Not a day -was to be lost in breaking the bond by which she and her small fortune -were linked to penury." A letter, strong and conclusive in its language, -was at once written and posted, when the same informant called upon the -young lady's friends to contradict and explain his previous statement, -which had arisen out of some misunderstanding. "They rushed at once to -the Post-Office, and no words can describe the scene; the reiterated -appeals, the tears, the wringing of hands, the united entreaties of -father, mother, and daughter for the restoration of the fatal letter." -But the rule admitted of no exception, and the young lady had to repent -at leisure of her inordinate haste. - -We have only space to close with a graphic extract from the -reminiscences of a post-office official, in which the everyday life of a -country post-office is admirably described: "For the poor we were often -persuaded both to read and write their letters; and the Irish -especially, with whom penmanship was a rare accomplishment, seldom -failed to succeed in their eloquent petitions; though no one can realize -the difficulty of writing from a Paddy's dictation, where 'the pratees, -and the pig, and the praiste, God bless him!' become involved in one -long, perplexed sentence, without any period from beginning to end of -the letter. One such epistle, the main topic of which was an extravagant -lamentation over the death of a wife, rose to the pathetic climax, 'and -now I'm obleeged to wash meself, and bake meself!'" The officers of the -Dead-Letter Office could a tale unfold, one would think, only an -essential rule of the service binds them to honourable secresy. The -Post-Office official often, however, and in spite of himself, learns -more than he cares to know. "For," as the writer continues, "a great -deal can be known from the outside of a letter, where there is no -disposition to pry into the enclosure. Who would not be almost satisfied -with knowing all the correspondence coming to or leaving the hands of -the object of his interest? From our long training among the letters of -our district, we knew the handwriting of most persons so intimately, -that no attempt at disguise, however cunningly executed, could succeed -with us. We noticed the ominous lawyers' letters addressed to tradesmen -whose circumstances were growing embarrassed; and we saw the carefully -ill-written direction to the street in Liverpool and London, where some -poor fugitive debtor was in hiding. The evangelical curate, who wrote in -a disguised hand and under an assumed name to the fascinating public -singer, did not deceive us; the young man who posted a circular -love-letter to three or four girls the same night, never escaped our -notice; the wary maiden, prudently keeping two strings to her bow, -unconsciously depended upon our good faith. The public never know how -much they owe to official secresy and official honour, and how rarely -this confidence is betrayed. Petty tricks and artifices, small -dishonesties, histories of tyranny and suffering, exaggerations and -disappointments were thrust upon our notice. As if we were the official -confidants of the neighbourhood, we were acquainted with the leading -events in the lives of most of the inhabitants." - -Once more, "Never, surely, has any one a better chance of seeing himself -as others see him than a country postmaster. Letters of complaint very -securely enveloped and sealed passed through our hands, addressed to the -Postmaster-General, and then came back to us for our own perusal and -explanation. One of our neighbours informed the Postmaster-General, in -confidence, that we were 'ignorant and stupid.' A clergyman wrote a -pathetic remonstrance, stating that he was so often disappointed of his -_Morning Star and Dial_, that he had come to the conclusion that we -disapproved of that paper for the clergy,[165] and, from scruples of -conscience, or political motives, prevented it--one of 400 passing daily -through our office--from reaching his hands whenever there was anything -we considered objectionable in it." - - - - -CHAPTER III. - -ON THE MAIL-PACKET SERVICE. - - -Our home and foreign mail-packet service is a costly and gigantic branch -of the Post-Office establishment. During the greater part of the -seventeenth and eighteenth centuries, the service was under the control -of the Post-Office authorities. We have already given many details of -the packet management of the period. It was then transferred to the -Board of Admiralty, in whose hands it continued up to so late as 1860. -Even at the commencement of the present century, the service seems to -have been carried on regardless of economy, and not without traces of -that wastefulness--we might almost say corruption--in the management, -which, a hundred years previously, would not have been regarded as very -remarkable. The arrangements eighty years ago, were none of the best. At -this period some of the vessels employed to convey mails were hired, -without any tender, while some few were the property of the Crown. In -1788, the state of the marine mail service attracted parliamentary -attention; for in that year we find a Committee of Fees and Gratuities -reporting that the cost of the mail service had reached an unreasonable -sum. They stated that for eighteen years that cost had been over a -million sterling, or an average charge of 60,000_l._ annually. With -regard to the manner in which the work was done, they found that many -officers of the Post-Office, "even down to the chamber keepers," were -owners of some of the packets employed to the exclusion of all else. -This Committee, with a view to remedying these and other abuses, -recommended that the Government should change the system entirely--the -Government share of the packets to be sold, and the entire service -offered by public and competitive tender. That this advice was not acted -upon, is clear from the fact that four years afterwards, the Finance -Committee urged upon the Government the necessity of complying with the -recommendations of 1788. In 1810, the cost of the service had increased -to 105,000_l._; in 1814 to 160,000_l._[166] - -Steam vessels had been in successful operation for three years before -they were introduced into the mail service. In 1818, the _Rob Roy_ -steam-packet plied regularly between Greenock and Belfast; in 1821, the -year in which Crown packets were established, the Post-Office, or rather -the Admiralty on behalf of the Post-Office, asked the help of steam. The -Holyhead station for Ireland, and the Dover station for the Continent, -were chosen for the experiment of mail-steamers. They were successful; -and soon we find six steam-packets stationed at each place. Then we have -the gradual introduction of mail contracts. The first of these -commercial contracts was made in 1833, with the Mona Island Steam -Company, to run steamers twice a week between Liverpool and Douglas, in -the Isle of Man. Immediately after, the General Steam Navigation Company -contracted to carry the Rotterdam and Hamburgh mails for 17,000_l._ -a-year. In 1853 these mails were transferred to the Ostend route. The -year 1839 was quite an epoch in the history of the packet service; Mr. -Samuel Cunard of Halifax, Nova Scotia, having in that year contracted -with the British Government for a fortnightly mail across the Atlantic, -for the sum of 60,000_l._ a-year. The Cunard line of steamers is now -universally known, and is unrivalled. - -Little more than a hundred years ago, 50,000_l._ sufficed to pay for -the entire mail service of the period; about half that sum being the -extent of the charges properly appertaining to the Post-Office. Then, -only a few continental mails and an occasional packet to the colonies of -North America and the West Indies, were all that had to be sustained; -even those were kept up at a considerable loss.[167] At that time the -aboriginal inhabitants of Australia and New Zealand were in undisputed -possession of these enormous colonies; the Dutch were then the only -targets for the arrows of the Caffres in South Africa; Warren Hastings -and Lord Clive were children at Daylesford and Market Drayton, and -little dreamt of their subsequent career in the East; while the tide of -emigration which has since carried Anglo-Saxon blood and Anglo-Saxon -energy into every corner of the globe had not then, to any extent, set -in. That a hundred years of unequalled internal progress has developed -our great empire and called into life fresh and important agencies, what -reflecting mind can doubt? For many recent years the packet service of -the country, traversing every known sea to keep up a connexion with -those whom the exigencies of life and commerce have dispersed so widely, -has cost the nation something like a million sterling per annum! - -In accordance with the provisions of an Act passed in the session of -1859-1860, the general control of the British packet service was -transferred (on the 1st of April, 1860) to the Post-Office authorities, -from whom it ought never to have been taken. It was considered that the -Postmaster-General, under the Treasury, was the best judge of the -requirements of the service, and could best set about reducing the -enormous expenditure arising from contracts, which the Lords of the -Admiralty, generally from political motives, had entered into. That this -judgment was the correct one, three years have amply sufficed to prove. -Contracts have been thrown open to public competition; and although many -of the companies which had previously done certain services re-secured -them, it was found that they had to engage to do the work at a much -lower figure--in one or two cases, in fact, for half the amount they had -been wont to receive. All the packet contracts, as they fall vacant, are -advertised fully by the Post-Office authorities, and in sufficient time. -Printed forms are issued, and intending contractors are required to fill -them up, every arrangement being made to secure the efficiency of the -work. Nearly all the contracts are now made terminable on twelve months' -notice being given by the Postmaster-General. - -Another change which the Post-Office authorities have made is a radical -but a necessary one, and bids fair to make the mail-packet service, at -no distant date, self-supporting, so far as the mother-country is -concerned. Under the new principle already applied to India and -Australia, the British colonies are required to pay _half the cost_ of -their respective services, the English Government paying the remainder. -The result in some instances has been an increase in postage rates, but -we hope this will not long be considered necessary. - -According to the Postmaster-General's _Ninth Report_--from which much of -the information concerning the present state of the mail service is -taken--we find that the total number of steam-ships employed in the -mail-packet service, exclusive of tenders, &c., is no less than -ninety-six, with an aggregate of 140,000 tons, and of 36,000 -horse-power. The largest and most powerful mail-packet in the service is -the Cunard paddle-wheel steam-ship _Scotia_, of 3,871 tons burden, and -1,000 horse-power. It belongs to the contractors for the North American -service, Messrs. Cunard, Burns, and Maciver. The smallest packet, -according to the same authority, was stated to be the _Vivid_, of 300 -tons, and 128 horse-power, the property of Mr. Churchward. It is more -than probable, however, that this packet is not now in the service, as -Mr. Churchward's contracts have subsequently been given to the Belgian -Government. - -The mail-packet contracts are divided into those of the Home and those -of the Foreign services. The most important home service is that for -carrying the Irish mails, entered into by the City of Dublin -Steam-packet Company. They are required to keep four powerful -steam-vessels to ply twice a-day between Holyhead and Kingstown, for a -yearly payment of 85,900_l._ This contract lasts until 1865. The least -important contract in the home service, if we may judge by the terms -imposed, is that for the daily conveyance of mails between Greenock and -Belfast, entered into by Mr. Burns of Glasgow. Mr. Burns undertakes to -perform this service in all weathers, _free of expense_, and to pay an -annual sum of 100_l._ as penalty for general improper performance of the -duty! - -The home contracts dwindle into insignificance before those of the -foreign service. The foreign packets travel over the immense distance of -3,000,000 of statute miles each year. As the cost of the whole service -is nearly a million pounds annually, the average charge per mile is -6_s._ 4_d._ The average speed of the foreign packets is ten miles an -hour. The principal contracts are those for the Indian and Chinese -mails, entered into by the Peninsular and Oriental Steam-navigation -Company, and for which the sum of 253,000_l._ is paid yearly. In this -service, packets sail four times a month from Southampton, and other -mails are met at Marseilles at the like intervals. A fleet of steamers, -of not less than 1,100 tons, are engaged for a system of relays -established in the Mediterranean, and also between Suez and Bombay, Suez -and Calcutta, and Bombay and China. The Australian mails are carried out -to Ceylon in the Indian packets, when, on arrival at that point, another -fleet of steamers, engaged from the same company on a supplementary -contract of 134,672_l._ a-year, carry them between Point de Galle and -Sydney. An additional line of packets to the Antipodes, _via_ Panama, -will be run in January, 1865. The West Indian are the worst paying of -all the foreign mails, costing twice as much as they yield.[168] The -Royal Mail Steam-packet Company is paid the enormous sum of 270,000_l._ -a-year for their conveyance. The North American mails are carried by -Messrs. Cunard & Co. for the sum of 176,340_l._ a-year. Eight -steam-vessels are employed by this firm, leaving Liverpool once a-week, -and travelling also between New York and Nassau once a-month. Sir Samuel -Cunard himself contracts for the Canadian mails, receiving the yearly -sum of 14,700_l._ These supplementary packets sail from Halifax, on the -arrival of the Cunard steamers from Europe, to Bermuda and St. Thomas, -and also to Newfoundland. The Canadian contract costs less than any -other on the foreign service. - -The most distant point to which English mails are conveyed by the -British packet service is Auckland, New Zealand, about 15,000 statute -miles from Southampton. This service is rendered by the Intercolonial -Royal Mail-packet Company, with a fleet of four strong steamers, for -22,000_l._ annually. Of course, this company only performs the journeys -between Sydney in New South Wales and Auckland in New Zealand. The -nearest point from England is Calais, twenty-six miles from Dover. - -Notwithstanding the extraordinary length of some of the journeys of the -different mail packets, the Postmaster-General informs us that, except -in case of accident, the packets, even when late, arrive within a few -hours of their time, sometimes within a few minutes. As examples of -remarkable punctuality, which is now the rule, and not the exception, he -gives several instances, from which we select the following:--"The mails -for the West Indies and Central America, despatched from Southampton on -the 17th of September, were delivered at the Danish island of St. -Thomas, distant more than 4,000 miles, at the precise moment at which -they were due. On the same voyage, the mails for Jamaica and Demerara, -conveyed in each case by a separate branch-packet, were delivered within -a few minutes of the time at which they were due; the mails for parts of -Central America and for the Pacific were delivered at Colon, on the -eastern coast of the Isthmus of Panama, distant 5,400 miles, thirty -minutes after time, the packet having been detained at sea that precise -period by H.M.S. _Orlando_; while the mails for Chili, after having been -conveyed with others across the Isthmus of Panama, were delivered at -Valparaiso, distant nearly 9,000 miles from Southampton, two hours -before the appointed time." - -The mail packets employ a force, including officers, of more than 8,000 -men. In addition to these, there is a staff of thirty-three naval -officers--all officers of the royal navy, though maintained by the -Post-Office--employed upon such packets as those for the Cape and the -west coast of Africa, and charged with the care and correct delivery of -the mails. They are further required to do all they can to guard -against delay on the voyage, and to report on nautical questions -affecting in any way the proper efficiency of the service. Other -officers, besides, are fixed at different foreign stations to direct the -transfers of mails from packet to packet, or from packets to other modes -of conveyance. Then, again, in growing numbers, another class of -officers travel in charge of mails, such as the Indian and Australian, -and on all the North American packets, who, with a number of sorters, -are employed in sorting the mails _during the voyage_, in order to save -time and labour in the despatch and receipt of mails at London and -Liverpool respectively. There are now twenty-eight of this new class of -working mail officers, who, of course, are substituted for the old class -of naval agents. On the less important mail packets no naval officer is -specially appointed, but the mails are taken in charge by the commander. - -In past years few casualties, comparatively, have occurred in this -service. The loss of the mail packet _Violet_, on her journey between -Ostend and Dover, in 1856, will be remembered by many. One incident in -that melancholy shipwreck deserves mention here, affording a gleam of -rich sunshine amid a page of dry though not unimportant matter. Mr. -Mortleman, the mail officer in charge of the bags, on seeing that there -was no chance for the packet, must have gone down into the hold and have -removed all the cases containing the mail bags from that part of the -vessel; and further, placed them so that when the ship and all in it -went down, they might float--a proceeding which ultimately led to the -recovery of all the bags, except one, containing a case of despatches. -On another occasion, the mail master of a Canadian packet sacrificed his -life, when he might have escaped, by going below to secure the mails -intrusted to him. Other cases of a similar devotion to duty have, on -several occasions of exposure to imminent danger, distinguished the -conduct of these public officers, proving that some of them regard the -onerous duties of their position in a somewhat higher light than we -find obtains in the ordinary business of life. - -During the last year, however, an "unprecedentedly large number of -shipwrecks"[169] are on record, no less than five valuable packets -having been totally lost. In the early part of the year, the _Karnak_, -belonging to Messrs. Cunard and Co., was wrecked in entering Nassau -harbour. Shortly after, the _Lima_ struck on a reef off Lagarto Island, -in the South Pacific Ocean, and went down. The only loss of life -occurred in the case of the _Cleopatra_, the third packet which was -lost. This last-named vessel, belonging to the African Steam-ship -Company, the contractors for the Cape service, was wrecked on Shebar -reef, near Sierra Leone, when an officer and four Kroomen were washed -from a raft and drowned in endeavouring to reach the shore. Towards the -close of 1862, the _Avon_, belonging to the contractors for the West -Indian service, was wrecked at her moorings in the harbour of Colon, New -Granada; and, lastly, the _Colombo_ (conveying the Australian mails from -Sydney) shared the same fate on Minicoy Island, 400 miles from Ceylon. -The greatest loss of correspondence was caused by the failure of the -last-mentioned packet, though, from the care of the Post-Office -authorities, and the prompt arrangements of the contractors, the loss -was not nearly so great as it might otherwise have been if the proper -appliances had not been ready to hand. The mails were rescued from their -ocean bed and brought to London, where every effort that skill could -devise was made to restore them to their original condition. They were -carefully dried, in order that the addresses of the letters and -newspapers might be deciphered. When dried it was requisite that they -should be handled most carefully to prevent them crumbling to pieces--so -much so, in fact, that many were unfit to travel out of London without -being tied up carefully, gummed, and placed in new envelopes, and -re-addressed, providing that the old address could by any means be read -or obtained. Notwithstanding all the care and attention bestowed, a -great number of letters remained, in the words of the Post-Office -people, "in a hopeless state of pulp." An Australian _carte de visite_, -which arrived with the rescued mails from the _Colombo_, and now before -us, may have been a gem of art from one of the antipodean "temples of -the sun," but we have not now the means of judging, as a yellow bit of -paper, with an indistinct outline upon it, is all that remains. - - -FOOTNOTES: - -[166] At this period the packets were worked at a considerable loss; -though this large item was occasioned by the war, yet the sea-postage -never amounted to half the cost of the maintenance of the mail-packets. - -[167] In the American Colonies, Benjamin Franklin was the last and by -far the best colonial Postmaster-General. He had forty years experience -of postal work, having been appointed postmaster of Philadelphia in -1737. Mr. Pliny Miles, in his history of the Post-Office in America, -_New York Bankers' Magazine_, vol. vii. p. 360, has furnished many -interesting particulars of this period. It appears that Franklin -notified his appointment in his own newspaper as follows: "Notice is -hereby given, that the Post-Office at Philadelphia is now kept at B. -Franklin's in Market Street, and that Henry Pratt is appointed -riding-postmaster for all stages between Philadelphia and Newport, -Virginia, who sets out _about the beginning_ (!) of each month, and -returns in twenty-four days, by whom gentlemen, merchants, and others -may have their letters carefully conveyed." What follows is also -interesting. It would seem that Franklin was somewhat unceremoniously -dismissed from his post, upon which he wrote, by way of protest, that up -to the date of his appointment "the American Post-Office never had paid -anything to Britain. We (himself and assistant) were to have 600_l._ -a-year between us, _if we could make that sum out of the profits of the -office_. To do this, a variety of improvements were necessary; some of -these were, inevitably, at the beginning expensive; so that in the first -four years the office became above 900_l._ in debt to us. But it soon -after began to repay us; and before I was displaced by a freak of the -Minister's we had brought it to yield three times as much clear revenue -to the Crown as the whole Post-Office of Ireland. Since that imprudent -transaction," adds Franklin, with a bit of pardonable irony, "they have -received from it--not one farthing!" - -[168] The amount of sea-postage collected has never reached within late -years to more than _half_ the entire cost of the mail-packet service. In -1860, this cost was 863,000_l._ and the postage collected amounted to -409,000_l._ - -[169] Postmaster-General's _Ninth Report_, p. 84. - - - - -CHAPTER IV. - -ON POSTAGE-STAMPS. - - -The history of postage-stamps is somewhat remarkable. First used, as -many of our readers will remember, in May 1840, the postage stamp has -only just passed out of its years of minority, and yet at this present -moment there are more than fifteen hundred different varieties of its -species in existence, and the number is increasing every month. The -question as to who invented the postage-stamp would not be easily -settled; it appears to be the result of innumerable improvements -suggested by many different individuals. We will not enter far into the -controversy, and would only urge that the discussion as to its origin -has once more served to exemplify the truth of the saying of the wise -man, "The thing which hath been, it is that which shall be, and there is -no new thing under the sun." Post-paid envelopes were in use in France -as early as the reign of Louis XIV.[170] Pelisson states that they -originated, in 1653, with a M. de Velayer, who established, under royal -authority, a private penny post in Paris, placing boxes at the corners -of the streets for the reception of letters, which should be wrapped up -in certain envelopes. Shopkeepers in the immediate neighbourhood sold -the envelopes, some of which are still extant.[171] - -In England, stamps to prepay letters were most probably suggested by the -newspaper duty-stamp, then, and for some time previously, in use. Mr. -Charles Whiting seems to have thrown out this suggestion to the -Post-Office authorities in 1830.[172] Afterwards, Mr. Charles Knight -proposed a stamped cover for the circulation of newspapers. Dr. Gray, of -the British Museum, claims the credit of having suggested that letters -should be prepaid with them, as early as 1834.[173] No steps, however, -were taken in regard to any recommendations on the subject till the -proposals for post reform; and, consequently, the credit of the -improvement has fallen, to a considerable extent, to Sir Rowland Hill. -The use of postage-stamps was scarcely part of his original scheme, -though it followed almost as a matter of course: and, indeed, this -public benefactor, crowned with so many well-won laurels, may easily -afford to dispense with the adornment of this single one. - -Mr. Hill's famous pamphlet on _Post Reform_ went through three editions -rapidly. In the first edition, which was published privately, we find no -mention of the use of stamps--though prepayment of letters was always a -principal feature in his proposals--_money payments_ over the counter of -the receiving-office being all that was suggested under this head. -Immediately after the publication of the first edition, the members of -the Royal Commission on the Post-Office, which had been sitting at -intervals since 1833, called the author before them. In connexion with -the subject of the prepayment of letters, the officers of the Stamp -Office--Mr. Dickenson, the paper-maker, and several others--were also -examined, and the subject was thoroughly discussed.