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diff --git a/42983-0.txt b/42983-0.txt new file mode 100644 index 0000000..343f99f --- /dev/null +++ b/42983-0.txt @@ -0,0 +1,11509 @@ +*** START OF THE PROJECT GUTENBERG EBOOK 42983 *** + +Transcriber's Notes: + +(1) Obvious spelling, punctuation, and typographical errors have been +corrected. + +(2) Italic text is denoted by _underscores_. + +(3) Table V in the Appendix has been split into two parts (Scotland and +Ireland), in view of its page width. + +____________________________________________ + + + + +THE HISTORY OF +THE BRITISH POST OFFICE + +BY +J. C. HEMMEON, PH.D. + +_PUBLISHED FROM THE INCOME OF THE +WILLIAM H. BALDWIN, JR., 1885, FUND_ + +[Illustration] + +CAMBRIDGE +HARVARD UNIVERSITY +1912 + + + + +COPYRIGHT, 1912, BY THE PRESIDENT AND FELLOWS OF HARVARD COLLEGE + +ALL RIGHTS RESERVED + +_Published January 1912_ + + + + +PREFACE + + +In justice to those principles which influenced the policy of the Post +Office before the introduction of penny postage, it is perhaps +unnecessary to call attention to the fact that no opinion as to their +desirability or otherwise is justifiable which does not take into +consideration the conditions and prejudices which then prevailed. Some +of the earlier writers on the Post Office have made the mistake of +condemning everything which has not satisfied the measure of their own +particular rule. If there is anything that the historical treatment of a +subject teaches the investigator it is an appreciation of the fact that +different conditions call for different methods of treatment. For +example, the introduction of cheap postage was possibly delayed too +long. But during the era of high postal rates a large net revenue was of +primary importance, nor were those conditions present which would have +made low rates a success. + +The consideration of such debatable subjects as the telegraph system of +the Postal Department and the department's attitude toward the telephone +companies, as well as the intention of the Post Office to acquire the +business of the latter, must necessarily give rise to controversy. +Thanks to the magnificent net revenue obtained from letters in the +United Kingdom the department has been able to lose a good deal of money +by the extension of its activities into the realm of affairs not purely +postal. Possibly a _democratic_ type of government should, from the +financial point of view, interfere least in the direct management of +economic institutions, on account of the pressure which can easily be +brought to bear upon it for the extension of such institutions on other +than economic grounds. If non-economic principles are to be substituted +in justifying the initiation or increase of government ownership, a +popular form of government seems the least suitable for the presentation +of such as shall be fair to all concerned, not to mention the difficult +problem of dealing with those members of the civil service who do not +hesitate to make use of their political power to enforce their demands +upon the government. + +In the treatment of a subject so complex as the history of the British +Post Office it is not easy to decide how far its presentation should be +strictly chronological or how far it should be mounted in "longitudinal +sections," exposing its most salient features. Both methods have their +advantages and their disadvantages. In order to obtain what is useful in +both, I have described chronologically in the first four chapters the +progress of the Post Office, while in the remaining chapters I have +examined separately some of the more important aspects of postal +development. But I am aware that by this compromise I have not entirely +escaped the dangers of abrupt transitions from subject to subject and of +the accumulation of dry details. I can only plead in extenuation, in the +first place the nature of my subject, an institution with a long and +varied history, characterized by the steady extension of its field of +activity, and in the second place my desire to make my study as thorough +as possible, even at the risk of some sacrifice of unity and interest of +treatment. + +The material for this sketch has been obtained from the Harvard +University Library, the Boston Public Library, and the Canadian +Parliamentary Library. Work was also done in the Library of the British +Museum. I wish to acknowledge the help I have received from the advice +and criticism of Professor Gay, under whose supervision the larger part +of this history was prepared. + + J. C. HEMMEON. + + + + + CONTENTS + + + CHAPTER I + + THE POSTAL ESTABLISHMENT SUPPORTED DIRECTLY BY THE STATE--PRIOR + TO 1635 3 + + +Methods of postal communication in vogue before the establishment of the +Post Office. The first Postmaster-General and his duties. Alternative +systems. The posts in Elizabeth's reign. Appointment of a Foreign +Postmaster-General. Rivalry between the two Postmasters-General. +Witherings as Foreign Postmaster-General. + + +CHAPTER II + + THE POSTAL ESTABLISHMENT A SOURCE OF REVENUE TO THE STATE--1635-1711 13 + +Condition of the postal establishment at the beginning of the +seventeenth century. Witherings' project adopted. Disturbance produced +in the Post Office by the struggle between the two Houses of Parliament. +Rival claimants for the office of Postmaster-General. The Civil War and +its effects upon the Post Office. The Post Office during the +Commonwealth. Farming of the Post Office. Complaints about the delivery +of letters after the Restoration. Condition of the postal establishment +at the close of the seventeenth century. Dockwra's London Penny Post. +Extension of the foreign postal service. Conditions in Ireland, +Scotland, and the American Colonies. + + +CHAPTER III + + THE POSTAL ESTABLISHMENT AN INSTRUMENT OF TAXATION--1711-1840 34 + +The Post Office Act of 1711. The Post Office as a whole ceases to be +farmed. Allen undertakes the farm of the bye and cross posts. +Improvements in postal communications during the first half of the +eighteenth century. Controversy over the delivery of letters. +Competition from post coaches. Establishment of mail coaches by Palmer. +Abuses in the Post Office and their reform. Opening and detention of +letters. Franking of newspapers in certain cases and other privileges +abolished. The Newspaper and Dead Letter Offices. Registration of +letters. Money Order Office. Changes in the London Penny Post. +Consolidation of different branches of the Post Office in London. Dublin +and Edinburgh Penny Posts. Question of Sunday posts. Conditions under +which mail coaches were supplied. Conveyance of mails by railways. +Condition of the postal establishment during the first half of the +nineteenth century. Irish Post Office and postal rates. Scotch Post +Office. Sir Rowland Hill's plan. Investigation of postal affairs by a +committee. Report of committee. Adoption of inland penny postage. + + +CHAPTER IV + + THE POSTAL ESTABLISHMENT AN INSTRUMENT OF POPULAR COMMUNICATION--SINCE + 1840 63 + +Reductions in rates of postage, inland, colonial and foreign; and +resultant increase in postal matter. Insurance and registration of +letters. Failure of attempt to introduce compulsory prepayment of +postage. Perforated postage stamps. Free and guaranteed delivery of +letters in rural districts. Express or special delivery of letters. +Newspaper postage rates. Book or Halfpenny Post. Pattern and Sample +Post. Use of postcards. Parcel Post. Question of "cash on delivery." +Postal notes. Their effect upon the number of money orders. Savings +banks. Assurance and annuity privileges. Reform in these offices by Mr. +Fawcett. Methods of conveyance of the mails. Condition of postal +employees. Sunday labour. Dissatisfaction of employees with committee of +1858. Mr. Fawcett's reforms in 1881 and 1882. Mr. Raikes' concessions in +1888, 1890, and 1891. Appointment of Tweedmouth Committee in 1895 gives +little satisfaction to the men. Appointment of a departmental committee. +Grievances of the men. Report of committee accepted only in part by the +Postmaster-General. Continued demand of the men for a select committee. +Concessions granted to the men by Mr. Buxton, the Postmaster-General. +Select committee appointed. Their report adopted by Mr. Buxton. +Continued dissatisfaction among the men. + + +CHAPTER V + + THE TRAVELLERS' POST AND POST HORSES 89 + +Horses provided by the postmasters. Complaints concerning the letting of +horses. Monopoly in letting horses granted to the postmasters. Reforms +during Witherings' administration. Fees charged. Postmasters' monopoly +abridged. Licences required and duties levied. These duties let out to +farm. Licences and fees re-adjusted. + + +CHAPTER VI + + ROADS AND SPEED 97 + +Post roads in the sixteenth century. Speed at which mails were carried +in the sixteenth century. Abuses during first part of the seventeenth +century. New roads opened. Roads in Ireland and Scotland. First cross +post road established in 1698. Improvement in speed. Delays in +connection with Irish packet boats. Increased speed obtained from use of +railways. + + +CHAPTER VII + + SAILING PACKETS AND FOREIGN CONNECTIONS 109 + +Establishment of first regular sailing packets. Sailing packets in the +seventeenth century. Difficulty with the Irish Office. Postal +communications with the continent during the sixteenth century. +Witherings improves the foreign service. Agreements with foreign +postmasters-general. Expressions of dissatisfaction. Treaties with +France. King William's interest in the Harwich sailing packets. Effect +of the war with France. Postal communications with France improved. +Dummer's West Indian packet boats. Other lines. Increase in number of +sailing packets. Steam packets introduced by the Post Office. They are +badly managed and prove a financial loss. Report against government +ownership of the steam packets. Ship letter money. Question of carriage +of goods. Trouble with custom's department adjusted. Methods of +furnishing