[174] Almost, as it -would seem, as a consequence of the proceedings before Committee, Mr. -Hill, in the second edition of his pamphlet, recommended definitely the -use of some kind of stamps or stamped envelopes as a means of -prepayment. When the Committee of the House of Commons met in 1837-8 to -investigate the merits of Mr. Hill's penny-postage scheme, they were, -of course, required to express an opinion as to the desirability or -otherwise of prepayment by means of stamps. A favourable opinion was -given on the subject, so that when the Government brought in and carried -the Penny-Postage Act, a clause for their use formed a component part of -it. - -Though it was agreed on all hands that stamps, or stamped paper of some -sort, should come into use with the advent of cheap postage, it was by -no means easy to hit upon a definite plan, or, when a number of plans -were submitted, to decide upon the particular one to be adopted. Stamped -_paper_, representing different charges, was first suggested. Folded in -a particular way, a simple revenue-stamp would then be exposed to view, -and frank the letter. Another suggestion was that a stamped _wafer_, as -it was called, should be used, and, placed on the back of a letter, seal -and frank it at the same time. The idea of stamped _envelopes_, however, -was at first by far the most popular, and it was decided that they -should be the prepaying medium. Plans and suggestions for the carrying -out of this arrangement being required at once, the Lords of the -Treasury issued a somewhat pompous proclamation, dated August 23d, 1839, -inviting "all artists, men of science, and the public in general," to -offer proposals "as to the manner in which the stamp may best be brought -into use." So important was the subject considered, that Lord -Palmerston, the then Foreign Secretary, was directed to apprise foreign -Governments of the matter, and invite suggestions from any part of the -civilized world. Three months were allowed for plans, and two prizes of -200_l._ and 100_l._ were offered for proposals on the subject, "which my -Lords may think most deserving of attention." The palm was carried off -by the late Mr. Mulready, Royal Academician, who designed the envelopes -now known by his name. These envelopes, which allegorically celebrated -the triumphs of the post in a host of emblematical figures, were of two -colours; the one for a penny being printed in black, and the other, for -the twopenny postage, in blue ink. They gave little satisfaction, -however, and at the end of six months were withdrawn from use. There was -little room left on the envelope for the address. They left to the -common and vulgar gaze, as Miss Martineau, we think, has pointed out, -emotions of the mind which had always best be kept in the background, -and instead "of spreading a taste for high art," which had been hoped, -they brought it into considerable ridicule.[175] - -Before the postage-envelope was finally withdrawn from use, the Treasury -issued another prospectus, offering a reward of 500_l._ for the best -design and plan for a simple postage-_label_. It was made a condition -that it should be simple, handy, and easily placed on paper, and of a -design which would make forgery difficult, if not impossible. About -1,000 designs were sent in, but not one was chosen. Eventually, the ugly -black stamp, said to be the joint production of some of the officers of -the Stamp- and Post-Offices, was decided upon and brought into use. Two -years afterwards, this black stamp was changed to brown, principally -with a view to make the obliterating process more perfect, and the -better to detect the dishonesty of using old stamps. For the same -reasons, the colour was again changed in a short time to red, and so it -has remained to the present time. The twopenny stamp has been from the -first blue. Up to this date, at different intervals, six other stamps -have been issued, as the necessities of the inland or foreign postage -required them. The tenpenny stamp, of an octagonal shape and brown -colour, is now scarcely ever used, if it be not even withdrawn from -circulation. The list comprises, besides the stamps we have mentioned, -the sixpenny (lilac), the shilling (green), the fourpenny (vermilion), -the threepenny (rose), and the ninepenny (yellow). The last two were -issued only two or three years ago. The whole of the English labels bear -the impression of the head of Queen Victoria, and are all of the same -size and shape (if we except the tenpenny stamp), the sole difference -being in the colour, and in the various borderings round the Queen's -portraits. Besides these distinguishing marks, however, they all tell -the tale of their own value.[176] - -Soon after the introduction of postage-stamps, stamped envelopes were -again proposed. This time the proposition was a very simple one, only -consisting of the usual kind of stamp embossed on the right-hand corner -of a common envelope; the shape to be oval, round, or octagonal, -according to the value of the envelope. For the envelopes themselves, a -peculiar kind of paper was prepared by Mr. Dickenson, and was considered -on all hands to be the best possible preventive of forgery. This paper, -which was manufactured with lines of thread or silk stretched through -its substance, has been used ever since. Russia, in adopting the stamped -envelope, guards against forgery by means of a large water-mark of a -spread eagle running over the envelope. - -The English Stamp-Office affords every facility in the matter of stamped -paper and envelopes, and private individuals may indulge their tastes to -almost any extent. The officers of Inland Revenue, Somerset House, will -place an embossed stamp on any paper or envelope taken to them, equal to -the value of any of those above mentioned, or to a combination of any of -them, under the following regulations:-- - - 1st. When the stamps required do not amount to 10_l._ worth one - shilling is charged, in addition to the postage stamps, for each - distinct size of paper. - - 2d. When the stamps amount to 10_l._ worth no fee is charged if one - size of paper only be sent. - - 3d. When the stamps amount to 20_l._ worth, no fee is charged, and - two sizes of paper are allowed; 30_l._ three sizes are allowed; - 40_l._ four sizes. - - 4th. No _folded_ paper can be stamped; and therefore paper, whether - intended for envelopes or letters, must be sent unfolded and without - being creased. - - 5th. Every distinct size and form of envelope or paper must be - marked so as to indicate the plan on which the stamp is to be - impressed, in order that, when the envelope or letter is folded and - made up, the stamp may appear in the proper position according to - the rules of the Post-Office. - - 6th. No coloured paper can be received for stamping, nor any paper - which is too thin to bear the impression of the dies. - - 7th. Envelopes provided by the office, with the proper stamps - thereon, will be substituted for any which may be spoiled in the - operation of stamping. - -A recent concession made by the Board of Inland Revenue may be regarded -as one of the latest novelties in the advertising world. Under the -arrangement in question, the Stamp-Office permits embossed rings with -the name of a particular firm, _e. g._ "Allsop & Co., Burton-on-Trent," -"De la Rue & Co.," to be placed round the stamp as a border to it. - -In 1844, after the _expose_ of the letter-opening practices at the -General Post-Office, Mr. Leech gave in _Punch_ his "Anti-Graham -Envelopes," and his satirical postage envelope, afterwards engraved by -Mr. W. J. Linton, and widely circulated, represents Sir James Graham -sitting as "Britannia." About the same time there might have been seen -in the windows of booksellers of the less respectable class, a kind of -padlock envelope, exhibiting the motto, "Not to be Grahamed." - -For eight long years, the English people may be said to have enjoyed a -complete monopoly in postage-stamps. Towards the close of 1848, they -were introduced into France, and subsequently into every civilized -nation in the world. Last year they even penetrated into the Ottoman -Empire, and strange as it appears, when viewed in the light of -Mohammedan usage, the Sultan has been prevailed upon to allow his -portrait to appear on the new issues of Turkish stamps. - -In pursuance of a recommendation of a select committee of the House of -Commons which sat in 1852, a perforating machine was purchased from Mr. -Henry Archer, the inventor, for the sum of four thousand pounds.[177] -The same committee could not decide, they said, on the "conflicting -evidence" whether copper-plate engraving or surface printing would best -secure the stamps against forgery, but they considered that the accurate -perforation of the sheets would be a valuable preventive against -forgery, "inasmuch as it would be exceedingly difficult to counterfeit -sheets, and sheets badly done would at once excite suspicion when -offered for sale." The invention of the perforating machine is said to -have been attended with considerable labour, as, undoubtedly, it was by -skill and ingenuity. To the Post-Office and the public the patent was -sufficiently cheap. For a number of years the stamps had to be separated -from each other by knives or scissors; now one stamp may be torn from -the other with ease and safety. The process of puncturing the narrow -spaces round each stamp--an undertaking not so easy as it seems--is the -last the sheet of stamps undergoes before it is ready for sale. - -With regard to the other processes, little is known out of the -Stamp-Office, beyond what may be gathered from a close inspection of the -postage-stamps themselves. For obvious reasons, it has never been -thought desirable to publish any account of the manufacture of stamps. -We may simply say that all English postage-labels are manufactured at -Somerset House, and the entire establishment, which is distinct from the -other branches of the Inland Revenue Department, is managed at the -annual expense of thirty thousand pounds.[178] Of this sum, nineteen -thousand pounds is the estimated cost for the present year, 1863-1864, -of paper for labels and envelopes, and for printing, gumming, and -folding. About five thousands pounds will be necessary to pay the -salaries of the various officers, including five hundred pounds to the -supervisor, and one hundred pounds to the superintendent of the -perforating process. Mr. Edwin Hill, a brother of Sir Rowland Hill, is -at the head of the department. A large number of boys are employed at -the machines, under the superintendence of three or four intelligent -superintendents. The paper used for the stamps is of a peculiar make, -each sheet having a water-mark of two hundred and forty crowns; the -blocks used are of first-rate quality, and only subjected to a certain -number of impressions. The blocks are inked with rollers as in -letter-press printing. Of course, the stamps are printed in sheets, -though each one is struck with the same die or punch. After the -printing, and before the sheets are perforated, they are covered on the -back with a gelatine matter to render the label adhesive. - -Great precaution is taken in the printing of the stamps to provide -against forgery. All the lines and marks, as well as the initial -letters in the corner, are arranged so as to make the whole affair -inimitable. The best preservative, however, in our opinion, against a -spurious article, is the arrangement under which stamps are sold. Only -obtainable in any large quantity from the Stamp or Post-Offices, any -attempt on the part of the forger to put a base article into circulation -is encumbered with difficulties. Stamps, while they do duty for coin, -are used almost exclusively for small transactions, and generally among -people well known to each other. Other precautions are nevertheless very -necessary; and besides the initial letters on each stamp--different in -every one of the two hundred and forty in the sheet--which are -regarded as so many checks on the forger, this pest to society -would have to engrave his own die, and cast his own blocks, and find a -drilling-machine, perhaps the most difficult undertaking of all. The -paper, besides, would be a considerable obstacle, and not less so the -ink, for that used in this manufacture differs from ordinary printer's -ink, not merely in colour, but in being soluble in water. - -When postage-stamps were first introduced in England, it was little -thought that they would become a medium of exchange, and far less that -they would excite such a _furore_ among stamp collectors. The same stamp -may do duty in a number of various ways before it serves its normal -purpose. It may have proceeded through the post a dozen times imbedded -within the folds of a letter, before it becomes affixed to one, and gets -its career ended by an ugly knock on the face--for its countenance once -disfigured, it has run its course. Besides their being so handy in -paying a trifling debt or going on a merciful errand, the advertising -columns of any newspaper will shew the reader many of the thousand and -one ways in which he may turn his spare postage-stamps to account. You -may suddenly fall upon a promise of an easy competence for the -insignificant acknowledgment of half-a-crown's worth of this article. -Friends to humanity assure you a prompt remittance of thirteen Queen's -heads will secure you perfect exemption from all the ills that flesh is -heir to. For the same quantity another who does the prophetic strain, -will tell you which horse will win the Derby, "as surely as if you stood -at the winning-post on the very day." "Stable Boy," promises all -subscribers of twelve stamps that if they "do not win on this event, he -will never put his name in print again." Of course all this is quackery, -or worse; still the reader need not be told how in innumerable _bona -fide_ cases the system of postage-stamp remittances is exceedingly handy -for both buyer and vendor, and how trade--retail at any rate--is -fostered by it. As a social arrangement, for the poorer classes -especially, we could not well over-estimate its usefulness. Again we see -a good result of the penny-post scheme. Since 1840, not only has the use -of postage-stamps in this way never been discouraged (as it was always -thought that fewer coin letters would be sent in consequence), but the -Post-Office authorities have recently made provision for taking them -from the public, when not soiled or not presented in single stamps. This -arrangement is already in force at the principal post-offices, and will -ultimately extend to all. In America, as will be familiar to most -readers, postage-stamps have formed the principal currency of small -value almost since the breaking out of the present fratricidal war. More -recently, the United States Government has issued the stamps without -gum, as it was found inconvenient to pass them frequently from hand to -hand, after they had undergone the gelatinizing process. Under an Act, -"Postage Currency, July 17th, 1862," the Federal authorities have issued -stamps printed on larger sized paper, with directions for their use -under the peculiar circumstances. - -The obliteration of postage-labels in their passage through the post, -requires a passing notice. Different countries obliterate their stamps -variously and with different objects. In France they obliterate with a -hand-stamp having acute prominences in it, which, when thrown on the -stamp, not only disfigures, but perforates it with numerous dots placed -closely together. In Holland, the word "_Franco_" is imprinted in large -letters. Some countries, _e. g._ Italy, Austria, and Prussia, mark on -the label itself, the name of the despatching town, together with the -date of despatch. In England, the purpose of the defacement marks is -_primarily_ to prevent the stamp being used again. It also serves to -show--inasmuch as the obliterating stamp of every British Post-Office is -consecutively numbered--where the letter was posted, in the event of the -other dated stamp being imperfectly impressed. For this purpose the -British Postal Guide gives a list of the post-towns and the official -number of each. The mark of St. Martin's-le-Grand is a changeable figure -in a circle, according to the time of day during which the letter has -been posted and struck; for the London district offices, we have the -initials of the district, and the number of the office given in an oval. -The figures in England are surrounded by lines forming a circle; in -Scotland by three lines at the top and three at the bottom of them; in -Ireland the lines surround the figures of the particular office in a -diamond shape. - -It only remains to refer for a moment to the _timbromanie_, or stamp -mania. The scenes in Birchin Lane in 1862, where crowds nightly -congregated, to the exceeding annoyance and wonderment of policeman -X--where ladies and gentlemen of all ages and all ranks, from -Cabinet-ministers to crossing-sweepers, were busy, with album or -portfolio in hand, buying, selling, or exchanging, are now known to have -been the beginnings of what may almost be termed a new trade. -Postage-stamp exchanges are now common enough; one held in Lombard -Street on Saturday afternoons is largely attended. Looking the other day -in the advertisement pages of a monthly magazine, we counted no fewer -than sixty different dealers in postage-stamps there advertising their -wares. Twelve months ago, there was no regular mart in London at which -foreign stamps might be bought; now there are a dozen regular dealers in -the metropolis, who are doing a profitable trade. About a year ago, we -witnessed the establishment of a monthly organ for the trade in the -_Stamp-collector's Magazine_; at this present moment there are no less -than _ten_ such publications in existence in the United Kingdom. England -is not the only country interested in stamp-collecting. As might be -expected, the custom originated in France, and has prevailed there for a -number of years. In the gardens of the Tuileries, and also to some -extent in those of the Luxembourg, crowds still gather, principally on -Sunday afternoons, and may be seen sitting under the trees, sometimes in -a state of great excitement, as they busily sell or exchange any of -their surplus stock for some of which they may have been in search. The -gathering of a complete set of postage-stamps, and a proper arrangement -of them, is at least a harmless and innocent amusement. On this point, -however, we prefer, in conclusion, to let Dr. Gray, of the British -Museum, speak,[179] and our readers to judge for themselves. "The use -and charm of collecting any kind of object is to educate the mind and -the eye to careful observation, accurate comparison, and just reasoning -on the differences and likenesses which they present, and to interest -the collector in the design or art shown in their creation or -manufacture, and the history of the country which produces or uses the -objects collected. The postage-stamps afford good objects for all these -branches of study, as they are sufficiently different to present broad -outlines for their classification; and yet some of the variations are so -slight, that they require minute examination and comparison to prevent -them from being overlooked. The fact of obtaining stamps from so many -countries, suggests to ask what were the circumstances that induced the -adoption, the history of the countries which issue them, and the -understanding why some countries (like France) have considered it -necessary, in so few years, to make so many changes in the form or -design of the stamp used; while other countries, like Holland, have -never made the slightest change. - -"The changes referred to all mark some historical event of -importance--such as the accession of a new king, a change in the form of -government, or the absorption of some smaller state into some larger -one; a change in the currency, or some other revolution. Hence, a -collection of postage-stamps may be considered, like a collection of -coins, an epitome of the history of Europe and America for the last -quarter of a century; and at the same time, as they exhibit much -variation in design and in execution as a collection of works of art on -a small scale, showing the style of art of the countries that issue -them, while the size of the collection, and the number in which they are -arranged and kept, will show the industry, taste, and neatness of the -collector." - - -FOOTNOTES: - -[170] Fournier. - -[171] Vide _Quarterly Review_ for October, 1839. - -[172] Report of Select Committee on Postage, vol. iv. p. 391. - -[173] _Hand Catalogue of Postage-Stamps_, p. 6. - -[174] Dr. J. E. Gray. - -[175] The Mulready envelopes are regarded as great curiosities by -stamp-collectors, and as their value rose to about fifteen shillings, a -spurious imitation found its way into the market, usually to be had at -half a crown. In 1862, stamp-dealers were shocked by the Vandalism of -the Government, who caused, it is said, many thousands of these -envelopes to be destroyed at Somerset House. - -[176] Our colonies issue their own stamps, with different designs. Some -of them are emblematical; the Swan River Territory using the design of a -"Swan," and the Cape of Good Hope choosing that of "Hope" reclining; but -they are gradually adopting the English plan of a simple profile of the -sovereign. The portrait of our Queen appears on two hundred and forty -varieties of stamps. Nearly all those used in the colonies, and even -some for foreign governments, are designed, engraved, printed, and -embossed in London, and many of them are much prettier than the products -of our own Stamp-Office. The principal houses for the manufacture of -colonial stamps, are Messrs. De la Rue & Co. and Perkins, Bacon, & Co. -of Fleet Street. See also Dr. Gray's Handbook, p. 8. - -[177] "An Abstract of Grants for Miscellaneous Services." Sums voted in -supply from 1835 to 1863 inclusive, moved for by Sir H. Willoughby. In -the same return we find 7,000_l._ were paid for "Foudrinier's -paper-machinery"--we presume for the manufacture of Mulready's -envelopes. - -[178] For further information of the staff of officers, and the expenses -of the Stamp-Office, see Appendix (G). - -[179] _Hand Catalogue of Postage-Stamps_, Introduction, p. 5. - - - - -CHAPTER V. - -POST-OFFICE SAVINGS' BANKS. - - -The idea of Savings' Banks for the industrial classes was first started -at the commencement of the present century. They are said to owe their -origin to the Rev. Joseph Smith, of Wendover, who in 1799, circulated -proposals among his poorer parishioners to receive any of their spare -sums during the summer, and return the amounts at the Christmas -following. To the original sum, Mr. Smith proposed to add one-third of -the whole amount, as a reward for the forethought of the depositor. This -rate of interest, ruinous to the projector, proves that the transactions -must have been of small extent, and charity, a large element in the -work. The first savings' bank really answering to the name was -established at Tottenham, Middlesex, in 1804, by some benevolent people -in the place, and called the Charitable Bank. Five per cent. interest -was allowed to depositors, though for many years this rate was a great -drain on the benevolence of the founders. In 1817, these banks had -increased in England and Wales to the number of seventy-four. During -that year Acts of Parliament were passed offering every encouragement to -such institutions, and making arrangements to take all moneys deposited, -and place them in the public funds. From 1804 to 1861, the savings' -banks of the United Kingdom increased to 638. - -A reference to the various deficiencies of the old banks for -savings, and the steps which led to the formation of those now under -consideration, will not be out of place here. We have said that, in the -early part of this century, successive governments offered every -inducement and facility to the savings' bank scheme. Such encouragement -was indispensable to their success. When first started, Government -granted interest to the trustees at the rate of 4-1/2_l._ per cent. This -rate, reduced to 4_l._ as the banks became more established, now stands -at 3_l._ 5_s._ per cent. Of this sum depositors receive 3_l._ per cent.; -the difference paying the expenses of management. The encouragement -which the Legislature has given to the savings' banks of the country -since their commencement, has entailed a loss of about four and a half -millions sterling on the public exchequer. From 1817 to 1841, a loss of -nearly two millions sterling had been incurred by reason of the rate of -interest which was allowed by Government, being greater than that -yielded by the securities in which the deposits had been invested. - -Savings' banks have suffered most severely from frauds in the -management, and the feeling of insecurity which these frauds have -engendered from time to time has gone far to mar their usefulness. -Government is only responsible to the trustees for the amounts actually -placed in its hands. The law, previous to 1844, gave the depositor a -remedy against the trustees in case of wilful neglect or default. In -1844, the Legislature thought right to make a most important change in -the law, by which trustees of savings' banks were released from all -liability, except _where it was voluntarily assumed_. It remains a most -significant fact, that all the great frauds with this class of banks -have occurred since that date. We have, indeed, to thank only the -influential gentlemen, who, as a rule, take upon themselves the -management of savings' banks, that such cases have been so rare as they -have.[180] The known frauds in savings' banks are calculated to have -swallowed up a quarter of a million of hard-earned money. The fraud in -the Cuffe Street bank, in Dublin, amounted to 56,000_l._; the Tralee -bank stopped payment in 1848 with liabilities to depositors to the -extent of 36,768_l._, and only 1,660_l._ of available assets; in the -same year, the Killarney savings' bank stopped with liabilities of -36,000_l._, and assets of only half that amount. About the same time, -the Rochdale bank frauds became known, and losses to the extent of -40,000_l._ were the result. - -There can be no doubt that the state of the law is still most anomalous, -and that the great majority of the people of this country are under the -impression that there is Government security for each deposit in every -savings' bank. Year by year, changes have been proposed in the -Legislature for giving more security to depositors, but the body of -managers have hitherto been successful in their opposition. Whilst -legislation is thus deferred, the risks to the provident poor still -continue. In the report of a Government Commission appointed during one -of these annual discussions "on the savings of the middle and working -classes," several well-known authorities in such matters, such as Mr. J. -Stuart Mill, and Mr. Bellenden Kerr, expressed decided opinions of the -insecurity of savings'-bank deposits. Mr. J. Malcom Ludlow spoke to the -feeling of the working-classes themselves: "I should say the _great_ -reason why the working-classes turn away from savings' banks, is the -feeling of insecurity so largely prevailing amongst them." - -Mr. J. S. Mill, when asked for any suggestion on the subject, said: "I -think it would be very useful to provide some scheme to make the nation -responsible for all amounts deposited. Certainly the general opinion -among the depositors is, that the nation is responsible; they are not -aware that they have only the responsibility of the trustees to rely -upon." - -Some change, or some new system, had long been regarded as absolutely -necessary. In 1861, the number of savings' banks on the old plan was -638; yet out of this number there were no less than fourteen counties in -the United Kingdom without a bank at all. Even in England, when the test -was applied to _towns_, all, for instance, of a size containing upwards -of 10,000 inhabitants, it was found that there were at least twenty-four -without savings'-bank accommodation of any sort. Nor was this all. Even -where savings' banks already existed, 355 were open only once a-week, -and that for a few hours; some twice a-week; but very few--only twenty, -in fact--were open for a few hours every day. When, added to all this -want of accommodation and absence of facility, we remember the -unsatisfactory state of the law concerning them, there can be no wonder -that public attention was called to the subject from time to time. So -early as 1807, Mr. Whitbread introduced a Bill into Parliament to make -the money-order office at the post-office available for collecting sums -from all parts of the country, and transmitting them to a central bank -which should be established in London. At that time, the money-order -department of the Post-Office had not arrived at the state of efficiency -to which it subsequently attained, and the Bill was withdrawn. -Other proposals shared the same fate, till, in 1860, Mr. Sykes of -Huddersfield, engaged in the savings' bank of that town, addressed Mr. -Gladstone on the deficiencies of the existing system. Through his -practical acquaintance with the old plan of working, he was able to -demonstrate that increased facilities for depositing at any time, and -almost at any place, were great desiderata amongst the poorer classes. -The same facilities were necessary for withdrawing deposits. Mr. Sykes -proposed that a bank for savings should be opened at every money-order -office in the kingdom; that each postmaster should be authorized to -receive deposits; and that all the offices should have immediate -connexion with a central bank in London. The general principle of this -scheme was at once seen to be useful and practicable, though, again, the -_mode_ of working was evidently unsatisfactory. Mr. Sykes, for -instance, proposed that all payments and withdrawals should be severally -effected by means of money-orders to be drawn for each separate -undertaking. Any one at all acquainted with the machinery of the -money-order office was aware that this would of necessity be a slow and -complex, as well as expensive plan. Mr. Sykes's idea was, that no -deposit should be less in amount than twenty shillings. This -arrangement, again, would have gone far to negative the merits of the -whole plan, and especially to interfere with its usefulness amongst the -classes which the measure was really intended to benefit. For a few -months this scheme, like those preceding it, exhibited signs of -suspended animation, when it was referred to the practical officers of -the revenue department of the Post-Office, and by them resolved into the -simple and comprehensive measure which the Chancellor of the Exchequer -proposed in 1861, and which was the crowning effort of the legislative -session of that year. - -This Bill, entitled "An Act to grant additional facilities for -depositing small savings at interest, with the security of Government -for the due repayment thereof," became law on the 17th of May, 1861. - -The first savings' banks in connexion with the post-offices of the -country were established on the 16th of September, 1861. A limited -number was first organized, and in places where no accommodation of the -kind had ever been afforded. The extension of the scheme to Ireland and -Scotland was effected on the 3d and 17th of February respectively. -Nearly all the 2,879 money-order offices of the United Kingdom are now -post-office savings' banks. These banks are in regular working order, -2,000, in round numbers, existing in England and Wales, 450 in Ireland, -and 400 in Scotland. Many of our largest towns have several banks. Thus, -at the present time, January, 1864, we find five banks in Edinburgh, -five in Glasgow, twelve in Dublin, ten in Liverpool, sixteen in -Manchester, ten in Birmingham, and seven in Bristol. Only seventy of -the entire number of new banks have failed to obtain depositors--a fact -which sufficiently proves that the advantages offered by the Post-Office -establishment are understood and appreciated throughout the kingdom. Up -to the end of 1863, the total number of depositors in new banks had been -367,000, of which number no fewer than 307,000 then held accounts. At -present (March, 1864), the weekly deposits amount, in the aggregate, to -40,000_l._, while the withdrawals are no more than one-third of that -sum. The total amount intrusted to the post-office banks since their -first opening has been 4,702,000_l._, of which sum no less than -3,263,000_l._ remain to the credit of depositors. The most gratifying -fact in connexion with the new banks is, that they show a much larger -proportion of small depositors than the old savings' banks have been -able to attract, the average amount of a deposit being 3_l._ 1_s._ 9_d._ -in the new, against 4_l._ 6_s._ 5_d._ in the old class of banks. - -Between fifty and sixty old savings' banks, including the Birmingham -Bank, closed their accounts during the last year (1863), great part of -the business of each being transferred to the new banks. A sum amounting -to over 500,000_l._ has already been transferred from these banks to the -Post-Office by means of transfer certificates; whilst additional sums, -the amount of which cannot be correctly ascertained, have been withdrawn -from the old and paid into the post-office banks in cash. - -With a view to facilitate the proceedings of the trustees of banks which -have been or may hereafter be closed, an Act of Parliament was passed in -the last session which will doubtless have the effect of winding up the -affairs of many of the smaller banks under the old plan, and increasing -the work of those on the new. - -The _modus operandi_ of this scheme is as simple as it is satisfactory. -On making the first deposit, under the new arrangements, an account-book -is presented to the depositor, in which is entered his name, address, -and occupation. All the necessary printed regulations are given in this -book. The amount of each deposit is inserted by the postmaster, and an -impression of the dated stamp of the post-office is placed opposite the -entry, thus making each transaction strictly official. At the -close of each day's business, the postmaster must furnish to the -Postmaster-General in London a full account of all the deposits that -have been made in his office. By return of post an acknowledgment will -be received by each depositor in the shape of a separate letter from the -head office, the Postmaster-General thus becoming responsible for the -amount. If such a letter does not arrive within ten days from the date -of the deposit an inquiry is instituted, and the error rectified. An -arrangement like the foregoing shows the boundless resources which the -Government possesses in its Post-Office. The acknowledgment of every -separate transaction in each of the money-order offices of the three -kingdoms, which in any private undertaking would be an herculean labour, -involving an enormous outlay in postage alone, is here accomplished with -marvellous ease, and the whole mass of extra communications make but an -imperceptible ripple on the stream of the nation's letters flowing -nightly from St. Martin's-le-Grand. - -When a depositor wishes to withdraw any of his money, he has only to -apply to the nearest post-office for the necessary printed form, and to -fill it up, stating his name and address, where his money is deposited, -the amount he wishes to withdraw, and the place where he wishes it paid, -and by return of post he will receive a warrant, in which the postmaster -named is authorized to pay the amount applied for. In this respect -post-office savings' banks offer peculiar advantages. A depositor, for -instance, visiting the metropolis, and having--as he may easily do in -London--run short of ready money, may, with a little timely notice to -the authorities in London, draw out, in any of the hundred new banks in -the metropolis, from his amount at home sufficient for his needs. -Another person, leaving one town for another, may, without any expense, -and no more trouble than a simple notice, have his account transferred -to his future home, and continue it there under precisely similar -circumstances as those to which he has been accustomed. Last year this -power was largely used, there being no fewer than 20,872 deposits and -15,842 withdrawals made under these circumstances, _e. g._ at places -where the depositor is temporarily residing.[181] The facilities offered -by the Post-Office in this way are unique; no other banks can offer -them; and such is the admirable system adopted by the Post-Office, that -complicated accounts of this nature are reduced to a matter of the -simplest routine. At the end of each month the accounts of the two -offices concerned in transactions of this kind are reconciled by the -addition or deduction of the amounts in question, which arrangement, so -far from being an irksome one, enables the Department to obtain a very -valuable check upon its gross transactions. Under the old system, a -depositor could only effect a transfer of his account from Manchester to -Liverpool by withdrawing it from the one, under the usual long notice, -and taking it to the other. This course was not only troublesome to the -parties concerned, but the depositor ran the risk of losing his money, -or, perhaps, of spending the whole or part of it. Under the Post-Office -system, however, the transfer may be effected in a day or two, without -the depositor even seeing the money, and without the smallest risk of -loss. Suppose a depositor wishes to transfer his account from a bank -under the old plan to one under the new, or _vice versa_, the matter is -one of equally simple arrangement. He has only to apply to the old -savings' bank for a certificate to enable him to transfer his deposits -in that bank to that belonging to the Post-Office, and when he obtains -such certificate he may present it to any postmaster who transacts -savings'-bank business. The postmaster receives it as if it were so much -money, and issues a depositors' book, treating the case as if the amount -had been handed over to him. A few days longer are required before an -acknowledgment can be sent from London; but this is all the difference -between the case and that of an ordinary savings'-bank deposit[182] - -In the order of advantages which post-office savings' banks offer the -depositor, we would rank next to their unquestionable security their -peculiar convenience for deposit and withdrawal. Twelve months ago, a -person might be the length of an English county distant from a bank for -savings. Under the present arrangement, few persons will be a dozen -miles distant from a money-order office, whilst nine-tenths of the -entire community will find the necessary accommodation at their very -doors. As new centres of population are formed, or as hamlets rise into -flourishing villages, and the want of an office for money-orders becomes -felt, the requirement will continue to be met, with the addition in -each case of a companion savings' bank. Again, the expenses of -management--amounting to a shilling in the old banks for each -transaction, against something like half that amount in the new--will -not allow of the ordinary banks being opened but at a few stated periods -during the week. The post-office savings' bank, attached as it is to the -post-office money-order office, is open to the public full eight hours -of every working day. - -Sums not below one shilling, and amounts not exceeding thirty pounds in -any one year, may be deposited in these banks; depositors will not be -put to any expense for books, postage, &c. and the rate of interest to -be allowed will be 2-1/2 per cent.--a sum which, though not large, is all -which it is found the Government can pay without loss. It is not thought -that this low rate of interest will deter the classes most sought after -from investing in these banks. The poorer classes, as a rule, regard the -question of a safe investment as a more important one than that of -profits, and wisely think far more of their earnings being safe than of -their receiving great returns for them. - -This scheme, last and best of all, must help to foster independent -habits among the working population. Their dealings with the post-office -banks are pure matters of business, and no obligation of any sort is -either given or received. The existing banks, on the other hand, partake -largely of the nature of a charity. An objection frequently urged -against savings' banks with much bitterness is, that many great -employers of labour are on the directorate of such institutions, and -that, consequently, they are able to exercise an oversight over their -characters and savings, not always used for the best of purposes. In the -Committee of Inquiry to which we have already alluded, cases--designated -"rare," we are glad to add--were adduced, from which it appeared that -provident workmen's wages had been reduced by their employers, upon the -ground of their being already well enough off. No such considerations, -however, can affect the new banks: postmasters are forbidden to divulge -the names of any depositor, or any of the amounts which he or she may -have placed in their hands.[183] The advantages of these banks are so -obvious, and the arrangements under which they are worked are of such a -simple nature, that they cannot help but be increasingly useful and -successful. Moreover, they are so accessible, that the working man, -especially, requires nothing but the _will_ to do that which his -everyday experience tells him is so necessary should be done for the -comfort of his family and home. - - -FOOTNOTES: - -[180] The case of a fraud of this kind was mentioned by Lord Monteagle -when the Post-Office Savings'-Bank Bill was before the Lords. In a -Hertfordshire Savings' Bank, a deficiency of 10,000_l._ was discovered, -and the entire amount was subscribed by nine of the trustees, who were -noblemen and gentlemen in the neighbourhood. - -[181] One of the first deposits which was made on the first day of -opening in the banks started on the new system was withdrawn the next -week in another town at some distance. The depositor was a person -travelling with a wild beast menagerie.--_Mr. Gladstone's Speech at -Mold_, January 5, 1864. - -[182] Of course in this case inquiry would have to be made of the old -bank and the National Debt Office. Ordinarily, the receipt of letters on -savings'-bank business received in London, involving inquiry, is -promptly acknowledged, the writers being told that the delay of a few -days may occur before a reply can be sent. At the General Savings'-Bank -Office in London, the transactions of each day are disposed of within -that day; the monthly adjustment of accounts being also prompt. Warrants -for withdrawals are issued in reply to every correct notice received up -to eleven o'clock each morning, and these warrants are despatched by the -same day's post to the depositors who have applied for them. Every -letter received up to eleven o'clock A.M. is answered the same day, or -at the latest the next day, if no inquiry involving delay is necessary. -The arrangements for the examination of savings'-bank books every year -are also very admirable. A few days before the anniversary of the first -deposit, an official envelope is sent down from London to every -depositor, in which he or she are asked to enclose their book so that it -may arrive at the chief office at such a date. It makes its appearance -again in the course of two or three days with the entries all checked, -and the interest stated and allowed. See Appendix (B). Also an -interesting paper by Mr. Frank I. Scudamore, the newly-appointed -Assistant Secretary of the Post Office, read before the _Congres -International de Bienfaisance_, June 11, 1862. - -[183] We have seen complaints made from the public press that in the -Post-Office there is only a pretension to secrecy in this matter, while -the arrangements which make the savings-bank operations so closely -connected with money-order business, conducted by the same clerk at the -same desk, is anything but conducive to desirable privacy. There is much -truth in the latter remark; and if, when the system is perfected and its -work properly gauged, there be no change, the new banks may very -possibly suffer on this account. - - - - -CHAPTER VI. - -BEING MISCELLANEOUS AND SUGGESTIVE. - - -1. Every person or firm engaged in extensive correspondence should -purchase the "British Postal Guide," at least once a-year. It is -published quarterly, and may be had at any post-office for a shilling. - -2. Those engaged in frequent correspondence with our colonies or with -foreign countries should, in addition, subscribe for the "Postal -Official Circular," published weekly for a penny, which gives the latest -information on all points regarding the incoming and outgoing of all -foreign and colonial mails. - -3. Since the division of the metropolis into postal districts, those -requiring frequent communication with different parts of London will -find of great service a penny book which contains a list of all the -streets, &c. in London and its environs, as divided into the ten -districts, and giving the initials in each case. This book may be -purchased at any post-office. It is said that delay is sometimes avoided -by adding the initials of the London districts to letters forwarded from -the provinces. - -4. As a rule, with few exceptions indeed, letters are forwarded -according to their address. It is of paramount importance, therefore, -that the addresses of letters should not only be legible, but the proper -and the complete address. Perhaps the following suggestions on this head -may be found useful, viz.:-- - - (_a_) Never to post a letter without addressing it either a post - town or a county. If the information cannot otherwise be obtained, - the "British Postal Guide" contains a list of all post-offices in - the United Kingdom, and gives post town to which they are - subordinate. - - (_b_) Letters for small towns or villages ought not to addressed to - the nearest large town, merely because it the _nearest_; although, - as a rule, the town in question will be the correct post town, there - are many exceptions, which can only be known by reference to the - "Guide" provided, or by inquiry. - - (_c_) If the town be not well known, or if there be two towns of the - same name in the country, the _county_ ought to be added. (All the - cities and county towns are well known.) Thus, letters addressed to - Newport should always give the county, inasmuch as there are several - towns and villages of that name in England. Again, letters for - Newcastle should either have the county added, or the usual - designation thus: Newcastle-on-Tyne, Newcastle-under-Lyme, or - Newcastle Emlyn. - - (_d_) Letters posted in England for Scotland or Ireland, _vice - versa_ (except in the case of the great towns of the three - countries), should have the name of the country to which they are - sent given as part of the address. N. B. (North Britain) for - Scotland, and S. B. (South Britain) for England, would generally be - thought sufficient for letters circulating between the two - countries. - - (_e_) Foreign letters should invariably have the name of the country - given (in English if possible). It ought also to be given in full. - Letters addressed "London, C. W." and intended for London in Western - Canada, have not unfrequently been sent to the West Central District - in London, and so delayed. Letters addressed to "Hamilton, C. W." - have also been mis-sent to Hamilton in Scotland, the initials having - been overlooked. - - (_f_) The street, &c. should be given on all addresses. Well known - persons and firms get their letters, &c. regularly, although this - rule may not be adhered to; but the omission frequently leads to - delays in the _general_ distribution, and sometimes to serious - mistakes. In large towns where many names of firms approximate in - appearance somewhat to each other, the addresses of letters cannot - be too fully given. With London letters, this rule should be - strictly adhered to. - - (_g_) The number of the house, and the correct one, should be - carefully added.[184] When information of this sort is kept back, - hesitation and delay frequently occur in delivery; though, perhaps, - few letters eventually fail to reach their destination on this - account. - -5. Every letter should be examined with care before it is dropped in a -letter-box, in order to see that it has been securely sealed. Thousands -of letters are posted yearly without any precaution of the kind having -been taken with them, the Post-Office authorities having to secure them -as a consequence.[185] Not only so, but twelve thousand letters are -yearly posted without any address at all. - -6. Good adhesive envelopes, not too highly glazed, of the ordinary size, -are sufficient security for letters,[186] if the adhesive matter has -been but _slightly_ wetted. If, for additional security, it be thought -advisable also to seal a letter with wax, it should be placed outside -the envelope. Very frequently, the wax is found to have been placed on -the adhesive matter inside the envelope, thus rendering both -ineffective. - -7. Letters intended for warm climates should not be sealed with wax at -all, inasmuch as there is great danger of the wax melting and injuring -the letter, as well as the other contents of the mail-bag. - -8. Care should be used in securing newspapers and large packets.[187] -Newspapers, when not sent at first from the newspaper offices, should be -addressed on the paper itself and tied with string, as great risk is run -in the matter of covers becoming detached from the newspapers -themselves. Book packets, in addition to being enclosed in covers, -sealed with wax, gum, or other adhesive matter (but open at the ends or -sides), may be tied round the ends with string, as additional security. -When the latter precaution is taken, there is less chance of letters -getting within the folds of the packet, which may happen when it is not -thoroughly secured. - -9. Valuable packets or books, if they cannot be well secured, should -scarcely be sent through the post. All such packets are liable to be -roughly handled, and in the mail-bags exposed to pressure and friction. -When safely deposited in the mail-bags, valuable packets are still in -danger, inasmuch as the bags in many cases are constantly being -transferred from one kind of conveyance to another, and frequently -despatched from railway trains by apparatus machinery whilst the train -is in motion. - -10. Books with valuable bindings, if it is necessary that they should be -sent through the post, might be well secured in strong boards; valuable -papers or prints should be enclosed in strong paper, linen, parchment, -or other material which will not readily tear or break. Fragile articles -of value (which should by all means be registered, as special care will -then be taken of them in all respects) might best be enclosed in wooden -boxes, and then wrapped in paper. - -11. It is hardly necessary now to point out that the postage-stamp -should be placed on the upper right-hand corner of the envelope, and the -address written as much towards the left hand as possible; the address -will then be removed from the stamp and the postmark of the office, -which will be impressed upon the letter before it is despatched. Delay -is caused to the Post-Office operations when the stamp is otherwise -placed; and in cases which occasionally occur, where the stamp is placed -at the _back_ of the letter, it frequently happens that it is sent away -charged with the unpaid postage. - -12. The penny receipt-stamp will not, under any circumstances, serve the -purpose of the penny postage-stamp, though many people would seem to -think differently; all letters bearing a receipt-stamp are, of course, -charged as if unpaid. The two kinds of stamp might easily be -assimilated, and there are rumours that this may soon be done; but they -have their distinct duties at present, and the one cannot take the place -of the other. - -13. The Post-Office stamped envelopes (which may be obtained singly, in -part packets, or entire packets, of two or three sizes, and embossed -with either penny or twopenny stamps) are in every way the most secure; -and if the paper were of better quality, would be quite as economical, -as if the ordinary envelope and the ordinary stamp were used. All risk -of the stamps becoming detached is, of course, avoided by the use of -stamped envelopes. - -14. In place of affixing penny postage-stamps according to the weight of -a letter, however heavy it may be, application might be made for -twopenny, fourpenny, sixpenny, or shilling labels, as the case may be. - -15. In affixing stamps, care should be had lest by excess of moisture -all the gum be washed off.