supplies for the packet boats. Abuses in the sailing packet +service reformed. Expenses. Sailing packets transferred to the +Admiralty. Committee reports against principle of government ownership +of packet boats and payment of excessive sums to contractors. +Abandonment of principle of government ownership. General view of packet +services in existence at middle of the nineteenth century. Contracts +with steamship companies. Controversy with the companies. General view +of the packet service in 1907 with principles adopted in concluding +contracts. Expenses of sailing packets. + + +CHAPTER VIII + + RATES AND FINANCE 135 + +Foreign rates, 1626. First inland rates, 1635. Rates prescribed by +Council of State, 1652. Rates collected by the Farmers of the Posts. +First rates established by act of Parliament, 1657. Slightly amended, +1660. Separate rates for Scotland, 1660. Scotch rates, 1695. Rates to +and within Jamaica. In American Colonies, 1698. Increased rates, inland, +colonial and foreign, 1711. Controversy over rates on enclosures. Slight +reductions in rates, 1765. Increases in 1784, 1796, 1801. In Ireland, +1803. For United Kingdom a further increase, 1805. Culminating point of +high rates, 1812. Changes in Irish rates, 1810, 1813, 1814. Rates on +"ships' letters," 1814. Irish rates to be collected in British currency, +1827. Reduction in rates between England and France, 1836. Consolidating +act of 1837. Rates by contractors' packet boats, 1837. Rates charged +according to weight in certain cases, 1839. Inland penny postage adopted +and basis of rate-charging changed to weight, 1840. Franking privilege, +1652. Abused. Attempt to curtail the use of franks only partially +successful. Curtailment so far as members of Parliament are concerned. +Estimated loss from franking. Enquiry into question of franking. Further +attempts to control the abuse prove fruitless. Extension of franking +privilege especially on newspapers. Abolition of franking privilege, +1840. Reductions in letter, newspaper, and book post rates. Re-directed +letter and registration fees. Inland parcel post established. Postcards +introduced. Concessions of 1884 and Jubilee concessions. Foreign and +colonial rates reduced. Reductions in money order and postal note rates. +Telegraph money order rates. + +Finances of the Post Office before the seventeenth century. From +beginning of seventeenth century to Witherings' reforms. From 1635 to +1711. During the remainder of the eighteenth century. Finances of Scotch +and Irish Posts. Of the London Penny Post. From bye and cross post +letters. Finances of the Post Office from the beginning of the +nineteenth century to 1840. Since the introduction of inland penny +postage. + + +CHAPTER IX + + THE QUESTION OF MONOPOLY 189 + +Rival methods available for the conveyance of letters. Government's +monopolistic proclamation the result of an attempt to discover +treasonable correspondence. Competition diminishes under Witherings' +efficient management. House of Commons declares itself favourable to +competition. Changes its attitude when in control of the posts. Monopoly +of government enforced more rigorously. Carriers' posts largely +curtailed. London's illegal Half-penny Post. Attempts to evade the +payment of postage very numerous during the first half of the nineteenth +century. Different methods of evasion outlined. + + +CHAPTER X + + THE TELEGRAPH SYSTEM AS A BRANCH OF THE POSTAL DEPARTMENT 202 + +The telegraph companies under private management. Proposals for +government ownership and Mr. Scudamore's report. Conditions under which +the telegraph companies were acquired. Public telegraph business of the +railways. Cost of acquisition. Rates charged by the government. +Reduction in rates in 1885. Guarantee obligations reduced. Underground +lines constructed. Telegraphic relations with the continent. Position of +the government with reference to the wireless telegraph companies. +Attempts to place the government telegraphs on a paying basis do not +prove a success. Financial aspect of the question. Reasons given for the +lack of financial success. + +CHAPTER XI + + THE POST OFFICE AND THE TELEPHONE COMPANIES 219 + +Telephones introduced into England. Judicial decision in favour of the +department. Restricted licences granted the companies. Feeble attempt on +the part of the department to establish exchanges. Difficulties +encountered by the companies. Popular discontent with the policy of the +department leads to granting of unrestricted licences. Way-leave +difficulties restrict efficiency of the companies. Agreement with +National Telephone Company and acquisition of the trunk lines by the +department. Demand for competition from some municipalities leads to +granting of licences to a few cities and towns. The department itself +establishes a competing exchange in London. History of the exchanges +owned and operated by the municipalities. Struggle between the London +County Council and the company's exchange in London. Relation between +the company's and the department's London exchanges. Agreement with the +company for the purchase of its exchanges in 1911. Financial aspect of +the department's system. + + +CHAPTER XII + + CONCLUSION 237 + + +APPENDIX + + EXPENDITURE AND REVENUE TABLES 241 + +BIBLIOGRAPHY 253 + +INDEX 259 + + + + +TABLE OF ABBREVIATIONS + + + Acc. & P. Accounts and Papers. + A. P. C. Acts of the Privy Council. + Add. Additional. + Cal. B. P. Calendar of Border Papers. + Cal. S. P. Calendar of State Papers. A. & W. I., Col., D., + For., and Ire., added to Cal. S. P., indicate + respectively to the America and West Indies, + Colonial, Domestic, Foreign, and Ireland sections + of this series. + Cal. T. B. Calendar of Treasury Books. + Cal. T. P. Calendar of Treasury Papers. + Cal. T. B. & P. Calendar of Treasury Books and Papers. + D. N. B. Dictionary National Biography. + Fin. Rep., 1797. Finance Reports 1797-98. + Hist. MSS. Com. Royal Commission on Historical Manuscripts. + Jo. H. C. Journals of the House of Commons. + Jo. H. L. Journals of the House of Lords. + Joyce. Joyce, H. The History of the Post Office to 1836. + L. & P. Hen. VIII. Letters and Papers, Foreign and Domestic, + Henry VIII. + Parl. Deb. Hansard, Parliamentary Debates. + Parl. Papers. Parliamentary Papers. + P. & O. P. C. Proceedings and Ordinances of the Privy Council. + Rep. Commrs. Reports from Commissioners. + Rep. Com. Reports from Committees. + Rep. P. G. Reports of the Postmasters-General. + Scobell, Collect. Scobell, H. A Collection of Acts and Ordinances + made in the Parliament held 3 Nov., 1640 to + 17 Sept., 1656. + + + + +THE HISTORY OF THE BRITISH POST OFFICE + + + + +CHAPTER I + +THE POSTAL ESTABLISHMENT SUPPORTED DIRECTLY BY THE STATE + + +The history of the British Post Office starts with the beginning of the +sixteenth century. Long before this, however, a system of communication +had been established both for the personal use of the King and for the +conveyance of official letters and documents. These continued to be the +principal functions of the royal posts until well on in the seventeenth +century. + +Before the sixteenth century, postal communications were carried on by +royal messengers. These messengers either received stated wages or were +paid according to the length of the journeys they made. We find them +mentioned as early as the reign of King John under the name of _nuncii_ +or _cursores_; and payments to them form a large item in the Household +and Wardrobe accounts of the King as early as these accounts exist.[1] +They travelled the whole of the journey themselves and delivered their +letters personally to the people to whom they were directed. A somewhat +different style of postal service, a precursor of the modern method, was +inaugurated by the fourth Edward. During the war with Scotland he found +himself in need of a speedier and better system of communication between +the seat of war and the seat of government. He accomplished this by +placing horses at intervals of twenty miles along the great road between +England and Scotland. By so doing his messengers were able to take up +fresh horses along the way and his despatches were carried at the rate +of a hundred miles a day.[2] + +[1] _Rep. Com._, 1844, xiv, app., p. 21. + +[2] _Notes and Queries_, 1st series, iii, p. 266. + +From an early period private letters were conveyed by carriers and +travellers both within the kingdom and between it and the Continent. The +Paston letters,[3] containing the correspondence of the different +members of the Paston family, throw some light upon the manner in which +letters were conveyed during the latter half of the fifteenth century. +Judging from such references as we find in the letters themselves, they +were generally carried by a servant,[4] a messenger,[5] or a friend.[6] +The later letters of this series, written towards the close of the +fifteenth century, show that regular messengers and carriers, who +carried letters and parcels, travelled between London and Norwich and +other parts of Norfolk.[7] From the fourteenth century down, we have +instances of writs being issued to mayors, sheriffs, and bailiffs for +the apprehension and examination of travellers, who were suspected of +conveying treasonable correspondence between England and the +Continent.[8] For the most part these letters were carried by servants, +messengers, and merchants.[9] + +[3] These letters were sent principally between London and different +places in Norfolk. + +[4] _The Paston Letters_, ed. J. Gairdner, 1872, nos. 34, 305, 435, 609, +624, 663, 905. + +[5] _Ibid._, nos. 540, 688, 723, 727. + +[6] _Ibid._, nos. 656, 905. + +[7] _Ibid._, nos. 688, 723, 745. + +[8] _Rep. Com._, 1844, xiv, app., p. 96 (68). + +[9] _Cely Papers_, ed. H. E. Malden, 1900, nos. 41, 72, 123, 124, 129, +132. + +Sir Brian Tuke is the first English Postmaster-General of whom we have +any record. The King's "Book of Payments" for the year 1512 contains an +order for the payment of £100 to Sir Brian for his use as Master of the +Posts.