[188] The practice of dipping the stamp in -water is objectionable, except some absorbent be used immediately to -remove any unnecessary moisture. It will be found to be a good plan to -wet slightly the gummed side of the stamp, and also the right-hand -corner of the envelope, and then to keep the finger gently on the stamp -until it is firmly fixed. Highly glazed envelopes should be avoided. - -16. Letters about which any doubt exists should be carefully weighed -before posting. If the Post-Office weight be exceeded to the smallest -extent, even to the turning of the scale, a letter becomes liable to, -and is charged higher postage--viz. the difference in double or unpaid -postage. So trained has the post-office clerk become of late years by a -recent system of surcharges, that few letters can now pass with an -insufficient number of stamps affixed. To provide against errors in -scales, &c. it would be well in all cases to allow a little margin, or -ask that the letter be weighed in the post-office scales. - -In the case of newspapers and book-packets, the same remarks, as well as -the same arrangements, apply. It should be particularly remembered that -a newspaper when posted, say wet from the printing-office, will often -weigh more than it does on delivery; hence surcharges for which the -receiver sometimes cannot account. - -17. In posting letters, care should be taken to see that they fall into -the box, and do not stick in the passage. The pillar-boxes of our towns, -whatever may be said to the contrary, are completely safe as a -rule, though the same care should be exercised in depositing the -letters.[189] - -18. The earlier a letter is posted the better in all cases: towards the -time for the closing of the letter-box, great haste is indispensably -necessary in the manipulations which a town's correspondence must -undergo, whilst earlier on it gets carefully disposed of in proper box -and bag. When letters or newspapers are posted in great numbers, as in -the case of circulars, they should be posted as early as practicable, -and should be tied up in bundles with the addresses all in one -direction, or they may be delayed in the press of work.[190] - -19. Every letter of consequence put into the post should contain the -name of the sender and also his address, in order that, if it cannot be -delivered as addressed, it may be promptly returned to the writer. - -20. All business letters, at any rate, might have the sender's name and -address embossed on the back of the envelope. On failure to deliver such -letters, they would then be returned to the writers without being -opened. Care should be taken, however, not to use envelopes with another -person's name embossed in this way, as the letter will be forwarded back -to the address thus given, though it should not happen to be the -sender's own. - -21. Coin is prohibited to be sent in ordinary letters passing between -one part of the United Kingdom and another.[191] If a letter be posted -containing coin, it will be registered and charged a double registration -fee. Coins or any other articles of value, if properly secured, will be -certain of careful treatment under the registration system.[192] - -22. Letters meant to be registered must never be dropped into the -letter-box as in the case of ordinary letters, but should be given to -the clerk in charge of the post-office counter or window to be dealt -with, who will in each case give his receipt for it. The receipt is the -sender's evidence that it has been posted in proper course. - -23. Letters containing sharp instruments, liquids, &c. or any other -articles which would be likely of themselves, or if they should escape, -to do injury to the other contents of the mail-bag, should never be -posted. Postmasters have instructions not to forward such letters -according to their address, but, when observed, to send them to the -Dead-Letter Office, from which place they will be returned to the -writers. Valuable letters of this forbidden kind, therefore, run great -risks of delay, while the articles are liable to be destroyed in their -passage through the post.[193] - -24. Though the transmission of coin in letters is now absolutely -forbidden, except under the registration scheme, arrangements are made -for rendering it easy to send small sums by post in postage-stamps. When -presented at any of the numerous money-order offices in the United -Kingdom, they may be exchanged for money, at a charge of 2-1/2 per cent. -Any person wishful to send through the post a sum of money under five or -six shillings will find it cheaper to buy stamps and enclose them, in -place of a post-office order. One penny will be charged for buying -forty stamps, a halfpenny for twenty stamps. 60,000_l._ worth of -postage-stamps were bought from the public during the year 1862. - -25. In sending postage-stamps in letters, care should be taken to use -_thick_ envelopes, so that enclosures of this kind may neither be seen -nor felt. It is easy to feel a quantity of postage-stamps in a letter -sent in a thin and crisp envelope, and some official becoming aware of -this may not be able to resist the temptation to appropriate them. - -26. No enclosures whatever should be sent in newspapers impressed with -the regular newspaper-stamp. Even an old address of such a newspaper -should be carefully cut out. It is not enough that it be obliterated -with the pen, as the rules forbid writing of any kind in addition to the -mere address.[194] - -With newspapers stamped by the ordinary postage-label the arrangements -are quite different. Any printed paper or manuscript may be folded up -with the newspaper on which an ordinary penny-stamp is placed, provided -the total amount of the package does not exceed four ounces. The old -address (supposing the newspaper has circulated through the post before) -may be left on or not at the discretion of the sender, as this does not -interfere with the regulation that nothing in the packet shall be of the -nature of a letter. On the other hand, any sentence or message written -in ink or pencil on any part of the paper makes the packet liable to the -unpaid letter-rate of postage. - -27. When any letter, book-packet, or newspaper is lost, miscarried, or -delayed, inquiry should be made as soon as evidence has been obtained -that the article in question was really posted. The postmaster of the -town should be informed by the complainant of every particular relating -to the missing letter, &c. the day and hour of its posting, the office -at which and the person by whom this was done. In cases of delay or -mis-sending, the covers ought to be produced in order that the office -stamps on them may indicate the exact place where the delay has been -occasioned. Correspondence on the subject of the complaints will -subsequently be carried on between the applicant and the Secretary's -department in England, Scotland, or Ireland, as the case may be. - -28. When any one has reason to believe that he has paid extra postage on -a letter or packet improperly, or has been charged more than the case -would warrant, he should apply to his postmaster, who will bring the -case before the notice of the Secretary, when, if any mistake has been -made, the money will be refunded by order. Postmasters cannot return -postage paid improperly until instructed to do so from the chief -offices. - -29. When an unpaid letter is presented to a person who has not the means -at disposal of paying the demand upon it (some foreign or colonial -letter may be taxed heavily), it will be kept at the post-office a -month, _if a request be made to that effect_, in order that efforts may -be made to obtain the necessary money to release it. - -30. Postmasters and their clerks are forbidden to be parties to the -deceptions which used to be practised, and which are now sometimes -attempted, as to the place of posting of a letter. If any communication -should be forwarded, under cover, to the postmaster of a provincial -town, with a request that it may be posted at his office, it will be -sent to the Returned-Letter Branch in London, and from thence to the -writer. - -31. Advertisements are occasionally seen, and applications frequently -made, for defaced postage-stamps. It is stated, in some cases, that a -given number will gain certain individuals admission to different -charitable institutions. Whatever may be the purpose for which the old -stamps are required, the Post-Office authorities have found, by inquiry, -that the ostensible reason here given has uniformly been false. It is -sometimes feared that attempts are made to clean and re-issue them, -though this can be attended with but partial success. It is much more -probable that they are sought to indulge some whim, such as papering -boxes or even rooms. - -32. With reference to money-orders, the public should be careful-- - - (_a_) Always to give particulars of any order required _in writing_. - When a number of orders are required, to write out a full list of - them. Forms for single orders may be had gratuitously at all - money-order offices. These forms, or other written papers, are - invariably kept on files for a given time, so that reference may - easily be made to them in the event of any mistake. Mistakes may, of - course, be made either by the applicant or the clerk on duty. If, on - production of the paper, the error is seen to have been the - sender's, he must pay (generally a second commission) for the - necessary alterations: if, however, it be proved to be caused by the - clerk issuing the order, the Post-Office calls upon the latter to - bear the expense himself. - - (_b_) Never to present an order for payment on the day on which it - is issued, nor, on the other hand, to allow two months to elapse - before calling for payment.[195] - - (_c_) When sending an order, either to send it to its destination - singly, or in a letter signed only by initials. Money-orders passing - between friends need not be accompanied with information such as is - sometimes required in business transactions. - - -FOOTNOTES: - -[184] The irregularities and eccentricities in the numbering of streets -and houses is a great difficulty. On one occasion a London inspector of -letter-carriers, going round the districts, noticed a brass-plate with -the number 95 between two houses numbered respectively 15 and 16. He -made inquiry, when the old lady who tenanted the house said that the -number had belonged to a former residence, and, thinking it a pity that -it should be thrown away, she had transferred it to her new home, -supposing that it would do as well as any other number! - -[185] About two hundred letters pass through the General Post-Office -every day unsealed. - -[186] It is calculated that 91 per cent. of the letters circulating -through the United Kingdom are enclosed in envelopes; the number of -those sent abroad in envelopes is somewhat smaller, or about 65 per -cent. - -[187] The number of newspapers delivered in 1862 amounted to nearly -73,000,000, a considerable increase on the previous year. The number of -book-packets exceeded 14,000,000, being an increase on the previous year -of about 1,700,000, or nearly 14 per cent. Upwards of 400,000 -newspapers, or about one in two hundred, were undelivered in the same -year, about half of which failures arose from improper or incorrect -addresses, while the remainder were owing to the newspapers becoming -detached from their covers in transit through the post. - -[188] It is calculated that every year nearly fifty thousand -postage-stamps rub off letters and newspapers in their passage through -the Post-Office. At one time the quality of the adhesive matter was -called in question, loud complaint, even ridicule, settling on the -theme. Now, however, that the gum is better the number of stamps which -"will not stick" is scarcely perceptibly smaller. - -[189] Only one instance is on record of any violent and wilful attempt -to damage a pillar letter-box. This is the more wonderful as the -temptation to lift the lid and contribute articles not contemplated by -our postage-system must naturally be strong in the eyes of our City -Arabs. A singular accident befell one of these letter-boxes (1862) in -Montrose. A quantity of gas from the street pipes seems to have got into -the box, and a night-watchman to have ignited it by striking a match on -the top in order to light his pipe. The top was blown off and the -pillar-box hopelessly damaged, although the watchman and the letters -escaped without injury. - -[190] The following announcement from the postmaster of Manchester, as -given in a bill dated 1721, contrasts strangely with the latitude -allowed now. "The post goes out to London," says he, "on Monday, -Wednesday, and Saturday, at nine o'clock in the morning. It will be best -to bring the letters the _night before the going out of the post_, -because the accounts and baggs are usually made up _over-night_." In -these days, when we may post up to within five minutes of the despatch -of a mail, and letters for America may be posted within ten minutes of -the sailing of the packet, we cannot be too thankful for our privileges. - -[191] This arrangement does not apply to foreign letters coming to or -going out of this country. - -[192] The number of registered letters last year was over two millions, -or one registered letter to about three hundred ordinary letters. - -[193] Most of our readers will have heard or read stories of curious -articles passing through the post, and without doubt the records of the -Returned-Letter Branch of the London Office will present strange -appearances in this respect. Sir Francis B. Head, who was permitted to -peruse an extraordinary ledger in the General Post-Office where several -notable letters and packets were registered, has strung together a -catalogue of them, which reminds us of the articles passing through the -post before the revocation of the franking privilege. He tells us he -found amongst the number--two canaries; a pork-pie from Devonport to -London; a pair of piebald mice, which were kept at the office a month, -and duly fed till they were called for by the owner; two rabbits; -plum-pudding; leeches in bladders, "several of which having burst, many -of the poor creatures were found crawling over the correspondence of the -country." Further, there was a bottle of cream from Devonshire; a pottle -of strawberries; a sample bottle of cider; half a pound of soft soap -wrapped in thin paper; a roast duck; a pistol, _loaded almost to the -mouth with slugs and ball_; a live snake; a paper of fish-hooks; fish -innumerable; and last of all, and most extraordinary of all, a human -heart and stomach.--_Head's Essays._ - -[194] The annual return just published (February, 1864) shows to some -extent how far the public prefers the stamped newspaper, which can be -sent through the Post-Office, in fact, until it is fifteen days old. The -number of stamps issued to the principal London newspapers from June, -1862, to June, 1863, are as follows:-- - -_Times_, 2,782,206; _Express_, 261,038; _Morning Post_, 260,000; _Daily -News_, 124,888; _Morning Herald_, 103,256; _Globe_, 140,000; _Shipping -Gazette_, 261,000; _Evening Standard_, 80,020; _Evening Star_, 75,000; -_Evening Mail_ (thrice a week), took 345,000; _St. James's Chronicle_, -89,000; _Record_, 423,500; _The Guardian_ (weekly), 219,300; _The -Illustrated London News_, 1,136,062; _Punch_, 129,500. Eleven English -country newspapers took 100,000 each, the principal being the _Sussex -Express_, 336,000, and the _Stamford Mercury_, 334,276. Thirty country -newspapers bought more than 50,000 stamps. - -[195] Many orders are never claimed at all. In Ireland twice as many -orders are allowed to "lapse" as in England or Scotland, though there -are many more orders granted in the two latter countries than in -Ireland. Perhaps the fact may be accounted for by the wretched addresses -of most Irish letters, which make it impossible to deliver many of them -and equally impossible to return them to the writers. Of ordinary -money-orders, one in 837 are unclaimed within two months; whilst as a -curious fact, instancing the pertinacity of a careless habit, it may be -stated that when these very orders have been renewed on payment of a -second commission, one in every thirty-nine are again overlooked, and -allowed to lapse, many of them, in fact, becoming entirely cancelled, -and the money forfeited. - - - - -CHAPTER VII. - -CONCERNING SOME OF THE POPULAR MISCONCEPTIONS AND MISREPRESENTATIONS TO -WHICH THE POST-OFFICE IS LIABLE. - - -The Post-Office, from its peculiar organization and the nature of its -business, is liable to many misconceptions from which the other great -Government Departments are more or less free. In one of the reports of -the Postmaster-General, many of these misunderstandings are recounted -and answered with an evident endeavour to bring about a better feeling -between the people and the people's Post-Office. We cannot do better -than refer here to a few of the instances given, supplementing them by -more which have been suggested to us from that consideration of the -entire economy of the Post-Office, into which we have been led in -dealing with our subject. - -1. Unquestionably, the Post-Office is blamed for many errors and -shortcomings which ought never to have been charged against it. On this -important point, the evidence given by each Post-Office Report is -remarkably clear, although, by the way, a writer in a recent number of a -highly respectable quarterly review regards the instances given by -successive Postmaster-Generals as so many "testimonials to character," -reminding him--so he scurvily added--of nothing so much as "the -testimonials given by dyspeptic noblemen in favour of the Revalenta -Arabica or Holloway's Pills and Ointment."[196] Of course, much trouble -and many losses must, from time to time and at all times, have been -caused by the carelessness or dishonesty of some of many thousand -officials of the Post-Office, though the cases are far from few, and the -authorities, in which it has been shown, to the satisfaction even of the -complainant, that the fault at first attributed to the Post-Office -rested really in other quarters. Some examples are afforded. The -publisher of one of the London papers complained of the repeated loss in -the Post-Office of copies of his journal, addressed to persons abroad. -An investigation showed that the abstraction was made by the publisher's -clerk, his object apparently being to appropriate the stamps required to -defray the foreign postage. In another case, a general complaint having -arisen as to the loss of newspapers sent to the chief office in St. -Martin's-le-Grand, the investigation led to the discovery of a regular -mart held near the office, which was supplied with newspapers by the -private messengers employed to convey them to the post. Again: A man was -detected once in robbing a newsvendor's cart by volunteering, on its -arrival at the entrance of the General Post-Office, to assist the driver -in posting the newspapers. Instead of doing so, however, he walked -through the hall with those intrusted to him, and, upon his being -stopped, three quires of a weekly paper were found in his possession. - -To these cases of newspapers let us add a few concerning letters, the -substance of which are adduced in subsequent reports. Thus, a letter -containing a cheque for 12_l._ and sent to a London firm, was said not -to have reached its destination; the Post-Office was blamed for not -delivering it; inspectors were set to work, and after a diligent search, -it was traced from the premises of the person to whom it was addressed -to those of a papier-mache manufacturer, where it doubtless had been -pulped into tea-trays or writing-cases. Again: A bank agent sends his -son to the post with a letter, which on his journey he opens. Spying a -figured cheque, he abstracts it, and posts the letter without it, and it -is afterwards found ornamenting his copy-book! Another bank agent sends -his youthful son to the post-office to receive for him his letters, one -of which, containing some very valuable inclosures, he leaves in his -pocket, and immediately afterwards leaves town for school, carrying with -him the precious missive--worth some 1,500_l._--where it consorts with -his marbles, Everton toffy, and cold Bologna sausage, till the vacation, -the lad all the time being in blissful unconsciousness of the stir -paterfamilias was making about it. Another person complained that -several of his letters were not forthcoming. This case was a mystery. At -length it struck one of the shrewd officials--who grow shrewd through -dint of unravelling the most curious cases--that the letter-box at the -person's door ought to be carefully examined. This was done, and the box -was found exceedingly defective. Fifteen letters were jammed between the -box and the door, where some of them had quietly reposed for the space -of nine years.[197] The secretary of a charitable institution in London -gave directions for posting a large number of "election papers," and -supposed that his directions had been duly acted upon. Shortly, however, -he received complaints of the non-receipt of many of the papers, and in -other cases of delay. He at once lodged a strong complaint at the -Post-Office; but, on examination, circumstances soon came to light which -cast suspicion on the person employed to post the notices, although this -man had been many years in the service of the society, and was supposed -to be of strict integrity. Ultimately, the man confessed that he -embezzled the postage (3_l._ 15_s._ 6_d._), and had endeavoured to -deliver the election papers himself. Once more: A short time since a -registered letter was said to have been posted at Newcastle, addressed -to a banker in Edinburgh, who, not receiving it according to his -expectation, sent a telegraphic message to learn why it had not been -forwarded. The banker supposed that the letter had been lost or -purloined in the Post-Office; but it was at last found to have been duly -delivered to the bank porter in order to post it, but he had locked it -up in his desk and forgotten it. - -2. The knowledge of the following misconception may also help to save -the public and the Post-Office a great amount of trouble. "It is often -assumed," says the Postmaster-General, "that a mail-conveyance passing -by, or through a place, ought, as a matter of course, to deposit," there -and then, "the letters directed thereto; the practice being, on the -contrary, that until the mail arrives at the head post-office of the -district, the letters in question are not separated from the other -letters of the district. A slight consideration of the nature and -objects of the postal service will show that such separation cannot be -effected in any other way, unless, indeed, the mail-conveyance, even -supposing it to be but a _mail-cart_, were converted into a travelling -post-office, and furnished with clerks of unlimited local knowledge -(which is plainly impossible), or unless every town and village in the -kingdom, having any correspondence with the place in question, were to -make up a bag for that place; in which case its mail would contain -nearly as many bags as letters." - -3. "It happens from time to time that, owing to the stream of postal -communications having been diverted from the old mail-road to a line of -railway, or from other causes of like nature, it becomes desirable to -reduce the post-office of a town from the condition of a _principal_ -office to that of a _sub_-office. This step not unfrequently gives rise -to complaints, the inhabitants being under the impression that they will -not in future be so well served. This is a misconception. The change is -not made when it will subject the correspondence to delay; nor does it -cause any withdrawal of accommodation in respect to money-orders. It is, -in fact, only a departmental arrangement, which consists in carrying on -the sorting of the letters for the new sub-office at some intermediate -office, instead of sending the letters in direct bags." - -4. "Another misconception, which occasionally causes trouble and -disappointment, consists in assuming that a discretionary power can be -intrusted to subordinate officers to remit penalties or overcharges -under special circumstances. Cases will occur in which strict observance -of a general rule may inflict more or less injustice upon individuals, -and where a dispensing power immediately at hand might furnish a remedy. -In an establishment as large and as widely spread as the Post-Office, -however, there will always be many subordinate officers, some of them -carrying on their duties beyond the easy reach of any supervising -authority, who are not fit depositaries of such a power, affecting, as -it would to a great degree, the public revenue. It therefore -becomes necessary to lay down definite and precise rules, from -which no departure can be allowed, except under sanction of the -Postmaster-General; and in the few instances in which these rules press -hardly, appeal must be made to the General Post-Office. It must be -added, that in many instances even such appeal is necessarily fruitless, -the Postmaster-General being bound to a particular course by positive -law." - -5. "In regard to the expense of railway conveyance, the public naturally -supposes, that as such conveyance is cheapest for ordinary purposes, and -as the charges made for the carriage of mails are subject to -arbitration, that it must be cheapest for postal purposes also; and, -indeed, so cheap, as to warrant the free use of the railways, either as -substitutes for other conveyance, or for the multiplication of mails. -The fact, however, is very different. Except in certain instances, where -companies have entered into arrangements, securing to the Post-Office -the use of their trains on moderate, though still highly remunerative -terms, railway conveyance, with all its acknowledged advantages, has -proved much more expensive than that which it has superseded." We have -already spoken at length of railways in relation to the Post-Office, and -will not here add any further remark. - -6. The English Postmaster-General is frequently supposed to have some -control over colonial post-offices, and even those of foreign countries. -Except at Gibraltar and Malta, however, he is quite powerless out of the -United Kingdom. - -7. Frequent applications are made, it seems, for extra foreign and -colonial mails, yet those existing are only kept up at a ruinous loss. -Of the eight great lines of packet communication, only one pays its -expenses and yields a profit. If the letters sent abroad were charged -with the whole cost of the packets, the foreign agencies, and other -incidental expenses, not only would all the sea-postage be swallowed up, -but the mails would entail a loss of nearly four hundred thousand pounds -a year. "We want," said a leading weekly commercial paper lately, -"increased facilities for communication with our West Indian Colonies;" -yet every letter now forwarded to those colonial possessions of ours -costs one shilling over and above the postage charged! On each letter -conveyed between this country and the Cape there is a dead loss of -sixpence; to the West Coast of Africa, one shilling and sixpence. -Everybody has heard of the New Galway line of packets for America, now -suspended for the second time: every letter carried by these packets -under their first contract was charged _one_, and cost the country _six_ -shillings; under the second attempt, each letter is said to have cost -even more than six shillings! With the change of system and change of -management, described briefly in speaking of the packet service, there -can be no question that this state of things will not be allowed to -continue. The principle of requiring the colonies themselves to pay a -moiety of the cost of their service is a step in the right direction, -and is, certainly, only just:[198] the colonies will not be taxed for -the mother-country, as in one memorable instance in history, nor, as at -present, will the mother-country be taxed unfairly for the colonies: -there will then be equal interest in keeping down the expenditure, and -in establishing rates of postage high enough to be remunerative. - -8. The English Post-Office will compare favourably with that of any -nation in the world. In no country are post-office privileges procured -cheaper than with us. Like any other institution capable of endless -growth, and which must grow and expand with the progressive influences -of the times, it clearly is not perfect in every arrangement; but in -answer to complaints of the hard, unyielding, and stringent rules which -are said to bind the English Post-Office, it may not be out of place to -institute a few comparisons, asking that some reference should be made -to contemporary history. In England, coin was suffered for many years to -pass in ordinary letters, to the temptation and seduction of many of the -officers, and the practice grew from a thoughtless economy, in spite of -all the appeals that were made to the contrary. At present coin is not -allowed to pass through the post-office, except in registered letters: -in France it has long been, and is now, a _penal_ offence to transmit -coin in letters.[199] At the time Sir Rowland Hill was urging his -penny-postage scheme on the attention of the British Legislature, -another European State (Piedmont, 1837) had the most stringent and -severe regulations maintained in its Post-Office. The law punished any -one posting a book or a newspaper opposed to the principles of the -monarchy with from two to five years' hard labour; any one who might -receive of such newspapers or books through the post without having -delivered it into the hands of the authorities with two years' -imprisonment; a reward of one hundred crowns was offered to any one -giving information. These arbitrary and iniquitous laws are equalled and -even surpassed, in European codes of still later date--witness Russia -and, until quite recently, Austria. - -9. The opinion is frequently expressed in conversation, and we have -often met with such expressions of opinion in our daily and weekly -press, to the effect that the Post-Office ought to give more -accommodation to the public in many ways, and so disburse some, if not -all, of its enormous profits. These profits are said to be absurdly -large; that fifty per cent. is ten times the interest of money lent on -decent security, and five times as much as would satisfy sanguine -private speculators. This subject of Post-Office profits is made, _de -facto_, the principal argument against what is called the Post-Office -monopoly. - -We have already, in other parts of this book, offered an opinion on -steps which might be taken in the way of affording extra facilities to -the public. A cheaper sea service and a halfpenny post for our towns are -two of the most important and most practicable measures. Granted that -our packet service ought to be kept up as at present, we have an -invincible argument for universal free deliveries at home. When -asked[200] if he thought it necessary that our Colonies should have -greater postal facilities than they could pay for, Mr. Hamilton, -Assistant Secretary of the Treasury, answered that "a colony might -reasonably complain if it was deprived of advantages of postal -communication, simply because that postal communication might not be -remunerative." Again, on the question of Post-Office revenue,[201] "I -think the first charge upon that revenue is to supply reasonably all -portions of Her Majesty's dominions with postal communication," which -consideration, it seems to us, will apply equally at home and abroad. -Still more important seems the plan of a halfpenny post for local -letters, that is, for letters posted and delivered in the same town. -Before the days of penny postage, we had penny posts in all the -principal towns of the country. A halfpenny post, if only applied to our -largest towns, where it would be certain to be remunerative,[202] would -have the effect of materially lessening the weight of the argument that -our present rate of charges is anomalous and unfair. But this would be -by no means the most important result. Such posts would necessitate more -frequent deliveries in provincial towns--the postmen to be paid -accordingly as fully, and not as now, only partially, employed. On the -other hand, it is quite clear that the Post-Office net revenue is a fair -and honourable item on the credit side of the Government accounts, with -which the public, except through their representatives in Parliament, -have nothing whatever to do. The penny postage scheme was carried -through Parliament in the confident expectation resolutely urged by the -intrepid founder of that scheme, that all the benefits promised under it -would result to the country, without any great relinquishment of -Post-Office revenue, and that only for a term of years. Gradually, year -by year, with enormous gain to the public convenience in innumerable -ways, the revenue derivable from this branch of the service has risen -beyond the highest standard of the past. Any relinquishment of the -profits--which, by the way, staves off other taxes--depends on -Parliament, and not on the Post-Office.[203] - -10. Perhaps of all the prevalent misconceptions to which the public have -been, and still are, liable, none is so unfounded as that the servants -of the Post-Office are, as a body, ill-used and ill-paid. Without -question, individual cases of hardship and inequality exist; but that -there is anything inherently wrong in the system, or that that system is -administered with harshness or partiality, or that there is in this -Department more than the usual modicum of cases in which the legislation -for the many presses heavily on the few, no one who will make himself -acquainted with the subject in all its bearings can believe for a -moment. Statements to a contrary effect have often appeared in the -public newspapers; instead, however, of representing the feelings of the -officers, they have much more frequently goaded them into discontent, no -doubt, at times, against their better feeling and judgment. Two or three -years ago, the Postmaster-General, in referring to these statements, -dwelt upon the weight of responsibility resting with that part of the -public press who, unthinkingly, and on an _ex parte_ view of their case, -indulged the martial sentiments of the men with encouragement to the -utter abandonment of discipline and control. We incline to the belief -that the time will come when, in the provinces for instance, more -liberal allowances will be made to the lower grades of Post-Office -officials; when the graphic description already given by the postman -poet would, if uttered, be regarded as a libel on his class of officers. -On the other hand, with regard to the same class of men in the -metropolitan office, the more the question is calmly considered, the -less reason is there for sympathy with the popular view. In 1860, the -_Times_ gave a dismal account of the sufferings of the London -letter-carriers, whose cause it espoused more warmly than wisely. -"Hard-worked and ill-paid," said the leading journal, "these men are all -discontented and sullen; they are indifferent to the proper performance -of their duties, and hold the threat of dismissal in utter disdain, -feeling sure, as they say, that even stone-breaking on the road-side -would not be harder labour and scarcely less remunerative." A short time -after, the other side of the picture relating to these would-be -stone-breakers was given, not by an anonymous writer in the _Times_, -but by a Cabinet Minister. The report of the late Lord Elgin stated that -"there need not be the least difficulty in procuring, at the present -wages, honest, intelligent, and industrious young men, perfectly -qualified for the office of letter-carrier: and, I may add, that in -cases of dismissal--happily a rare occurrence, considering the number of -men employed--the most strenuous efforts are made to obtain readmission -to the service." Regarding the question in a practical common-sense -light, there could be no manner of doubt as to which statement should -carry most weight. Other organs of the press, however, either thought -differently, or dispensed with the preliminary investigation which the -Post-Office courts rather than discourages, and which inquiry it would -only have been fair to make. Only last year an important commercial -paper commented sympathisingly on "the loud and deep complainings of the -London letter-carrier, of the grinding oppression to which they are -subjected, and their ineffectual struggles to obtain redress;" and this -opinion was echoed round by many smaller lights. - -What, however, are the facts? The rate of wages of the lowest class of -letter-carriers in London ranges from 18_s._ to 25_s._ a week. Each man -(who must necessarily begin _under 21 years of age_) commences at the -former sum, and steadily advances at the rate of a shilling more each -year, till he attains the maximum of 25_s._ This is for the lowest -class, be it remembered: but besides the chances of rising into a higher -class of carrier, he has the prospect, realized by many in the course of -two or three years, of being promoted to the higher grade of sorter. If, -as some have been, he be appointed to the corps of travelling sorters, -he will nearly double his income at a bound. But not to dwell on chances -of promotion, the letter-carrier, in addition to his wages, is allowed -to receive Christmas-boxes; and many thus receive, as the public must -know well, most substantial additions to their income. He is supplied -with two suits of clothes, one for summer, and the other for winter -wear. If ill, he has medical attendance and medicine gratis. When -unfitted for work, he may retire upon a pension for which he has not now -to pay a farthing; and during service, if he insure his life for the -benefit of his family, the Post-Office will assist him to pay his -premiums, by allowing him 20 per cent. on all his payments. Every year -he is allowed a fortnight's holiday, without any deduction from his pay; -many spare hours each day he may devote to other pursuits, for if, when -at work at the office, his hours of duty exceed eight hours daily, he is -at full liberty to ask for investigation and redress. In short, a London -letter-carrier is in as good a position, relatively, as many skilled -artisans, without, as regards his pay, being subject to any of the -contingencies of weather, trade, and misfortune, which make the wages of -other workmen occasionally so precarious, and without having had to go -through any expensive apprenticeship or preparation for his calling, as -in the case of most of the numerous handicrafts of life.[204] - -Finally, it cannot truly be said that the Post-Office institution is not -moving with the age, but is as it used to be, intrenched in the -traditions of the past. Different from other departments, with their -undeviatingly narrow routine, the Post-Office is managed with that -enlightened policy which openly invites suggestion and criticism; nay, -it goes further, and offers rewards to persons, either in its employ or -otherwise, who may devise any plan for accelerating its business. -Post-Office work is of such a nature that the Post-Office establishment -admits of constant improvement as well as constant expansion. The -authorities publicly intimate that they will be glad to receive clear -and correct information respecting any faulty arrangements, promising -that such information shall have the best attention of the practical -officers of the department. At the same time, they take the opportunity -to urge upon John Bull the practice of patience, reminding him of what -he is often inclined to forget, that changes in machinery so extensive -and delicate must be made carefully, and only after the most mature -thought and fullest investigation. "The Post-Office," says Mr. Mathew D. -Hill, the respected Recorder of Birmingham,[205] "no longer assumes to -be perfect, and its conductors have renounced their claims to -infallibility. Suggested improvements, if they can sustain the -indispensable test of rigid scrutiny, are welcomed, and not, as of old, -frowned away. The Department acts under the conviction that to thrive it -must keep ahead of all rivals; that it must discard the confidence -heretofore placed in legal prohibitions, and seek its continuance of -prosperity only by deserving it." - - -FOOTNOTES: - -[196] In this category we suppose the reviewer placed the following -letter addressed to the Secretary of the Post-Office, from Lord -Cranworth when Lord Chancellor. We adduce it here, on the contrary, as a -specimen of a handsome and manly apology: "Sir,--Complaints were made -early last month, that a letter posted by Mr. Anderson, of Lincoln's -Inn, and addressed to me, had never reached its destination.... You -caused inquiry to be made.... I feel it a duty to you, Sir, and the -Post-Office authorities, to say that I have just found the missing -letter, which has been accidentally buried under a heap of other papers. -I have only to regret the trouble which my oversight thus caused, and to -take the earliest opportunity of absolving all persons, except myself, -of blame in the matter. I have, &c. &c. CRANWORTH." Somewhat similar to -the above case, occurring only last year, we may refer to the -circumstance, probably in the memory of most of our readers, when, among -a batch of complainants whose letters The _Times_ admitted to its -columns, was one from the late Mr. John Gough Nicholls, the eminent -_litterateur_, who grieved bitterly that a letter sent through the post -to him had not arrived at his address. From a manly apology which he -made to the Post-Office authorities a few days afterwards, also given in -The _Times_, it appeared that the reason why he never received the -letter was, that _it had not been sent through the Post-Office_, as it -ought to have been, but was delivered by a private messenger at another -house in the street. - -[197] We do not mention this latter circumstance, be it understood, to -discourage the use of slits or letter-boxes in private doors. An -occurrence of the above kind must be exceedingly rare, whilst nothing so -much helps the prompt delivery of letters as such an arrangement. - -[198] Perhaps, however, there is room to doubt whether the true reform -will consist in anything less than the entire abolition of packet -subsidies, and the offering of the contracts in the ordinary way of -commercial transactions. An ocean penny-postage, _e. g._ penny -sea-postage, would then be almost inevitable. A letter charged a penny -the half-ounce would amount to nearly 300_l._ a ton, an enormous -freightage it will be admitted, to the United States, being even fifteen -times steam freight to India. Nor when the letters get across the sea -would they be subject to heavy inland postage either in the one country -or the other. In the United States letters are circulated for thousands -of miles for three cents, while for half an anna, a sum equivalent to -three farthings of English money, a letter may be forwarded through the -length and breadth of British India. - -[199] As another example, take the United States, with Mr. Anthony -Trollope for a judge on postal concerns. In his _North America_, vol. -ii. p. 368, we read: "It is, I think, undoubtedly true that the amount -of accommodation given by the Post-Office of the States is small, as -compared with that afforded in some other countries, and that that -accommodation is lessened by delays and uncertainty.... Here in England, -it is the object of our Post-Office to carry the bulk of our letters at -night, to deliver them as early as possible in the morning, and to -collect them and take them away for despatch as late as may be in the -day; so that the merchant may receive his letters before the beginning -of his day's business, and despatch them after its close. In the States -no such practice prevails. Letters arrive at any hour of the day -miscellaneously, and were despatched at any hour. I found that the -postmaster of one town could never tell me with certainty when letters -would arrive at another. I ascertained, moreover, by painful experience -that the _whole_ of a mail would not always go forward by the first -despatch. As regarded myself, this had reference chiefly to English -letters and newspapers. 'Only a part of the mail has come,' the clerk -would tell me. With us the owners of that part which did not _come_ -would consider themselves greatly aggrieved and make loud complaint. -But, in the States, complaints made against official departments are -held to be of little moment." We are further told that the "letters are -subject to great delays by irregularities on railways. They have no -travelling post-offices in the States, as with us. And, worst of all, -there is no official delivery of letters." "The United States' -Post-Office," says Mr. Trollope, "does not assume to itself the duty of -taking letters to the houses of those for whom they are intended, but -holds itself as having completed the work for which the original postage -has been paid when it has brought them to the window of the post-office -of the town to which they are addressed." The recognised official mode -of delivery is from the office window, many inhabitants paying for -private boxes at the post-office. If delivered, a further sum must be -paid the bearer. Surely English people have reason to be content with -their privileges, and in a certain degree to "rest and be thankful." - -[200] Report of the Committee of the House of Commons on Packet and -Telegraph Contracts, p. 27. - -[201] _Ibid._ p. 34. - -[202] A halfpenny post is in full operation at the city of Quebec. - -[203] The Chancellor of the Exchequer, in his place in Parliament, has -just adverted (April) to the argument indicated above. "If the -Post-Office revenue be abandoned in whole, or in part, a gap will be -created which will have to be supplied by direct taxation." That our -postage rates may be regarded as a kind of mild taxation, not unfairly -levied, and that the work is done by the State with more uniformity of -purpose and greater regularity than would be possible under any private -company, our senators agree, perhaps with the single exception of Mr. -Roebuck. That gentleman, however, it will be remembered, held that -Sebastapol might have been reduced more easily had the business been -made a subject of contract! With respect to the state monopoly and the -advantages derived from it, political economists are also pretty well -agreed. Blackstone has been referred to previously. Sergeant Stephens, -in his _Commentaries_, endorses Blackstone's views. Mr. M'Cullagh, in -his _Principles of Political Economy_, is so clear on this point that we -venture to make a quotation: "Perhaps, with the single exception of the -carriage of letters, there is no branch of industry which Government had -not better leave to be conducted by individuals. It does not, however, -appear that the Post-Office could be so well conducted by any other -party as by Government; the latter only can enforce perfect regularity -in all its subordinate departments, can carry it into the smallest -villages and even beyond the frontier, and can combine all its separate -parts into one uniform system on which the public may rely for security -and despatch. Besides providing for the speedy and safe communication of -intelligence, the Post-Office has everywhere almost been rendered -subservient to fiscal purposes, and made a source of revenue; and -provided the duty on letters be not so heavy as to oppose any very -serious obstacle to the frequency and facility of correspondence, it -seems to be a most unobjectionable tax; and is paid and collected with -little trouble and inconvenience." Fourth Edition, 1849, pp. 296-7. See -also M'Cullagh's _Commercial Dictionary_, where he speaks still more -decidedly, and Mr. Senior's _Political Economy_. Sydney Smith, who with -Mr. M'Cullagh was opposed to the penny-postage movement, was favourable -to the Government monopoly of the Post-Office. - -[204] These remarks must not be understood to apply to the _clerks_ in -the different branches of the London establishment. These clerks, &c., -who are required to be educated gentlemen, are as a rule, paid on lower -scales of salary than obtain, we believe, in the other Government -departments. - -[205] _Fraser's Magazine_, September, 1862, p. 536. - - - - -APPENDIX. - - - - -APPENDIX (A). - -CHIEF OFFICERS OF THE POST-OFFICE - - -_ENGLAND._ - -_Her Majesty's Postmaster-General._ - -THE RIGHT HON. LORD STANLEY OF ALDERLEY. - - _Secretary_ JOHN TILLEY, ESQ. - - _Assistant Secretaries_ {FREDERIC HILL, ESQ. and - {FRANK IVES SCUDAMORE, ESQ. - - _Chief Clerk of the Secretary's Office_ RODIE PARKHURST, ESQ. - - _Chief Clerk of Foreign Business_ WILLIAM PAGE, ESQ. - - _Solicitor_ WM. HENRY ASHURST, ESQ. - - _Assistant Solicitor_ R. W. PEACOCK, ESQ. - - _Inspector-General of Mails_ EDWARD JOHN PAGE, ESQ. - - _Deputy Inspector-General of Mails_ JOHN WEST, ESQ. - - _Receiver and Accountant-General_ VACANT. - - _Controller of Circulation Department_ WILLIAM BOKENHAM, ESQ. - - _Deputy Controller_ _ditto_ THOMAS BOUCHER, ESQ. - - _Controller of Money-Order Office_ FRED. ROWLAND JACKSON, ESQ. - - _Controller of Post-Office Savings'_} - _Banks_ } GEORGE CHETWYND, ESQ. - - _Medical Officer_ WALLER LEWIS, ESQ. M.D. - -_Post-Office District Surveyors._ - - Northern District CHRIS. HODGSON, ESQ. Penrith. - - Southern District J. H. NEWMAN, ESQ. Dorking. - - Eastern District ANTHONY TROLLOPE, ESQ. Waltham Cross. - - Western District G. H. CRESSWELL, ESQ. Devonport. - - Derby District ERNEST MILLIKEN, ESQ. Derby. - - Manchester District WILLIAM GAY, ESQ. Altrincham. - - Shrewsbury District W. J. GODBY, ESQ. Shrewsbury. - - Gloucester District JOHN PATTEN GOOD, ESQ. London. - - Birmingham District A. M. CUNYNGHAME, ESQ. London. - - -_IRELAND._ - - _Secretary_ GUSTAVUS CHARLES CORNWALL, ESQ. - - _Accountant_ JOSEPH LONG, ESQ. - - _Controller of Sorting Office_ R. O. ANDERSON, ESQ. - - _Solicitor_ R. THOMPSON, ESQ. - - _Surveyors_ {H. JAMES, ESQ. Limerick, and - {W. BARNARD, ESQ. Dublin. - - -_SCOTLAND._ - - _Secretary_ FRANCIS ABBOTT, ESQ. - - _Accountant_ JOHN MARRABLE, ESQ. - - _Controller of Sorting Office_ T. B. LANG, ESQ. - - _Solicitor_ J. CAY, JUN. ESQ. - - _Surveyors_ {JOHN WARREN, ESQ. Aberdeen, and - {E. C. BURCKARDT, ESQ. Edinburgh. - - - - -APPENDIX (B). - -ABSTRACT OF THE PRINCIPAL REGULATIONS. - - "It may not be too much to say that half the people in this country - who use the Post-Office do not know clearly all the benefit they may - derive from it."