[10] As the King's appointed Postmaster, he received a salary of +£66 13_s._ 4_d._[11] He named the postmen, or deputy postmasters as they +were called later, and he was held responsible for the performance of +their duties.[12] All letters carried by the royal postmen were +delivered to him, and after being sorted by him personally were carried +to their destination by the court messengers.[13] The wages of the +postmen varied from 1_s._ to 2_s._ a day according to the number of +horses provided, and they were paid by the Postmaster-General, who had +authority to make all payments to those regularly employed.[14] If +messages or letters were sent by special messengers, their payment +entailed additional expense upon the state and the use of such +messengers, when regular postmen were available, was strongly +discouraged.[15] + +[10] _L. & P. Hen. VIII_, ii, pt. 2, p. 1454. + +[11] _Rep. Com._ 1844, xiv, app., p. 21 (8). + +[12] _Ibid._, 1844, xiv, app., p. 32 (7). + +[13] _L. & P. Hen. VIII_, 1515-18, 64; _ibid._, 1526-28, 4359, 4406; +_ibid._, 1540-41, 540. + +[14] _A. P. C._, 1542-47, p. 20. + +[15] _L. & P. Hen. VIII_, 1535, p. 27. + +In addition to his other duties Sir Brian was supposed to have a general +supervision over the horses used for the conveyance of letters and of +travellers riding on affairs of state. Of course on the regular roads +there were always horses in readiness, provided by the postmen. Where +there were no regular post roads, the townships were supposed to provide +the necessary horses, and it was part of the Postmaster-General's duties +to see that the townships were kept up to the mark.[16] It was largely +on account of the fact that the same horses were used for conveying +travellers and mails that the systems of postal and personal +communication were so closely interwoven as well in England as in +continental countries.[17] + +[16] _Rep. Com._, 1844, xiv, app., p. 32 (7). _A. P. C._, 1542-47, +p. 20. + +[17] A. de Rothschild, _Histoire de la poste aux lettres_, Paris, 1873, +pp. 95-97, 114-15. + +The postmen along the old established routes and on the routes +temporarily established for some definite purpose received a fixed daily +wage. These men were called the ordinary posts.[18] If, however, letters +should arrive in Dover after the ordinary post had left for London, they +were generally sent on at once by a messenger hired for the occasion +only. He was called a special post and was paid only for the work which +he actually performed.[19] Those regular posts, who carried the royal +and state letters between London and the place where the Court might be, +were called "Court Posts."[20] During the sovereign's tours, posts were +always stationed between him and London to carry his and the state's +letters backward and forward. These were called extraordinary posts and +received regular wages while so employed.[21] In addition there were +always messengers employed to carry important despatches to foreign +sovereigns. These received no fixed wages, but were paid according to +the distance travelled and the expenses incurred on the road.[22] + +[18] _L. & P. Hen. VIII_, xiii, 226; _A. P. C._, 1547-50, pp. 111, 278, +307, 319, 413. + +[19] _L. & P. Hen. VIII_, x, 33, 136; xvi, 202, 236, 284; _P. & O. P. +C._, vii, p. 72; _A. P. C._, 1550-52, pp. 56, 79, 108, 225, 270, 298. + +[20] _L. & P. Hen. VIII_, xvi, p. 540; _P. & O. P. C._, vii, p. 133; _A. +P. C._, 1558-70, p. 238. + +[21] _L. & P. Hen. VIII_, xi, 726; _A. P. C._, 1547-50, p. 360; _ibid._, +1592, pp. 128, 150; _Cal. S. P. D._, 1547-80, pp. 599, 637, 677. + +[22] _A.P.C._, 1558-70, pp. 39, 58, 111, 207, 216, 257, 258. + +Apart from his regular duties as outlined above, the Postmaster-General +had little initiative power. He could not on his own responsibility +order new posts to be laid. Such decisions always originated with the +King or the Council and Tuke simply executed their orders.[23] Any +increase in the wages of the posts also required the consent of the King +or Council.[24] + +[23] _L. & P. Hen. VII_, xvi, 540; _A.P.C._ 1556-58, pp. 248, 309. + +[24] _A.P.C._, 1556-58, pp. 136, 188, 385. For instance, in 1557 the +Council issued orders to increase the wages of the London-Berwick posts +from 12_d._ to 16_d._ and eventually to 20_d._ a day; but as soon as +their work had again become normal, their wages were reduced to the old +rate. + +During the sixteenth century there were three ways to send letters +between England and the Continent: by the Royal Post, the Foreigners' +Post, and the Merchant Adventurers' Post, apart from such opportunities +as occasional travellers and messengers offered. The Royal Posts were +presumed to carry only state letters, and consequently the conveyance of +a large part of the private letters fell to the other two. Owing to +industrial and later to religious motives there had been a large +emigration of foreigners from the Continent to England. Edward III had +induced many Flemings to leave their native country in the middle of the +fourteenth century.[25] Froude says, probably with exaggeration, that in +1527 there were 15,000 Flemings in London alone.[26] In the fifteenth +century many Italian artisans came over to reside but not to settle.[27] +They were a thrifty people, who did much to place the industrial life of +England on a better footing, and were probably more intelligent and +better educated than the majority of the English artisans among whom +they settled. It seems therefore only natural that they should seek to +establish a better system of communication between their adopted and +native countries. Their business relations with the cloth markets of the +continental cities made necessary a better and speedier postal system +than was afforded by the Royal Posts. In addition to this, it was only +by act of grace that private letters were carried by Tuke's postmen. In +the opening year of the sixteenth century, by permission of the state, +the foreign merchants in London established a system of posts of their +own between the English capital and the Continent. This was called the +"Foreign or Strangers' Post," and was managed by a Postmaster-General, +nominated by the Italians, Spanish, and Dutch and confirmed by the +Council.[28] These posts were used largely by the English merchants in +spite of considerable dissatisfaction on account of the poor service +afforded and on political grounds. Their grievances were detailed in a +petition to the Privy Council. They considered it unprecedented that so +important a service as the carriage of letters should be in the hands of +men who owed no allegiance to the King. Such a procedure was unheard of +in any of the continental countries. "What check could there be over +treasonable correspondence while the carriage of letters continued to be +in the hands of foreigners and most of them Dutchmen?" In addition they +were not treated so well as were their fellow merchants of foreign +allegiance. Their letters were often retained for several days at a +time, while all others were delivered as soon as they arrived. The +foreign ambassadors could not complain if a change were made, for most +of their correspondence was carried on by special messengers.[29] The +"Strangers' Post" seems to have come to an end after the Proclamation of +1591 was issued, forbidding any but the Royal Posts from carrying +letters to and from foreign countries.[30] + +[25] W. Cunningham, _Growth of English Industry and Commerce_, 1896, i, +pp. 305-306. + +[26] J. A. Froude, _History of England_, 1862, i, p. 127. + +[27] Cunningham, i, p. 430. + +[28] Stow, _London_, 1720, bk. v, p. 401. _Cal. S.P.D._, 1547-80, pp. +312, 321, 432. There was considerable rivalry between them concerning +those nominated for Postmaster-General. See _Cal. S.P.D._, 1547-80, pp. +312, 314. + +[29] Stow, _London_, bk. v, p. 401. + +[30] _Rep. Com._, 1844, xiv, app., p. 36 (14). + +Sir Brian Tuke died in 1545 and was succeeded by Sir John Mason and Mr. +Paget, who acted as joint Postmasters-General. Mr. Paget was the +sleeping partner, and what little was done was by Mason.[31] They were +succeeded in 1568 by Thomas Randolph.[32] He was occasionally sent as +special ambassador to France and during his absence Gascoyne, a former +court post, performed his duties. From Sir Brian's death until the end +of Elizabeth's reign was a period of little advance in postal matters. +The regular posts, and it is with them that our chief interest lies, +appear to have fallen into disuse. The payments for special messengers +are much larger than they had been during Henry's reign. In 1549, a +warrant was issued empowering Sir John Mason to pay £400 to the special +messengers used during the summer. If anything was left, he was +instructed to use it in paying arrears due the ordinary posts.[33] +Elizabeth is generally credited with being economical to the extreme of +parsimony so far as state expenses were concerned. However this may be, +she is responsible for an order to discharge all the regular posts +unless they would serve for half of their old wages.[34] The postmen did +not receive their wages at all regularly. Randolph was accused by the +Governor of Berwick of withholding all of their first year's wages, of +receiving every year thereafter a percentage of their salaries, and of +demanding certain fees from them, all for his personal use. The Governor +considered that Randolph's extortions were largely the cause of the +general inefficiency in the posts,[35] but the accusation may have been +due to personal grudge. At any rate one measure of postal reform may be +credited to Randolph. In 1582, orders were issued to all the +London-Berwick posts to the following effect. Every post on the arrival +of letters to or from the Queen or Council was to fasten a label to the +packet. On this label he was to write the day and hour when the packet +came into his hands and he was to make the same entry in a book kept for +the purpose. He was also to keep two or three good horses in his stable +for the speedier conveyance of such packets.