--_Household Words_, 1856. - - -We have already directed the attention of those engaged in frequent -correspondence, especially with our colonies and foreign countries, to -the necessity of consulting the official books published for their -guidance. The following digest of Post Office regulations may, perhaps, -answer the ordinary requirements of the general reader. - - -THE LETTER-POST. - -As at present constituted, the British Post-Office has, with the few -exceptions noticed in our historical survey, an exclusive authority to -convey _letters_ within the United Kingdom. It is also required by law -to convey newspapers when the public choose to use the post for that -purpose. The Post-Office further undertakes the conveyance of books and -book-packets, and the remittance of small sums of money. Still more -recently, it has entered into competition with the banking interest of -the country: it now threatens a scheme which will compete with benefit -societies and insurance offices. It is only with regard to the carriage -of letters, however, that the Post-Office possesses any special -privileges, the other branches of its business being open to any person -or persons who may choose to undertake them. - -(_a_) The rates of postage on all letters passing through the -Post-Office are now regulated by weight,[206] irrespective of distance, -and (with some exceptions, which we will mention presently) altogether -irrespective of their contents. Letters weighing _less than four ounces_ -may be sent unpaid, but they will be charged double postage on delivery. -Letters may be sent insufficiently stamped, but that deficiency, -whatever it may be, will also be charged double postage on delivery. The -rate for letters is familiar to every reader. - -(_b_) All re-directed letters are liable to additional postage, but at -the _prepaid_, and not the unpaid rate. Thus, for a letter under half an -ounce, re-addressed from one post-town to another, additional postage, -to the amount of one penny, is levied. Re-directed letters, not -addressed to a fresh post-town, but to a place within the district -belonging to the same post-town to which they were originally sent, are -not charged with any additional postage, the first payment franking them -until they are delivered. Letters for officers in the army and navy, and -private soldiers and seamen employed on actual service, have their -letters re-addressed to them from place to place without any charge for -re-direction. - -(_c_) No letter, &c. can be forwarded through the post which is more -than two feet in length, breadth, or depth, nor any unpaid letter or -packet which weighs more than four ounces, unless three-quarters of the -postage due on it have been paid. The exceptions to this rule are-- - -1st. Packets sent to or received from places abroad. - -2d. Packets to or from any of the Government departments or public -officers. - -3d. Petitions or addresses to the Queen, whether directed to Her Majesty -or forwarded to any member of either House of Parliament. - -4th. Petitions to either House of Parliament. - -5th. Printed parliamentary proceedings. - -(_d_) Late letters, &c. are received till within five minutes of the -despatch of the mails, except where the Post-Office surveyor may deem a -longer interval necessary, and providing that this arrangement does not -necessitate any office being open after ten o'clock at night. In each -post-office window placards are exhibited showing the time up to which -such letters may be posted. - -No late letters can be forwarded by the mail preparing for despatch -unless prepaid in stamps, including the ordinary postage and the -late-letter fee. Government letters are an exception to this rule; they -may be posted, without extra fee, up to the latest moment. - -(_e_) Letters containing sharp instruments, knives, scissors, glass, &c. -are not allowed to circulate through the post, to the risk of damaging -the general correspondence. Such communications, when posted, are -detained and forwarded to the Metropolitan Office, where correspondence -is at once opened with the senders. - -Letters for the United Kingdom found to contain coin are only forwarded -to their destination under certain restrictions. Such letters, if not -registered, are at once treated as if they were, and charged on delivery -with a double registration-fee, or eightpence in addition to the -postage. - - -REGISTERED LETTERS. - -The registration-fee of fourpence, prepaid in stamps, will secure -careful treatment to any letter, newspaper, or book-packet addressed to -any part of the United Kingdom. Record is kept of all such letters -throughout their entire course. The registration of a packet makes its -transmission more secure, by rendering it practicable to trace it from -its receipt to its delivery. For a fee of sixpence letters may be -registered to any British colony, except Ascension, Vancouver's Island, -British Columbia, and Labuan, for which places they can only be -registered part of the way. Letters may be registered to several foreign -countries at varying rates. (_See British Postal Guide._) - -Every letter meant for registration should be presented at the -post-office window, or counter (as the case may be) and a receipt -obtained for it, and must on no account be dropped into the letterbox -among the ordinary letters. If, contrary to this rule, a letter marked -"registered" be found in the letter-box, addressed to the United -Kingdom, it will be charged an extra registration-fee of double the -ordinary fee, or one of eightpence instead of fourpence. - -The latest time for posting a registered letter on payment of the -ordinary fee is generally up to within half an hour of the closing of -the letter-box for that particular mail with which it will require to be -forwarded. A registered letter will be received at all head offices up -to the closing of the general letter-box, or until the office is closed -for the night, on payment of a late fee of fourpence in addition to the -ordinary registration fee. All fees, as well as postage, of registered -letters must be prepaid in stamps. A registered letter, when -re-directed, is liable to the same additional charge as if it were an -ordinary letter, the original register fee, however, sufficing until it -is delivered. - -By Act of Parliament, the Post-Office is not responsible for the -absolute security of registered letters, though every care and attention -are given to them. Each registered letter may be traced from hand to -hand, from posting to delivery, with unfailing accuracy, and there can -be no question as to the great security which is thus afforded. Any -officer who may neglect his duty with registered letters is called to -strict account, and, if the Postmaster-General should see fit, will be -required to make good any loss that may be sustained. In cases where -registered letters have been lost (in the proportion, it is said, of -about one in ninety thousand), or some abstraction of their contents, -the Department makes good the loss, if the fault is shown to rest with -the Post-Office, and if the sum lost be of moderate amount and the -sufferer a person not in affluent circumstances. - - -FOREIGN AND COLONIAL LETTER-POSTS. - -For information of the despatch of foreign and colonial mails; rates of -postage; and as to whether prepayment be optional or compulsory; see the -"British Postal Guide," published quarterly. - -Letters addressed to places abroad may be prepaid in this country either -in money or stamps, but such payment must be made either wholly in -stamps or wholly in money. The only exception to this rule is when the -rate of postage includes a fractional part of a penny, for which, of -course, there are no existing English stamps. - -With certain exceptions, the only admitted evidence of the prepayment of -a foreign letter is the mark agreed upon with the particular foreign -country or colony. - -When prepayment is _optional_, any outward letter (_e. g._ going abroad) -posted with an insufficient number of stamps is charged with the -deficient postage in addition, unless the letter has to go to Holland, -or to the United States, or to a country through France, in which case -it is treated as wholly unpaid, the postal conventions with these -countries not allowing the recognition of partial prepayment. When, -however, prepayment of the whole postage is _compulsory_, a letter, or -aught else posted with an insufficient number of stamps, is sent (by the -first post) to the Returned Letter Office. - -Letters for Russia and Poland are also treated as wholly unpaid, if the -full postage has not been paid in the first instance. - -Letters to or from Ceylon, Australia, New Zealand, British West Indies -(except Turk's Island), Honduras, and St. Helena, posted wholly unpaid, -or paid less than one rate, are detained and returned to the writers for -postage. If the letters should be paid with one rate (paid for half an -ounce, for instance, when the letter weighs more than half an ounce), -they are forwarded (except in the case of New Zealand), charged with the -deficient postage and sixpence as a fine. Letters for New Zealand must -be fully prepaid. - -Letters for nearly all our remaining British colonies, if posted unpaid, -either wholly or in part, are, on delivery, charged sixpence each in -addition to the ordinary postage. - -Letters intended to be sent by private ship should, in all cases, have -the words "By private ship," or "By ship," distinctly written above the -address. The postage of letters forwarded by private ship is -sixpence--if the weight does not exceed half an ounce--and the postage -must generally be prepaid. Exception is made to most of our North -American and African colonies, to which places prepayment by private -ship is not compulsory. (See table in the _British Postal Guide_.) - -When the route by which a foreign or colonial letter is to go is not -marked on the letter, it will be sent by the principal or earliest -route. In some cases, the postage paid (provided it be by stamps) is -regarded as an indication of the wish of the sender, and the letters are -forwarded by the route for which the prepayment is sufficient. Thus, -letters for Holland, Denmark, Norway, &c. which, as a rule, are sent -_via_ Belgium, are sent _via_ France, if the prepayment be insufficient -for the former, but sufficient for the latter route. - -_North American and Indian Mails._--Letters for passengers on board the -Cunard mail packets for America touching at Queenstown, provided they be -addressed to the care of the officers in charge of the mails on board -such packets, _and be registered_, may be posted in any part of the -United Kingdom up to the time at which registered letters intended for -transmission to America by the same packets are received, and they will -be delivered on board the packets at Queenstown. - -Letters for passengers on board the Mediterranean packets about to sail -from Southampton for India, China, Australia, &c. and the Canadian mail -packets touching at Londonderry, may, under similar conditions, be -posted up to the same time as registered letters for India and Canada. - -The letters should be addressed thus: "Mr. ----, on board the mail -packet at Queenstown, Londonderry, or Southampton (as the case may be), -care of the officer in charge of the mails." - -Letters directed to the care of the packet agent at Suez, and despatched -by the Indian mails _via Marseilles_, which always leaves after the -mails _via Southampton_, will most probably there reach passengers for -India, &c. who may have previously sailed in the Southampton packets. - - -NEWSPAPER POSTS. - -(_a_) It is not compulsory to send newspapers through the post. - -(_b_) The rate for newspapers stamped with the _impressed_ stamp is one -penny for two sheets, three-halfpence for three sheets, and twopence for -four sheets, of printed matter. - -(_c_) No newspaper, or other publication, can pass through the post, -unless the impressed stamp be of the value of at least one penny. - -(_d_) The title and date of every publication so passing must be printed -at the top of every page. - -(_e_) The impressed stamp (or stamps, if more than one publication be -sent under one cover) must be distinctly visible on the outside. When a -newspaper is folded so as not to expose the stamp, a fine of one penny -is made in addition to the proper postage of the paper. - -(_f_) The publication must not be printed on pasteboard or cardboard, -but on ordinary paper, nor must it be enclosed in a cover of either -material. - -(_g_) Newspapers bearing the impressed stamp cannot circulate through -the post after they are _fifteen days old_. - -(_h_) They must not contain any enclosure, and must either have no cover -at all, or one which shall be open at both ends. They must have no -writing either inside or outside, except the name of the persons to whom -they are sent, the printed title of the publications, and the printed -names of the publishers or agents sending them. If one of these -newspapers be addressed to a second person, the address in the first -instance still remaining, it is regarded as an infringement of the above -rule, and renders the paper liable to be charged as an unpaid letter. - -(_i_) In order that newspapers may be sent abroad, the publishers must -first have had them registered at the General Post-Office. - -(_j_) Newspapers intended for transmission to our colonies or foreign -countries must, in all cases, be prepaid _with postage-stamps_, the -impressed stamp here, in all respects, standing for nothing. Though this -is the case, all newspapers sent abroad are liable to the same -regulations as English newspapers bearing impressed stamps. - -(_k_) It must be borne in mind, that the arrangements for inland -newspapers forwarded under the book-post regulations, and paid with the -ordinary postage-stamp, are entirely distinct from the above. - - -PARLIAMENTARY PROCEEDINGS. - -(_a_) Printed proceedings of the British Parliament are forwarded -through the Post-Office at a special rate, and possess privileges in -their transmission not belonging to either the newspaper- or -book-postage. Parliamentary proceedings, however, may pass through the -post at either the special rate, the newspaper rate, or book-post rate, -always provided that the conditions of the particular rate chosen be -complied with. - -(_b_) "Parliamentary proceedings," if these words are written or -printed on the cover (otherwise they are liable to be charged letter -rate), may circulate through the United Kingdom at the following rates -of postage:-- - - Weighing not more than 4 oz. 1_d._ - Weighing more than 4 oz. and not exceeding 8 oz. 2_d._ - " 8 oz. " 12 oz. 3_d._ - " 12 oz. " 16 oz. 4_d._ - -and so on; one penny being charged for every additional _quarter_ of a -pound or fraction of a quarter of a pound. - -(_c_) Prepayment of parliamentary proceedings is _optional_ throughout -the United Kingdom. Prepayment may also be made in part, when the -_simple difference only_ will be charged on delivery. - -Parliamentary proceedings can only be sent to the colonies or foreign -countries by means of the book-post system, and, of course, only where -book-posts are established. - - -THE BOOK-POST. - -(_a_) Written or printed matter of any kind--including matter which may -be sent by the ordinary newspaper-post, or under the special privileges -of parliamentary proceedings--may be sent through the book-post under -the following rates and conditions:-- - -(_b_) - - A packet weighing not more than 4 oz. 1_d._ - " more than 4 oz. but not exceeding 8 oz. 2_d._ - " more than 8 oz. " 1 lb. 4_d._ - " more than 1 lb. " 1-1/2 lb. 6_d._ - " more than 1-1/2 lb. " 2 lb. 8_d._ - -and so on; twopence being charged for every additional _half-pound_ or -fraction of a half-pound. - -(_c_) The postage on book-packets must be prepaid, and that by -postage-stamps affixed outside the packets or their covers. If a -book-packet should be posted insufficiently prepaid, it is forwarded, -charged with the deficient book postage together with an additional -rate; thus, one weighing over four ounces and only bearing one penny -stamp, would be charged twopence additional postage on delivery. If a -book-packet is posted bearing no stamps at all, it is charged as an -_unpaid letter_. - -(_d_) In cases where a book-packet is re-directed from one to another -postal district in the United Kingdom, the same charge is made on -delivery as was originally made for the postage, one penny for four -ounces, twopence for a packet under eight ounces, and so on. - -(_e_) Every book-packet must be sent either without a cover, or with one -open at the ends or sides, in order that the contents may be examined if -it be thought necessary. For greater security, it may be tied round the -ends with string, though each postmaster is empowered to remove it for -the purpose of examining the packet. He will re-secure it, however, -after examination. As a security against fraud, it has been found -necessary to adopt precautionary measures with book-packets and -newspapers: it has been demonstrated over and over again that many -people will evade the Post-Office charges, cheap as they now are, if it -be possible to do so.[207] When any head postmaster has grounds for -suspecting an infringement of the rules of the book-post, and -occasionally when he has no suspicion, he is required to open and -examine packets passing through his office, in order to assure himself -that the privileges of the book-post are being legitimately used. - -(_f_) A book-packet may contain any number of separate books or other -publications (including printed or lithographed letters), photographs -(when not on glass or in cases containing glass), prints, maps, or any -quantity or quality of paper, parchment, or vellum. The whole of this -description of paper, books, and other publications, may either be -printed, written, engraved, lithographed, or plain, or the packet may -consist of a mixture of any or all these varieties. The binding, -mounting, or covering of books and rollers, &c. in the case of prints or -maps, are allowed. In short, whatever usually appertains to the sort -of articles described, or whatever is necessary for their safe -transmission, may be forwarded through the post at the same rate -charged for the articles themselves. - -(_g_) Among the general restrictions, we find the following:-- - - No book-packet must exceed two feet in length, width, or depth. - - No book-packet must contain anything inclosed which is sealed - against inspection, nor must there be any letter inclosed, or - anything in the way of writing in the packet of the nature of a - communication, either separate or otherwise. Entries on the first - page of a book, merely stating who sends it, are allowable (and even - desirable in case of failure of delivery) inasmuch as they are not - regarded as of the nature of a letter. - - Any packets found with a communication written in it (if the - communication in question cannot be taken out, but forms a component - part of the packet) will be charged with the _unpaid letter - postage_, and then sent forward. - - If a packet be found containing an enclosure, whether sealed or - otherwise, or anything of the shape of a letter, such enclosure or - letter will be taken out and forwarded separately to the address - given on the packet. It is sent forward, of course, as an unpaid - letter, but, in addition, another single rate is charged. Thus, if - the article taken out of the packet does not exceed half an ounce in - weight, the charge of threepence will be levied on delivery, while - the remainder of the packet, if prepaid, will be delivered free at - the same time. - -(_h_) And lastly. The conveyance of letters being the main business of -the Post-Office, the authorities make distinct stipulations that -book-packets and newspapers must not interfere with the quick and -regular conveyance and delivery of letters. Though it is believed to be -of very rare occurrence, head postmasters are authorized to delay -forwarding any book-packet or newspaper for a period not exceeding -twenty-four hours beyond the ordinary time, if the other interests of -their office demands it. - - -THE PATTERN-POST. - -Arrangements for an inland pattern-post, such as has been in existence -for a short time between this country and France, for the conveyance of -_patterns_, have just been made. The pattern-post is now in operation, -and must prove beneficial to those engaged in mercantile pursuits. - -(_a_) At present, parcels of patterns may be forwarded through the post, -subject to the undermentioned regulations, at the following fixed rates, -prepaid with stamps, viz.:-- - - For a packet weighing under 4 oz. 3_d._ - " above 4 oz. and not exceeding 8 oz. 6_d._ - " above 8 oz. " 1 lb. 1_s._ 0_d._ - " above 1 lb. " 1-1/2 lb. 1_s._ 6_d._ - -and so on; threepence being charged for every additional four ounces. - -(_b_) The pattern must not be of intrinsic value. All articles of a -saleable nature, wearing apparel, medicine, &c. or anything which may -have a value of its own and not necessarily a money value, are excluded -by this rule. - -(_c_) The patterns-packet must not contain any writing inside, except -the address of the manufacturer or trademark, the numbers, or the prices -of the articles sent. - -(_d_) The patterns must be sent in covers open at the ends or sides, in -the same way as book-packets, so as to admit of easy and thorough -examination. Samples of seeds, drugs, and other things of that -character, which cannot be sent in open covers, may be inclosed in bags -of linen, paper, or other material, tied at the neck with string. If -transparent bags are used, as in France, the articles may easily be -seen; but even then the bags must not be tied so that they cannot easily -be opened in their passage through the post. - -(_e_) Articles such as the following are prohibited by this new post, -and few of them can be sent even at the letter-rate of postage, viz. -metal boxes, porcelain or china, fruit, vegetables, bunches of flowers, -cuttings of plants, knives, scissors, needles, pins, pieces of watch or -other machinery, sharp-pointed instruments, samples of metals or ores, -samples in glass bottles, pieces of glass, acids, &c., copper or -steel-engraving plates, or confectionary of all kinds. In almost all -these cases, the contents of a letter-bag would be in danger of being -damaged or spoiled. - - -MONEY-ORDERS. - -(_a_) Inland money-orders are obtainable at any of the offices of the -United Kingdom on payment of the following commission:-- - - On sums not exceeding 2_l._ for 3_d._ - Above 2_l._ and not exceeding 5_l._ " 6_d._ - Above 5_l._ " 7_l._ " 9_d._ - Above 7_l._ " 10_l._ " 1_s._ 0_d._ - -The commission on money-orders made payable in any of the British -Colonies where money-order business is transacted is _four times_ the -sum charged for inland orders, except at Gibraltar and Malta, where the -commission is only three times the British rate. - -(_b_) The amount of any one money-order cannot exceed 10_l._, nor less -than 1_d._ No order is allowed to contain a fractional part of a penny. - -(_c_) Applications for a money-order should always be made in writing. -"Application Forms" are supplied gratuitously at all money-order -offices. The surname, and, at least, the initial of one Christian name -of both the person who sends the order, and the person to whom the money -is to be paid, must always be given. The address of the remitter of the -money should also be given. The following exceptions are allowed to the -above rule:-- - - (1) If the remitter or payee be a peer or bishop, his ordinary title - is sufficient. - - (2) If a firm, the usual designation will suffice--if that - designation consist of names of persons, and not of a company - trading under a title. - - (3) Money-orders sent to the Privy Council may be issued payable to - "The Privy Council Office." - - (4) When the remitter notifies that the order is to be paid through - a bank, he may withhold the name of the person for whom it is - intended if he chooses; or he may, if he wishes, substitute a - designation instead of a person's name; as, for example, he may make - an order payable, through a bank, to "The Cashier of the Bank of - England," or "The Publisher of _The Times_." - -(_d_) A money-order is always issued on the _head_ office of any town -where there are several money-order offices, except the persons sending -it request that it should be made out for some other subordinate office. - -(_e_) The sender of any money-order may make his order payable ten days -after date, by simply signing a requisition at the foot of the order to -that effect, and affixing a penny receipt-stamp to his signature. - -(_f_) An order once made out cannot be cancelled by the officer issuing -it under any circumstances. If the sender should require to transmit it -to a different town than the one he first mentioned, or to a -different name, he must apply to the issuing postmaster, and make the -necessary application on the proper form which will be furnished to -him. Directions on all these subjects are printed on the back of -money-orders. - -(_g_) When an order is presented for payment (not through a bank), the -postmaster is required to see that the signature on the order is -identical with the name to which he is advised to pay the money, and -that the name be given as full in the one case as it is in the other. If -this is so, the person presenting the order is required to state the -name of the party sending it, and should the reply be correct, the order -is paid, unless the postmaster shall have good reason for believing that -the applicant is neither the rightful claimant, nor deputed by him. If -presented through a bank, however, it is sufficient that the order be -receipted by some name, and that (crossed with the name of the receiving -bank) it be presented by some person known to be in the employment of -the bank. The owner of a money-order is always at liberty to direct, by -crossing it, that an order be paid through a bank, though the sender -should not make it so payable. The ordinary questions are then dispensed -with. - -(_h_) Money-orders, when paid, do not require a receipt-stamp. - -(_i_) Under no circumstance can payment of an order be made on the day -on which it has been issued. - -(_j_) After once paying a money-order, by whomsoever presented, the -Post-Office is not liable to any further claim. Every endeavour, it is -stated, will be made to pay the money to the proper party, or to some -one believed to be delegated by the proper party. - -(_k_) A money-order in the United Kingdom becomes _lapsed_, if it be not -presented for payment before the end of the second calendar month after -that in which it was issued (thus, if issued in January, it must be paid -before the end of March). A second commission for a new order will then, -after that time, be necessary. _Six_ months are allowed in the colonies. - -If the order be not paid before the end of the twelfth calendar month -after that in which it was issued, all claim to the money is lost.