[36] + +[31] _A. P. C._, 1542-47, p. 267; _Rep. Com._, 1844, xiv, app., p. 21 +(8). + +[32] _Ibid._, 1844, xiv, app., p. 21 (11). + +[33] _A. P. C._, 1547-50, p. 360. + +[34] _Cal. S. P. D._, 1547-80, p. 306. + +[35] _Cal. B. P._, 1560-94, p. 299. + +[36] _Cal. S. P. D._, _Add._, 1580-1625, pp. 75-76. + +In 1590, John Lord Stanhope was appointed Postmaster-General by order of +the Queen. The office was given to him for his life and then was to go +to his son for his son's life.[37] Both the Stanhopes were men of +action, but they looked upon their position rather as a means of +enriching themselves than as a trust for the good of the state. They +proved a stumbling block to the advancement of better men and it was not +for sixty years that they were finally swept away to make room for men +of greater ability. In 1621, the elder Stanhope was succeeded by his son +Charles according to the terms of the original patent.[38] It had been +the custom for the Postmasters-General to demand fees and percentages +from their appointees. So lucrative were many of their positions from +the monopoly in letting horses and the receipts from private letters +that many applicants were willing to pay for appointments as deputy +postmasters. The ordinary payments when Lord Charles was at the head of +the posts amounted to 2s. in the pound as poundage and a fee of £2 from +each man. These payments were considered so exorbitant that the Council +ordered them to be reduced.[39] One, Hutchins, entered the lists as the +champion of the postmasters. He himself was one of them and acted as +their solicitor in the contest. Stanhope was glad to compound the case +by the payment of £30. Hutchins gave the Council so much trouble that +they gave orders that "turbulent Hutchins" should cease to act as the +postmasters' solicitor and leave them in peace.[40] His object, however, +seems to have been accomplished so far as Stanhope was concerned. The +struggle with the Paymasters of the Posts was not so successful, for, +supported by a report of the Treasurer, they continued to receive their +shilling in the pound.[41] + +[37] _Cal. S. P. D._, 1581-90, p. 676; _Rep. Com._, 1844, xiv, app., p. +22 (13). + +[38] _Cal. S. P. D._, 1619-23, pp. 238, 404. + +[39] _Ibid._, pp. 568, 572. A postmaster's salary at this time was about +5_s._ a day. (_Ibid._, 1623-25, p. 130.) + +[40] _Ibid._, 1623-25, pp. 117, 130, 153. + +[41] _Ibid._, 1619-23, pp. 567-68. + +By a Privy Council Proclamation issued in 1603, all posts receiving a +daily fee were required to have two leather bags, lined with "bayes" or +cotton, and the post himself was to sound a horn whenever he met any one +on the road or four times in every mile. The packet of letters was not +to be delayed more than fifteen minutes and was to be carried at a rate +of seven miles an hour in summer and five in winter. The time at which +it was delivered into a post's hands and the names and addresses of the +people by whom and to whom it was sent were to be entered in a book kept +for the purpose. All posts and their servants were exempted from being +"pressed" and from attendance at assizes, sessions, inquests, and +musters.[42] + +[42] _Rep. Com._, 1844, xiv, app., p. 38 (18). + +It is doubtful how far the postmasters were held responsible for the +delivery of letters to the persons to whom they were addressed. This did +not become a burning question, however, until after the recognition of +the fact that the letters of private individuals should receive as good +treatment at the hands of the postmen as the letters of the state +officials. Lord Stanhope in 1618 issued an order to the Justices of the +Peace in Southwark to aid the postmaster of that place in the delivery +of letters within six miles.[43] This was followed two years later by a +general order to establish two or three foot-posts in every parish for +the conveyance of letters.[44] + +[43] _Cal. S. P. D._, 1611-18, p. 601. + +[44] Hist. MSS. Com., _Rep._ 15, app., pt. 7, p. 63. + +During the early part of the seventeenth century, Stanhope had employed +a foreigner, de Quester, as one of the King's posts "beyond seas." He +commended himself to the notice of his superiors by his promptitude in +dealing with the foreign letters.[45] In 1619 James appointed him +Postmaster-General for "foreign parts" and henceforth he was his own +master.[46] This was followed four years later by a formal proclamation, +confirming to de Quester and his son the position already granted to the +father.