[208] - -(_l_) In case of the miscarriage or loss of an inland money-order, a -duplicate is granted on a written application (enclosing the amount of a -second commission and the requisite particulars) to the Controller of -the Money-Order Office of England, Scotland, or Ireland (as the case may -be), where the original order was _issued_. If it be desired to stop -payment of an inland order, a similar application, with postage-stamps -to the amount of a second commission, must be made to the controller of -the money-order office in that part of the United Kingdom in which the -order is _payable_. All mistakes made in money-orders can only be -rectified in this manner by correspondence with the chief metropolitan -office and by payment of a second commission. Whenever the mistake is -attributable to the Post-Office, however, and a second commission is -rendered necessary, the officer in fault is called upon to pay it. - -Proper printed forms, moreover, are supplied for every case likely to -arise, and full instructions are given on money-orders. In addition, -however, to supplying the proper forms, the postmasters are required to -give every necessary information on the subject of second or duplicate -orders. - -(_m_) No money-order business is transacted at any post-office on -Sundays. On every lawful day, the time for issuing and paying -money-orders is from ten till four at the chief offices in London, -Edinburgh, and Dublin, and from nine till six at provincial offices. On -Saturday nights it is usual to allow two extra hours for this business. - - -POST-OFFICE SAVINGS BANKS. - -We have already explained at some length the origin and ordinary working -of these banks; the following _resume_ of the distinctive features of -the new plan may therefore suffice:-- - - (_a_) Nearly all the money-order offices in the United Kingdom are - now open each working-day for the receipt and payment of - savings-bank accounts. - - (_b_) Deposits of one shilling, or any number of shillings, will be - received, provided the total amount of deposits in any one year does - not exceed 30_l._, or the total amount standing in one name does not - exceed, exclusive of interest, 150_l._ - - (_c_) Each depositor, on making the first payment, must give every - necessary particular regarding himself, and sign a declaration. He - will then receive a book (gratis) in which all entries of payments - and withdrawals will be regularly made by an officer of the - Post-Office. - - (_d_) Interest at the rate of 2_l._ 10_s._ per cent. is given on all - money deposited. - - (_e_) Secrecy is observed with respect to the names of depositors in - post-office banks, and the amounts of their deposits. - - (_f_) Depositors have direct Government security for the prompt - repayment, with interest, of all their money. - - (_g_) Married women may deposit money in these banks, and money so - deposited will be paid to the _depositor_, unless her husband give - notice of marriage, in writing, and claim payment of the deposits. - - (_h_) Money may also be deposited by, or in behalf of, minors. - Unlike some ordinary savings-bank, depositors over seven years of - age are treated here as persons of full age, though minors under - seven cannot withdraw, or have drawn, their deposits until they - attain that age. - - (_i_) Charitable societies and penny-banks may deposit their funds - in the Post-Office banks, but a copy of their rules must, in the - first instance, be sent to the Postmaster-General. Special aid is - given to penny-banks established in connexion with those of the - Post-Office. - - (_j_) Friendly societies, duly certified by the Registrar of these - societies, may also deposit their funds, without limitation or - amount, under the same condition. - - (_k_) A depositor in an old savings-bank may have his money - transferred to the Post-Office banks with the greatest ease. He has - only to apply to the trustees of the old savings-bank for a - certificate of transfer (in the form prescribed by the Act of - Parliament regulating the transactions of these banks, viz. 24 Vict. - cap. 14), and he can then offer the certificate to the Post-Office - bank, and it will be received as if it were a cheque. Of course he - can draw out from one bank and pay into the other in the usual way, - but the transfer certificate will save him both trouble and risk. - - (_l_) A depositor in any one of the Post-Office savings-banks may - continue his payments in any other bank at pleasure without notice - or change of book. The same facilities of withdrawal, as we have - previously shown, are also extended to him. - - (_m_) Additional information may be obtained at any post-office, or - by application to the Controller, Savings-Bank Department, General - Post-Office, London. All applications of this kind, or any letters - on the business of the savings-banks, as well as the replies - thereto, pass and repass free of postage. - - -MISCELLANEOUS REGULATIONS. - -1. Petitions and addresses to Her Majesty, or to members of either House -of Parliament, forwarded for presentation to either House, may be sent -_free_, provided that they do not weigh more than two pounds, and are -either without covers, or enclosed in covers open at the ends or sides. -They must not contain any writing of the nature of a letter, and if, -upon examination, anything of the kind be found, the packet is liable to -be charged under the book-post arrangement. - -2. Letters on the business of the Post-Office, relating to any of its -numerous branches, may be forwarded to the head offices of London, -Edinburgh, or Dublin, by the public, free of all postage. Letters for -the different departments of the Government in London may be prepaid, or -otherwise, at the option of the sender. - -3. Letters addressed by the public to the district surveyors of the -Post-Office, on postal business, may also be sent without postage, -though all letters addressed to local postmasters should be prepaid by -stamps. - -4. It is absolutely forbidden that information respecting letters -passing through the Post-Office should be given to any persons except -those to whom such letters are addressed. Post-Office officials are -strictly prohibited from making known official information of a private -character, or, in fact, any information on the private affairs of any -person which may be gathered from their correspondence. - -5. Letters once posted cannot be returned to the writers under any -pretence whatever--not even to alter the address, or even the name, on a -letter. Further, postmasters have not the power to _delay forwarding_, -according to the address, any letter, even though a request to that -effect be made on the envelope, or to them personally, either orally or -in writing. Each letter, put into the Post-Office, is forwarded, -according to its address, by the _first mail_ leaving the place, unless, -indeed, it be posted "too late," when it is not forwarded till the next -succeeding mail. - -6. Each postmaster is required to display a notice in the most -conspicuous position in his office, giving every necessary information -respecting the time of despatch and receipt of mails, delivery of -letters, hours of attendance, &c. &c. - -7. On Sundays there is usually but one delivery of letters, viz. in the -morning, and two hours are allowed during which the public may purchase -postage-stamps, have letters registered, or pay foreign and colonial -letters, &c.; but for the rest of the day all other duties, so far as -the public are concerned, are wholly suspended. In the General -Post-Office in London no attendance is given to the public. In all the -towns of Scotland, and also in one or two towns in England, no delivery -of letters takes place from door to door, but the public may have them -by applying during the time fixed for attendance at the post-office. - -8. In England and Ireland, where, as a rule, letters are delivered on -Sunday mornings, arrangements are made under which any person may have -his letters kept at the post-office till Monday morning by simply -addressing a written request to the postmaster to that effect. Of -course, all the correspondence for such applicant is kept, even -supposing some of it should be marked "immediate;" and no distinction -is allowed. Letters directed to be kept at the post-office in this way -cannot be delivered from the post-office window, except in the case of -holders of private boxes, who may either call for their letters or not, -as they may think proper. Instructions sent to the postmasters of towns -under this arrangement are binding for three months, nor can a request -for a change be granted without a week's notice. - -9. Any resident, in town or country, can have a private box at the -post-office on payment of an appointed fee. That fee is generally fixed -at a guinea per annum, payable in advance, and for a period of not less -than a year. Private bags in addition are charged an extra sum. - -10. "No postmaster is bound to give _change_, or is authorized to demand -change; and when money is paid at a post-office, whether in change or -otherwise, no question as to its right amount, goodness, or weight, can -be entertained after it has left the counter." - -11. Except in the case of foreign or colonial letters about to be -prepaid in money, a postmaster or his clerks are not bound to weigh -letters for the public, though they may do so provided their other -duties will allow of it. - -12. Postage-stamps or stamped envelopes (the latter to be had in packets -or parts of packets, and charged at an uniform rate, viz. 2_s._ and -3_d._ for a packet of twenty-four envelopes) may be obtained at any -post-office in the United Kingdom at any time during which the office is -open--in most cases, from 7 or 7.30 A.M. till 10 P.M. - -13. A licence to sell postage-stamps can be obtained, free of expense, -by any respectable person, on application to the office of Inland -Revenue, Somerset House, London, or (in the provinces) by application to -the district stamp distributor. - -14. Every rural messenger is authorized to sell stamps and embossed -envelopes at the same price at which postmasters sell them; and when, in -the country, the rural postman is applied to for these articles, he must -either supply them, or (if he has none in his possession) must take -letters with the postage in money, and carefully affix stamps to them -when he arrives at the end of his journey. - -15. Each postmaster is authorized to purchase postage-stamps from the -public, if not soiled or otherwise damaged, at a fixed charge of 2-1/2 -per cent. Single stamps will not be received, but those offered must be -presented in strips containing at least two stamps adhering to each -other. This arrangement was fixed upon primarily in order to discourage -the transmission of coin by post. - -16. Letter-carriers and rural messengers are prohibited at any time from -distributing letters, newspapers, &c., except such as have passed -through the Post-Office. They are not allowed to receive any payment -beyond the unpaid postage on letters or newspapers delivered.[209] -Further, in delivering letters, they are not allowed to deviate from the -route laid down for them by the proper authorities. - -17. Persons living within the free delivery of any town cannot obtain -their letters at the post-office window, unless they rent a private box, -in which case they may apply for them as often as a mail arrives. In -some cases where there are not frequent deliveries of letters, persons -may apply at the post-office for their letters arriving by a particular -mail after which there is not an immediate delivery from door to door. - -18. Persons having a distinct residence in any town cannot have their -letters addressed to the post-office (except a private box be taken), -and a postmaster is warranted, when such letters arrive so addressed, to -send them out by the first delivery. The "Poste Restante" is meant for -commercial travellers, tourists, and persons without any settled -residence. Letters so addressed are kept in the office for one month, -after which, if they are not called for, they are returned to the -writers through the Dead-Letter Office. "Ship-letters" in sea-port -towns, or letters addressed to seamen on board ship expected to arrive -at these towns, are kept _three_ months before they are thus dealt with. - -19. When any letters, &c. remain undelivered, owing to the residences of -the persons to whom they are addressed not being known, a list of such -addresses is shown in the window of the post-office to which they may -have been sent, during the time (only _one week_ in these cases) they -are allowed to remain there. - -20. Greenwich time is kept at the Post-Office. - - -LONDON DISTRICT POSTS. - -1. The London district comprises all places within a circle of twelve -miles from St. Martin's-le-Grand, including Cheshunt, Hampton, Hampton -Court, Sunbury, and the post towns of Barnet, Waltham Cross, Romford, -Bromley, Croydon, Kingston, and Hounslow. - -2. There are ten postal districts, each of which is treated in many -respects as a separate post town. The names of the districts are as -follows, the initial letter or letters of the name forming the necessary -abbreviation to each, viz.:--East Central, West Central, Western, -South-Western, North-Western, Northern, North-Eastern, Eastern, -South-Eastern, and Southern. - -3. The portion of each district within three miles of the General -Post-Office is designated the Town Delivery. Within the town limits -there are eleven deliveries of letters daily, the first or principal -commencing at 7.30 and generally concluded by 9 A.M.; the last delivery -commences at 7.45 P.M.; there being something like hourly deliveries -within the interval. Each town delivery occupies on an average -forty-five minutes. There are seven despatches daily to the suburban -districts. - -4. As a general rule, the number of despatches from the suburban -districts is the same as the number of deliveries. - -5. Information relative to the time of delivery and the time for each -despatch to the head office, and also from thence to the provinces, is -afforded at each town and suburban receiving-house. At each of these -houses, several hundreds in number, stamps are sold, letters are -registered, and separate boxes are provided for "London District" and -"General Post" letters. - - -THE "POSTE RESTANTE" AT THE GENERAL POST-OFFICE. - -6. The "Poste Restante" arrangements for London are somewhat different -to those in the provinces; but like the latter they are meant to -provide for strangers and travellers who have no permanent abode in -London,--residents in London not being allowed the privilege. - -7. Letters addressed to "initials" cannot be received; if so addressed -they are returned to their writers through the Returned Letter-Office. - -8. Letters addressed "Post-Office, London," or "Poste Restante," are -delivered only at the Poste Restante Office, on the south side of the -hall of the General Post-Office, between the hours of 9 A.M. and 5 P.M. - -9. All persons applying for letters at the Poste Restante must be -prepared to give the necessary particulars to the clerk on duty, in -order to prevent mistakes, and to insure the delivery of the letters to -the persons to whom they properly belong. If the applicant be a subject -of the United Kingdom (and subjects of states not issuing passports are -regarded as British subjects), he must be able to state from what -place or district he expects letters, and produce some proof of -identification; and if he sends for his letters the messenger must be -supplied with this information, as well as show a written authority to -receive them. If the applicant be a foreigner, he must produce his -passport; or should he send for his letters, the messenger must take it -with him. - - -FOOTNOTES: - -[206] The average weight of inland letters is now about a quarter of an -ounce; that of colonial letters about a third of an ounce; of a foreign -letter also about a quarter of an ounce. The average weight of -newspapers is about three ounces, and of book-packets ten ounces. - -[207] With charges extremely low, the Post-Office is victimized by all -kinds of craftiness. The dodging of the proper payment is sometimes -quite ludicrous. Hundreds of newspapers, for instance, are annually -caught (and we may reasonably assume that thousands more escape) with -short loving messages deftly inscribed between their paragraphs of type, -or letters, different descriptions of light articles, and even money -curiously imbedded in their folds. Almost everybody might tell of some -adventure of this kind in his experience not only before penny-postage, -but even after it. - -[208] Moneys accruing to the revenue from lapsed orders are allowed to -go into a fund for assisting officers of the Post-Office to pay their -premiums on life assurance policies. No officer, however, can be -assisted to pay for a policy exceeding 300_l._ - -[209] This prohibition does not extend to Christmas gratuities. - - - - -APPENDIX (C). - -INFORMATION RELATIVE TO THE APPOINTMENTS IN THE POST-OFFICE SERVICE. - - -All candidates for appointment in the Post-Office, whether to places in -the gift of the Postmaster-General, or to those in provincial towns in -the gift of the respective postmasters, must pass the stipulated -examination prescribed by Government, and which is conducted under the -auspices of the Civil Service Commissioners in London. - -I. Candidates for clerkships in the Secretary's Office, London, must -pass an examination on the following subjects, viz.[210]:-- - - 1. Exercise designed to test handwriting and composition. - - 2. Arithmetic (higher branches, including vulgar and decimal - fractions). - - 3. Precis. - - 4. A Continental language, French or German, &c.[211] - -II. Candidates for general clerkships in the Metropolitan Offices are -examined in[210]-- - - 1. Writing from dictation. - - 2. Exercise to test orthography and composition. - - 3. Arithmetic (higher rules). - -III. Candidates for the place of letter-carrier, &c. - - 1. Writing from dictation. - - 2. Reading manuscript. - - 3. Arithmetic (elementary). - -All officers nominated to places in provincial offices must be -examined by the postmaster, under the auspices of the Civil Service -Commissioners, the examination-papers to be in all cases submitted to -the Commissioners for inspection and judgment. - -IV. For clerks, the examination consists in - - 1. Exercises designed to test handwriting and orthography. - - 2. Arithmetic. - -V. For sorters, letter-carriers, and stampers:-- - - 1. Writing from dictation. - - 2. Reading manuscript. - - 3. Arithmetic (of an easy kind). - -VI. For messengers:-- - - 1. Writing their names and addresses. - - 2. Reading the addresses of letters. - - 3. Adding a few figures together. - -No person under sixteen years of age is eligible for any situation in -the Post-Office. - -Candidates for clerkships in London must be under twenty-four years of -age but not under seventeen. The stipulated age in the country is from -seventeen to twenty-eight. - -No one is eligible for an appointment who has been dismissed the Civil -Service. - -No one is eligible who is connected, directly or indirectly, with the -management of an inn or public-house. - -Sorters, stampers, or railway messengers must not be under 5ft. 3in. -high in their stockings. - -All officers appointed to the London Office must pass a medical -examination before the medical officer of the Department. A special -examination after probation is required from those appointed to the -travelling post-offices. In the country, candidates must provide a -medical certificate to the effect that they enjoy good health. - -Sorters and letter-carriers may be promoted to clerkships. - -Persons of either sex are eligible for appointment in provincial -offices. - -Letter-carriers are provided with uniforms. - -Post-office officials are assisted, at the rate of about 20 per cent. in -payment of premiums for life assurance. They are also entitled to -superannuation allowance, according to their length of service. Clerks -in the General Post-Office are allowed a month's, and sorters, -letter-carriers, &c., a fortnight's, leave of absence each year. - -Clerks, sorters, &c. in the provinces are allowed leave of absence for a -fortnight in each year. - -Postmasters in the country and officers in the General Post-Offices must -give security to the Postmaster-General for the faithful discharge of -their duties, in amounts calculated according to the responsible nature -of the appointment. A guarantee office[212] or two sureties are taken. - -The clerks, &c. in the country offices are required to give security in -the same manner to the postmasters who may have appointed them. - -After the preliminary examinations have been passed successfully, each -new officer, before commencing duty, is required to make a declaration -before a magistrate, to the effect that he will not open, or delay, or -cause or suffer to be delayed, any letter or packet to which he may have -access. He is then put on _probation_ for a term of six months, after -which period, if able to perform all the duties required of him, he -receives a permanent appointment. - -Promotion from class to class in the Post-Office is now, as a rule, -regulated by seniority of service--a much more satisfactory arrangement -to the whole body of officers than the system of promotion by merit -which it has just superseded. - -Heads of departments, postmasters, and all other officers employed in -the Post-Office, are prohibited by law, under heavy penalties, from -voting or interfering in elections for members of parliament. - -No officer of the Post-Office can be _compelled_ to serve as mayor, -sheriff, common councilman, or in any public office, either corporate or -parochial; nor can he be compelled to serve as a juror or in the -militia. - - -FOOTNOTES: - -[210] This examination is for third-class clerks only. Vacancies are -filled up in the first and second classes from the third without any -further examination. - -[211] Clerks in the Solicitor's Office are examined also in -conveyancing, and in the general principles of equity and common law. - -[212] A Post-Office Mutual Guarantee Fund, suggested by Mr. Banning, the -postmaster of Liverpool, is in active operation in London, and deserves -mention. By means of this fund many officers of the Post-Office have -been relieved from the necessity of providing personal securities, or of -paying yearly sums to some guarantee office. Any clerk in London who may -wish to join _deposits_ the sum of 10_s._, and letter-carriers 5_s._ -These deposits are invested in the name of trustees in Government -securities. There are at present nearly 3,000 subscribers, with an -invested capital of 900_l._ Last year there were no demands at all on -the fund except payments to members leaving the service, who not only -draw out their original deposits, but are entitled to receive back a -proportionate amount of interest after defaults have been paid. - - - - -APPENDIX (D). - -APPOINTMENTS IN THE CHIEF OFFICE IN LONDON. (_Extracted from the -Estimates of 1864-5._) - - -In all cases marked thus * the present holders of office, or some of -them, receive additional allowances, either on account of length of -service, compensation, as paid on some previous _scale_ of salary, or -for extra work. - - ----------+----------------------+------------------------------------- - _Number_ | | _Salary of Office._ - _of_ | _Designation._ +-----------+------------+------------ - _Persons._| | _Minimum | _Annual | _Maximum - | |per Annum._|Increment._ |per Annum._ - ----------+----------------------+-----------+------------+------------ - | | L | L _s._ | L - 1 | Postmaster-General | -- | -- | 2,500 - 1 | Secretary | 1,500 |after 5 yrs | 2,000 - 2 | Assistant | 700 | 50 0 | 1,000 - | Secretaries* | | | - | | | | - |_Secretary's Office._ | | | - | | | | - 1 | Chief Clerk | 600 | 25 0 | 800 - |{Principal Clerk } | | | - 1 |{for Foreign and } | 600 | 25 0 | 800 - |{Colonial Business*} | | | - 11 | First-class Clerks:--| | | - | 4 First Section | 500 | 25 0 | 600 - | 7 Second Section* | 400 | 20 0 | 500 - 4 | Senior Clerks | -- | -- | 440 - 19 | Second-class Clerks* | 260 | 15 0 | 380 - 16 | Third-class Clerks | 120 | 10 0 | 240 - 11 | Supplementary Clerks | 80 | 5 0 | 150 - 10 | Probationary Clerks | | | - | at 5_s._ a day | | | - | | | | - |_Solicitor's Office._ | | | - 1 | Solicitor | -- | -- | 1,500 - 1 | Assistant Solicitor | -- | -- | 800 - 1 | Second-class Clerk | 260 | 15 0 | 380 - 2 | Third-class Clerks | 120 | 10 0 | 240 - 1 | Fourth-class Clerk | 80 | 5 0 | 150 - | | | | - | _Mail Office._ | | | - | | | | - 1 | Inspector-General* | 600 | 25 0 | 800 - 1 | Deputy | | | - | Inspector-General | 500 | 20 0 | 600 - 1 |{Principal Clerk of } | 400 | 20 0 | 500 - |{ Stationary Branch} | | | - | | | | - 1 |{Principal Clerk of } | 350 | 20 0 | 450 - |{ Travelling Branch} | | | - | | | | - 3 | First-class Clerks | 260 | 10 0 | 350 - 6 | Second-class Clerks* | 180 | 7 10 | 240 - 12 | Third-class Clerks | 80 | 5 0 | 150 - 5 | Inspectors of Mails | 300 | 20 0 | 500 - | Allowance of 15_s._| | | - | a day when | | | - | travelling. | | | - | | | | - | _Travelling | | | - | Post-Office._ | | | - | | | | - 8 | First-class Clerks | 260 | 10 0 | 350 - 15 | Second-class Clerks | 180 | 7 10 | 240 - 30 | Third-class Clerks | 80 | 5 0 | 150 - 141 | Sorters:-- | | | - | 10 First-class |40s. a wk. | 2 12 | 50s. a wk. - | 19 Second-class |32s. " | 2 12 | 38s. " - | 38 Third-class |25s. " | 2 12 | 30s. " - | 74 Fourth-class |18s. " | 2 12 | 25s. " - | Clerks in this | | | - | office are also | | | - | allowed travelling | | | - | allowances at the | | | - | rate of 5s. a | | | - | trip; sorters, 3s. | | | - | a trip | | | - | | | | - 1 |{Supervisor of Mails'}| | | - |{ Bag Apparatus }| -- | -- | 290 - | | | | - | _Receiver and | | | - | Accountant-General's | | | - | Office._ | | | - | | | | - 1 |{Receiver and }| 600 | 25 0 | 800 - |{ Accountant-General*}| | | - | | | | - 1 | Chief Examiner* | 475 | 20 0 | 575 - 1 | Cashier* | 475 | 20 0 | 575 - 1 |Principal Book-keeper*| 425 | 20 0 | 525 - 11 | First Class Clerks:--| | | - | 5 First Section | 310 | 15 0 | 400 - | 6 Second Section* | 260 | 10 0 | 350 - 17 | Second-class Clerks* | 180 | 7 10 | 240 - 22 | Third-class Clerks | 80 | 5 0 | 150 - | | | | - |_Money-Order Office._ | | | - | | | | - 1 | Controller* | 500 | 25 0 | 750 - 1 | Chief Clerk* | 400 | 20 0 | 550 - 1 | Examiner* | 375 | 15 0 | 450 - 1 | Book-keeper* | 375 | 15 0 | 450 - 13 | First-class Clerks:--| | | - | 4 First Section | 365 | 15 0 | 400 - | 9 Second Section | 260 | 10 0 | 350 - 52 | Second-class Clerks | 180 | 7 10 | 240 - 55 | Third-class Clerks | 80 | 5 0 | 150 - 6 | Probationary Clerks | | | - | 5_s._ per day | | | - | | | | - | _Circulation | | | - | Department._ | | | - | | | | - 1 | Controller* | 600 | 25 0 | 800 - 1 | Vice-Controller* | 500 | 20 0 | 600 - 3 | Sub-Controllers | 450 | 20 0 | 600 - 16 | Deputy Controllers | 350 | 15 0 | 500 - 40 | First-class Clerks* | 260 | 10 0 | 350 - 80 | Second-class Clerks* | 180 | 7 10 | 240 - 118 | Third-class Clerks* | 80 | 5 0 | 150 - | {First-class } | | | - 7 | { Inspectors of } | 210 | 10 0 | 300 - | { Letter-carriers } | | | - | | | | - 15 | Second-class ditto | 150 | 7 10 | 200 - 20 | Third-class ditto | 110 | 5 10 | 145 - 2,356 | Sorters, Messengers, | | | - | &c. viz.-- | | | - | Sorters: | | | - | 100 1st Class | 40s. a wk.| 2 12 | 50s. a wk. - | 450 2d Class | 24s. " | 2 12 | 38s. " - | Messengers: | | | - | 20 " | 21s. " | 2 12 | 40s. " - | Stampers 60 1st Class| 28s. " | 2 12 | 35s. " - | " 199 2d Class| 21s. " | 2 12 | 27s. " - | Letter-carriers: | | | - | 330 1st Class* | 26s. " | 2 12 | 30s. " - | 962 2d Class* | 20s. " | 2 12 | 25s. " - | | | | - | _Surveyors' | | | - | Department._ | | | - | | | | - 13 | Surveyors* | 500 | 25 0 | 700 - 32 | Surveyors' Clerks:-- | | | - | 13 First Class* | 300 | 20 0 | 400 - | 19 Second Class* | 200 | 10 0 | 300 - 13 | Stationary Clerks | 80 | 5 0 | 150 - ----------+----------------------+-----------+------------+------------ - -The surveyors have travelling allowances at the rate of 20_s._ per diem; -surveyors' clerks, 15_s._ per diem; clerks in charge, 10_s._ and 7_s._ -per diem. The whole are also allowed actual expenses of locomotion. - - -PRINCIPAL APPOINTMENTS IN THE CHIEF OFFICES OF DUBLIN AND EDINBURGH. - -(_Extracted from the Estimates of 1864-5._) - - ----------------------------------------------------------------------- - | | _Salary of Office._ - _Number| |-------------------------------- - of | _Designation _ | _Minimum | _Annual | _Maximum - Persons_| |per Annum_|Increment_|per Annum_ - --------|-----------------------------|----------|----------|---------- - | | | | - | _DUBLIN_ | L | L _s._ | L - | | | | - 1 |Secretary | 700 | 50 0 | 1,000 - 1 |Chief Clerk | 500 | 20 0 | 600 - 2 |First-class Clerks | 300 | 15 0 | 400 - 4 |Second-class Clerks | 140 | 10 0 | 300 - 1 |Solicitor | -- | -- | 1,000 - 1 |Accountant* | 500 | 20 0 | 600 - 1 |Examiner* | 325 | 20 0 | 425 - 1 |Controller of Sorting Office | 400 | 20 0 | 500 - 4 |Deputy Controllers | 280 | 10 0 | 350 - | | | | - | _General Body of Clerks._ | | | - | | | | - 13 |First-class Clerks* | 200 | 10 0 | 300 - 39 |Second-class Clerks | 125 | 7 10 | 180 - 14 |Supplementary Clerks | 70 | 5 0 | 120 - 1 |Inspector of Letter-carriers | 125 | 7 10 | 200 - 1 |Medical Officer | -- | -- | 200 - | | | | - | _EDINBURGH._ | | | - | | | | - 1 |Secretary | 700 | 50 0 | 1,000 - 1 |Chief Clerk | 500 | 20 0 | 600 - 2 |First-class Clerks | 300 | 15 0 | 400 - 3 |Second-class Clerks | 140 | 10 0 | 300 - 1 |Solicitor | -- | -- | 400 - 1 |Accountant* | 500 | 20 0 | 600 - 1 |Examiner* | 325 | 20 0 | 425 - 1 |Controller of Sorting Office | 450 | 20 0 | 550 - 3 |Deputy Controllers | 280 | 10 0 | 350 - 1 |Inspector of Letter-carriers | 125 | 7 10 | 200 - 1 |Medical Officer | -- | -- | 150 - | | | | - | _General Body of Clerks._ | | | - | | | | - 12 |First-class Clerks | 200 | 10 0 | 300 - 30 |Second-class Clerks | 125 | 7 10 | 180 - 9 |Probationary Clerks, | | | - | 5s. a day | | | - ----------------------------------------------------------------------- - - -APPOINTMENTS, WITH SALARIES, OF THE FIVE PRINCIPAL PROVINCIAL -ESTABLISHMENTS IN ENGLAND AND SCOTLAND. - -(_Extracted from the Estimates of 1864-5._) - - --------+---------------------+--------+---------------------------------- - Number | |Poundage| Salary of Office. - of |Designations. |allowed.|-----------+---------+------------ - Persons.| |[213] | Minimum |Annual | Maximum - | | |per Annum. |Increase |per Annum. - --------+---------------------+--------+-----------+---------+------------ - | | | | | - |_Liverpool Office._ | L | L | L s. d.| L - | | | | | - 1 |Postmaster | 730 | -- | -- | 1,000 - 1 |Chief Clerk | -- | 400 |20 0 0 | 500 - 2 |Principal Clerks | -- | 200 |10 0 0 | 300 - 1 |{Controller of} | -- | 300 |10 0 0 | 400 - |{Sorting Office} | | | | - 5 |Assistant Controllers| -- | 200 | 5 0 0 | 250 - 1 |{Inspector of } | | | | - |{Letter-carriers} | -- | 125 | 7 10 0 | 200 - 2 |Assistant Inspectors | -- | 80 | 5 0 0 | 120 - 8 |First-class Clerks | -- | 150 | 5 0 0 | 200 - 16 |Second-class Clerks | -- | 100 | 4 0 0 | 140 - 15 |Third-class Clerks | -- | 60 | 3 0 0 | 100 - 23 |First-class Sorters | -- |31s. a week| 2 12 0 |35s. a week. - 23 |Second-class Sorters | -- |26s. " | 2 12 0 |30s. " - 46 |Third-class Sorters | -- |22s. " | 1 6 0 |25s. " - 93 |Fourth-class Sorters | -- |18s. " | 1 6 0 |21s. " - |{Allowance to a } | -- | -- | -- |90l. a-year. - |{Medical Officer} | | | | - | | | | | - |_Manchester Office._ | | | | - | | | | | - 1 |Postmaster | 790 | -- | -- | 700 - 1 |Chief Clerk | -- | -- | -- | 450 - 5 |Principal Clerks | -- | 200 | 7 10 0 | 250 - 5 |First-class Clerks | -- | 150 | 5 0 0 | 200 - 10 |Second-class Clerks | -- | 100 | 5 0 0 | 150 - |Medical Officer | -- | -- | -- | 80 - 1 |{Inspector of } | | | | - |{Letter-carriers} | -- | 150 | 7 10 0 | 200 - 2 |Assistant ditto | -- | 80 | 5 0 0 | 120 - |Sorting Clerks:-- | | | | - 20 | First-class | -- |31s. a week| 3 18 0 |38s. a week. - 37 | Second-class | -- |21s. " | 2 12 0 |30s. " - 116 |Letter Carriers | -- |18s. " | 1 6 0 |23s. " - | | | | | - | _Glasgow Office._ | | | | - | | | | | - 1 |Postmaster | 673 | -- | -- | 700 - 1 |{Controller of } | | | | - |{Sorting Office} | -- | 200 |10 0 0 | 300 - 5 |First-class Clerks | -- | 150 | 5 0 0 | 200 - 5 |Second-class Clerks | -- | 100 | 4 0 0 | 140 - 10 |Supplementary Clerks | | 60 | 3 0 0 | 100 - 1 |{Inspector of } | | | | - |{Letter-carriers} | -- | 125 | 7 0 0 | 200 - |{Assistant } | | | | - 2 |{Inspectors of } | -- | 80 | 5 0 0 | 120 - |{Letter-carriers} | | | | - 10 |First-class Sorters | -- |31s. a week| 2 12 0 |35s. a week. - 24 |Second-class Sorters | -- |26s. " | 2 12 0 |30s. " - 29 |Third-class Sorters | -- |22s. " | 1 6 0 |25s. " - 66 |Fourth-class Sorters | -- |18s. " | 1 6 0 |21s. " - 97 |{Auxiliary } | | | | - |{Letter-carriers} | -- | -- | -- | 6s. " - |{Allowance to } | | | | - |{Medical Officer} | -- | -- | -- | 90 - | | | | | - |_Birmingham Office._ | | | | - | | | | | - 1 |Postmaster | 500 | -- | -- | 700 - 3 |Chief Clerks | -- | 150 | 5 0 0 | 230 - 2 |Clerks | -- | 150 | 5 0 0 | 200 - 12 |Ditto | -- | 60 | 5 0 0 | 140 - 1 |{Inspector of } | | | | - |{Letter-carriers} | -- | 125 | 7 10 0 | 180 - |{Assistant } | | | | - 1 |{Inspector of } | | | | - |{Letter-carriers } | -- | 80 | 5 0 0 | 120 - 25 |Sorters | -- |21s. a week| 2 10 0 |35s. a week. - 20 |{Third-class } | | | | - |{Letter-carriers} | -- |22s. " | 1 6 0 |25s. " - 48 |{Fourth-class } | -- |18s. " | 1 6 0 |21s. " - |{Letter-carriers} | | | | - 6 |{Temporary } | -- | -- | -- |18s. " - |{Letter-carriers} | | | | - 5 |Auxiliaries | -- | -- | -- |10s.6d. " - 1 |Medical Officer | -- | -- | -- |60l. a year. - | | | | | - | _Bristol Office._ | | | | - | | | | | - 1 |Postmaster | 325 | -- | -- | 600 - 1 |Chief Clerk | -- | 200 |10 0 0 | 300 - 2 |First-class Clerks | -- | 150 | 5 0 0 | 200 - 7 |Second-class Clerks | -- | 100 | 4 0 0 | 140 - 8 |{Supplementary} | -- | 60 | 3 0 0 | 100 - |{Clerks } | - 1 |{Inspector of } | | | | - |{Letter-Carriers} | -- | 110 | 5 0 0 | 140 - 9 |First-class Sorters | -- |27s. a week| 2 12 0 |33s. a week. - 12 |Second-class Sorters | -- |23s. " | 1 6 0 |26s. " - 10 |Third-class Sorters | -- |19s. " | 1 6 0 |22s. " - 24 |Fourth-class Sorters | -- |16s. " | 1 6 0 |18s. " - 28 |Auxiliaries | -- | -- | -- |10s. 6d. " - 1 |Medical Officer | -- | -- | -- |50l. a year. - --------+---------------------+--------+-----------+---------+------------ - - -INFORMATION RESPECTING OTHER PRINCIPAL PROVINCIAL POST OFFICES. - - ------------------+----------+--------+------+-----------+------------- - |Salary of |Poundage|Staff |Other |Total - Name of Town. |Postmaster|allowed.| of |Subordinate|Expenses of - | | |Clerks|Officers. |Establishment - | | | | |for 1864-5. - ------------------+----------+--------+------+-----------+------------- - | L | L | | | L - Bath | 450 | 155 | 7 | 80 | 4,997 - Brighton | 500 | 210 | 8 | 36 | 3,357 - Birkenhead | 350 | 74 | 6 | 30 | 2,652 - Carlisle | 300 | 68 | 6 | 45 | 3,138 - Derby | 300 | 110 | 5 | 42 | 3,449 - Exeter | 500 | 145 | 13 | 104 | 6,185 - Gloucester | 300 | 72 | 6 | 29 | 2,404 - Hull | 450 | 200 | 15 | 63 | 4,887 - Leeds | 450 | 280 | 12 | 86 | 7,265 - Newcastle-on-Tyne| 450 | 240 | 9 | 54 | 4,318 - Norwich | 380 | 118 | 6 | 68 | 4,453 - Oxford | 331 | 72 | 8 | 23 | 2,362 - Plymouth | 332 | 105 | 6 | 37 | 2,648 - Portsmouth | 360 | 118 | 5 | 23 | 2,104 - Preston | 300 | 105 | 6 | 43 | 2,995 - Sheffield | 400 | 215 | 17 | 57 | 4,708 - Shrewsbury | 400 | 95 | 8 | 68 | 4,830 - Southampton | 450 | 160 | 8 | 52 | 4,415 - Worcester | 320 | 70 | 7 | 40 | 2,514 - York | 400 | 125 | 11 | 70 | 5,059 - | | | | | - Belfast | 340 | 116 | 6 | 47 | 3,407 - Cork | 340 | 105 | 6 | 39 | 2,719 - | | | | | - Aberdeen | 400 | 146 | 10 | 55 | 3,545 - Dundee | 230 | 109 | 5 | 30 | 2,038 - Greenock | 300 | 100 | 7 | 40 | 2,692 - ------------------+----------+--------+------+-----------+------------- - - -FOOTNOTES: - -[213] On the sale of postage-stamps. - - - - -APPENDIX (E). - -AMOUNT OF POSTAGE (including Postage-Stamps sold by the Post-Office and -by the Office of Inland Revenue) during the years 1861 and 1862 at those -Towns in the United Kingdom where the amount was largest. - - - +---------------------+------------- -+----------------+ - | | 1861 | 1862 | - +---------------------+------------- -+----------------+ - | | | | - | _ENGLAND._ | L | L | - | | | | - | Bath | 17,795 | 18,433 | - | Birmingham | 48,818 | 50,272 | - | Bradford, Yorkshire | 17,098 | 19,640 | - | Brighton | 21,945 | 22,579 | - | Bristol | 33,865 | 35,720 | - | Cheltenham | 11,834 | 12,315 | - | Exeter | 16,334 | 16,739 | - | Hull | 20,561 | 20,819 | - | Leeds | 30,641 | 32,736 | - | Leicester | 10,420 | 11,238 | - | Liverpool | 115,268 | 117,676 | - | London | 979,662[214] | 1,033,268[215] | - | Manchester | 102,263 | 98,650 | - | Newcastle-on-Tyne | 24,844 | 25,998 | - | Norwich | 12,740 | 12,997 | - | Nottingham | 12,237 | 13,376 | - | Plymouth | 11,520 | 11,493 | - | Sheffield | 20,364 | 21,188 | - | Southampton | 15,182 | 15,852 | - | York | 13,368 | 13,850 | - | | | | - | _IRELAND._ | | | - | | | | - | Belfast | 18,431 | 19,189 | - | Cork | 13,418 | 13,568 | - | Dublin | 67,458 | 65,199 | - | | | | - | _SCOTLAND._ | | | - | | | | - | Aberdeen | 15,283 | 16,326 | - | Edinburgh | 73,863 | 74,569 | - | Glasgow | 70,476 | 73,809 | - +---------------------+------------- -+----------------+ - - -FOOTNOTES: - -[214] Including L163,837 for postage charged on Public Departments. - -[215] Including L149,202 for postage charged on Public Departments. - - - - -APPENDIX (F). - - -CONVEYANCE OF MAILS BY RAILWAY. - -(_Estimates_ 1863-4). - - _Conveyance of Mails by Railway _Amount required - in England and Wales, viz._:-- for_ 1864-5. - - L - By the Birkenhead Railway 2,500 - " Bristol and Exeter 9,875 - " Chester and Holyhead 30,200 - " Cockermouth and Workington 104 - " Colne Valley 15 - " Cowes and Newport 23 - " Cornwall 5,500 - " Great Northern 9,877 - " Great Western 49,829 - " Great Eastern 21,367 - " Knighton 120 - " Lancaster and Carlisle 18,206 - " Lancashire and Yorkshire 6,900 - " Leominster and Kington 300 - " Llanelly 40 - " London, Brighton, and South Coast 1,890 - " London, Chatham, and Dover 94 - " London and North Western 82,416 - " London and South Western 21,620 - " Manchester and Altrincham 60 - " Manchester, Sheffield, and Lincolnshire 2,600 - " Maryport and Carlisle 841 - " Midland 35,190 - " Monmouthshire 91 - " London, Tilbury, and Southend 25 - " North Eastern 39,177 - " North Staffordshire 712 - " North Union 4,878 - " Oystermouth 40 - " Oldham and Guide Bridge 20 - " Seaham and Sunderland 70 - " Shrewsbury and Hereford 2,031 - " Shrewsbury, Borth, &c. 2,180 - " Shropshire Union Railway 2,085 - " South Devon 7,479 - " South Eastern 23,635 - " South Staffordshire 45 - " South Yorkshire 18 - " Stockton and Darlington 1,311 - " Taff Vale 1,000 - " Tenbury 8 - " West Cornwall 1,500 - " West Hartlepool 17 - " Whitehaven Junction 364 - " Allowance for probable variation of Awards or - Agreements 19,313 - -------- - 405,566 - - The Irish Railway Service (the principal recipients being - the Great Southern and Western L30,982, Midland - and Great Western L15,208, Belfast and - Dublin Junction L5,917, Dublin and Drogheda, - L4,485) requires 86,833 - - The Scotch Railway Service (the principal items being the - Caledonian L28,497, the Scottish Central L13,068, - the Scottish North Eastern L12,000, and the - Great North of Scotland L7,584) requires 79,754 - -------- - Total for conveyance of Mails by Railway L564,102 - - - - -APPENDIX (G). - - -MANUFACTURE OF POSTAGE-LABELS AND ENVELOPES. - -(_From the Estimates of 1864-5._) - - --------+--------------------------------------------------+--------- - _Number | |_ Amount - of | |required - Persons | | for_ - | | 1864-5. - --------+--------------------------------------------------+--------- - | | L - 1 | Controller | 500 - 1 | Assistant-Controller | 300 - 1 | Assistant-Superintendent of Postage Stamping | 200 - 1 | Clerk | 120 - 1 | Superintendent of Printing Label-stamps | 175 - 1 | " Perforating " | 100 - 1 | Foreman of Embossing Machines, 42_s._ per week | 109 - 1 | Packer, at 25_s._ per week | 65 - 3 | Tellers, from 18_s._ to 30_s._ per week | 211 - 6 | Assistant-Telling Boys, from 7_s._ to 12_s._ per | - | week | 127 - 24 | Boys for working Machines, from 4_s._ to 12_s._ | - | per week | 433 - | Allowance to the Accountant's Department for | - | keeping the Accounts, to the Receiver- | - | General's and to the Warehouse-keeper's | - | Departments | 1,050 - | | ------ - | Total Salaries, &c. | 3,390 - | | - | Poundage to Distributors and Sub-Distributors | 4,600 - | Paper for Labels and Envelopes, Printing | - | and Gumming Labels, and Folding and | - | Gumming Envelopes | 18,500 - | Postage and Carriage of Parcels | 450 - | Tradesmen's Bills | 400 - | Miscellaneous Expenses | 500 - | Estimate of additional expenditure for increase | - | of business | nil. - | | ------ - | Total amount required for the | - -- | Manufacture of Postage-Labels | - 41 | and Envelopes | 27,840 - --------+--------------------------------------------------+--------- - - - - -APPENDIX (H). - - -The following important document, published by Sir Rowland Hill on his -resignation of the Secretaryship of the Post-Office, and circulated -privately, is deserving of careful study, as giving the results of the -penny-postage reform up to the latest date:-- - - - RESULTS OF POSTAL REFORM. - - Before stating the results of postal reform, it may be convenient - that I should briefly enumerate the more important organic - improvements effected. They are as follows:-- - - 1. A very large reduction in the rates of postage on all - correspondence, whether inland, foreign, or colonial. As instances - in point, it may be stated that letters are now conveyed from any - part of the United Kingdom to any other part--even from the Channel - Islands to the Shetland Isles--at one-fourth of the charge - previously levied on letters passing between post towns only a few - miles apart;[216] and that the rate formerly charged for this slight - distance, viz. fourpence--now suffices to carry a letter from any - part of the United Kingdom to any part of France, Algeria included. - - 2. The adoption of charge by weight, which, by abolishing the charge - for mere enclosures, in effect largely extended the reduction of - rates. - - 3. Arrangements which have led to the almost universal resort to - prepayment of correspondence, and that by means of stamps. - - 4. The simplification of the mechanism and accounts of the - Department generally by the above and other means. - - 5. The establishment of the book-post (including in its operation - all printed and much MS. matter) at very low rates, and its modified - extension to our colonies and to many foreign countries. - - 6. Increased security in the transmission of valuable letters - afforded, and temptation to the letter-carriers and others greatly - diminished, by reducing the registration fee from 1_s._ to 4_d._, by - making registration of letters containing coin compulsory, and by - other means. - - 7. A reduction to about one-third in the cost--including postage--of - money-orders, combined with a great extension and improvement of the - system. - - 8. More frequent and more rapid communication between the metropolis - and the larger provincial towns, as also between one provincial town - and another. - - 9. A vast extension of the rural distribution--many thousands of - places, and probably some millions of inhabitants, having, for the - first time, been included within the postal system. - - 10. A great extension of free deliveries. Before the adoption of - penny postage many considerable towns, and portions of nearly all - the larger towns, had either no delivery at all, or deliveries on - condition of an extra charge. - - 11. Greatly increased facilities afforded for the transmission of - foreign and colonial correspondence, by improved treaties with - foreign countries, by a better arrangement of the packet service, by - sorting on board, and other means. - - 12. A more prompt despatch of letters when posted, and a more prompt - delivery on arrival. - - 13. The division of London and its suburbs into ten postal - districts, by which, and other measures, communication within the - twelve-miles circle has been greatly facilitated, and the most - important delivery of the day has, generally speaking, been - accelerated as much as two hours. - - 14. Concurrently with these improvements, the condition of the - _employes_ has been materially improved; their labours, especially - on the Sunday, having been very generally reduced, their salaries - increased, their chances of promotion augmented, and other important - advantages afforded them. - - - RESULTS. - - My pamphlet on "Post-Office Reform" was written in the year 1836. - During the preceding twenty years, viz. from 1815 to 1835 inclusive, - _there was no increase whatever in the Post-Office revenue, whether - gross or net_, and therefore, in all probability, none in the number - of letters; and though there was a slight increase in the revenue, - and doubtless in the number of letters, between 1835 and the - establishment of penny postage early in 1840--an increase chiefly - due, in my opinion, to the adoption of part of my plan, viz. the - establishment of day mails to and from London--yet, during the whole - period of twenty-four years immediately preceding the adoption of - penny postage, the revenue, whether gross or net, and the number of - letters, were, in effect, stationary. - - Contrast with this the rate of increase under the new system, which - has been in operation during a period of about equal length. In the - first year of penny postage the letters more than doubled; and - though since then the increase has, of course, been less rapid, yet - it has been so steady that, notwithstanding the vicissitudes of - trade, every year, without exception, has shown a considerable - advance on the preceding year, and the first year's number is now - nearly quadrupled. As regards revenue, there was, of course, at - first a large falling off--about a million in gross, and still more - in net revenue. Since then, however, the revenue, whether gross or - net, has rapidly advanced, till now it even exceeds its former - amount, the rate of increase, both of letters and revenue, still - remaining undiminished. - - In short, a comparison of the year 1863 with 1838 (the last complete - year under the old system) shows that the number of chargeable - letters has risen from 76,000,000 to 642,000,000; and that the - revenue, at first so much impaired, has not only recovered its - original amount, but risen, the gross from 2,346,000_l._ to about - 3,870,000_l._ and the net from 1,660,000_l._ to about - 1,790,000_l._[217] - - The expectations I held out before the change were, that eventually, - under the operation of my plans, the number of letters would - increase fivefold, the gross revenue would be the same as before, - while the net revenue would sustain a loss of about 300,000_l._ The - preceding statement shows that the letters have increased, not - fivefold, but nearly eight and a half fold; that the gross revenue, - instead of remaining the same, has increased by about 1,500,000_l._; - while the net revenue, instead of falling 300,000_l._, has risen - more than 100,000_l._ - - While the revenue of the Post-Office has thus more than recovered - its former amount, the indirect benefit to the general revenue of - the country, arising from the greatly increased facilities afforded - to commercial transactions, though incapable of exact estimate, must - be very large. Perhaps it is not too much to assume that, all things - considered, the vast benefit of cheap, rapid, and extended postal - communication has been obtained, even as regards the past, without - fiscal loss. For the future, there must be a large and - ever-increasing gain. - - The indirect benefit referred to above is partly manifested in the - development of the money-order system, under which, since the year - 1839, the annual amount transmitted has risen from 313,000_l._ to - 16,494,000_l._--that is, fifty-two fold. - - An important collateral benefit of the new system is to be found in - the cessation of that contraband conveyance which once prevailed so - far that habitual breach of the postal law had become a thing of - course. - - It may be added, that the organization thus so greatly improved and - extended for postal purposes stands available for other objects, and - passing over minor matters, has already been applied with great - advantage to the new system of savings' banks. - - Lastly, the improvements briefly referred to above, with all their - commercial, educational, and social benefits, have now been adopted, - in greater or less degree--and that through the mere force of - example--by the whole civilized world. - - I cannot conclude this summary without gratefully acknowledging the - cordial co-operation and zealous aid afforded me in the discharge of - my arduous duties. I must especially refer to many among the - superior officers of the Department--men whose ability would do - credit to any service, and whose zeal could not be greater if their - object were private instead of public benefit. - - ROWLAND HILL. - - HAMPSTEAD, - _Feb. 23rd, 1864_. - - - R. CLAY, SON, AND TAYLOR, PRINTERS, LONDON. - - - - -FOOTNOTES: - -[216] When my plan was published, the lowest General Post rate was -fourpence; but while the plan was under the consideration of Government -the rate between post towns not more than eight miles asunder was -reduced from fourpence to twopence. - -[217] In this comparison of revenue, the mode of calculation in use -before the adoption of penny-postage has of course been retained--that -is to say, the cost of the packets on the one hand, and the produce of -the impressed newspaper stamps on the other, have been excluded. The -amounts for 1863 are, to some extent, estimated, the accounts not having -as yet been fully made up. - - - - - * * * * * * - - - - -Transcriber's note: - - A missing reference to footnote [83] was inserted. - - The following is a list of changes made to the original. - The first line is the original line, the second the corrected one. - - been the permanent arrangements for the transmision of the - been the permanent arrangements for the transmission of the - - Nothwithstanding the losses he must have suffered - Notwithstanding the losses he must have suffered - - wafer or wax, or even if totally unfastened by either. "At - wafer or wax, or even if totally unfastened by either. At - - rusely no argument against a State monopoly of letter-carrying. - surely no argument against a State monopoly of letter-carrying. - - Rev. Sydn Smith, Mr. McCullagh. - Rev. Sydney Smith, Mr. McCullagh. - - it might be desirable, but impracticable" (10,939). "Most - it might be "desirable, but impracticable" (10,939). "Most - - offices; (3) a hourly delivery of letters instead of one every - offices; (3) an hourly delivery of letters instead of one every - - vender, and how trade--retail at any rate--is fostered by it. - vendor, and how trade--retail at any rate--is fostered by it. - - the parties concerned, but the depositor run the risk of - the parties concerned, but the depositor ran the risk of - - Thus, letters addressed to Newport should alway give the - Thus, letters addressed to Newport should always give the - - A singular accident befel one of these letter-boxes (1862) in Montrose. - A singular accident befell one of these letter-boxes (1862) in Montrose. - - every town and village in the kingdom, having any correpondence - every town and village in the kingdom, having any correspondence - - - -***END OF THE PROJECT GUTENBERG EBOOK HER MAJESTY'S MAILS*** - - -******* This file should be named 42129.txt or 42129.zip ******* - - -This and all associated files of various formats will be found in: -http://www.gutenberg.org/dirs/4/2/1/2/42129 - - - -Updated editions will replace the previous one--the old editions -will be renamed. - -Creating the works from public domain print editions means that no -one owns a United States copyright in these works, so the Foundation -(and you!) can copy and distribute it in the United States without -permission and without paying copyright royalties. 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