[47] He was to have the sole monopoly of carrying foreign letters +and was to appoint the necessary officials. All persons were formally +prohibited from entrenching upon the privileges granted him in 1619. +From this time until 1635, the foreign and inland posts were under +separate management and the accounts were kept separate until long after +the latter date. Stanhope was unwilling to submit to the curtailment of +his profits, which necessarily followed the appointment of de Quester. +There was much to be said for Stanhope's contention that the patent of +1623 was illegal for, ever since there had been a Postmaster-General, +his duties had extended to the foreign as well as to the inland office. +The question was referred to a committee, composed of the Lord +Chamberlain, one of the Secretaries of State and the Attorney-General, +who decided that Stanhope's patent extended only to the inland +office.[48] The whole question was finally brought before the Court of +King's Bench, which decided the case in favour of Stanhope.[49] This was +in 1625, but de Quester seems to have paid no attention to the decision +for it is certain that he continued to act as Foreign Postmaster until +1629[50] and in 1632 he resigned his patent to Frizell and Witherings. +It can be imagined what must have been the chaotic condition of the +foreign post while this struggle was going on. The Merchant Adventurers +established posts of their own between London and the Continent under +Billingsley. The Council issued the most perplexing orders. First they +forbade Billingsley from having anything to do with foreign letters.[51] +Then they decided that the Adventurers might establish posts of their +own and choose a Postmaster.[52] Then they extended the same privilege +to all merchants. Next this was withdrawn and the Adventurers were +allowed to send letters only to Antwerp, Delft and Hamburg or wherever +the staple of cloth might be.[53] These orders do not seem to have been +passed in full council for, in 1628, Secretary Coke in writing to +Secretary Conway said that "Billingsley, a broker by trade, strives to +draw over to the merchants that power over foreign letters which in all +states is a branch of royal authority. The merchant's purse has swayed +much in other matters but he has never heard that it encroached upon the +King's prerogative until now." He adds "I confess it troubleth me to see +the audacity of men in these times and especially that Billingsley." He +enclosed a copy of an order "made at a full Council and under the Broad +Seal," which in effect was a supersedeas of the place which de Quester +enjoyed.[54] When de Quester resigned in favour of Frizell and +Witherings, the resignation and new appointments were confirmed by the +King.[55] Of these men Witherings was far the abler. He had a plan in +view, which was eventually to place the foreign and inland systems on a +basis unchanged until the time of penny postage. In the meantime he had +to overcome the prejudices of the King and get rid of Frizell. In order +to raise money for the promotion of his plan, Witherings mortgaged his +place. Capital was obtained from the Earl of Arundel and others through +John Hall, who held the mortgage. The King heard of this and ordered +the office to be sequestered to his old servant de Quester and +commanded Hall to make over his interest to the same person.[56] There +were now three claimants for the place, Frizell, Witherings, and de +Quester. Frizell rushed off to Court, where he offered to pay off his +part of the mortgage and asked to have sole charge of the Foreign Post. +"Witherings," he said, "proposes to take charge of all packets of State +if he may have the office, but being a home-bred shopkeeper, without +languages, tainted of delinquency and in dislike with the foreign +correspondents, he is no fit person to carry a trust of such secrecy and +importance."[57] Coke knew better than this, however, and through his +influence Witherings, who had in the meantime paid off the mortgage and +satisfied Frizell's interest, was made sole Postmaster-General for +Foreign Parts.[58] + +[45] _Cal. S. P. D._, 1629-31, pp. 71, 247. + +[46] _Ibid._, 1625-26, p. 231. + +[47] _Rep. Com._, 1844, xiv, app., p. 48 (26). + +[48] _Ibid._, 1844, xiv, app., p. 49 (27); _Cal. S. P. D._, 1625-26, p. +478; Hist. MSS. Com., _Rep._ 12, app. 1, p. 295; _Cal. S. P. D._, +1627-28, p. 405. + +[49] _Cal. S. P. D._, 1627-28, pp. 436, 591. + +[50] _Ibid._, 1625-49, p. 332; 1628-29, pp. 46, 427, 558; 1631-33, p. +384. + +[51] _Cal. S. P. D._, 1603-10, pp. 162, 397, 426, 491, 512, 521, 545, +576, 583, 588, 611. + +[52] _Rep. Com._, 1844, xiv, app., p. 45 (23). + +[53] _Ibid._, 1844, xiv, app., p. 45 (23). + +[54] _Cal. S. P. D._, 1623-25, p. 131. + +[55] _Ibid._, 1625-26, p. 30; _Rep. Com._, 1844, xiv, app., p. 48 (25). + +[56] _Cal. S. P. D._, 1634-35, pp. 11, 38, 48, 389. + +[57] _Ibid._, 1625-49, p. 489. + +[58] _Ibid._, 1635-36, p. 32; 1634-35, p. 48. + +With Witherings' advent a new period of English postal history begins. +His dominant idea was to make the posts self-supporting and no longer a +charge to the state. It had been established as a service for the royal +household and continued as an official necessity. The letters of private +individuals had been carried by its messengers but the state had derived +no revenue for their conveyance. The convenient activity of other +agencies for the carriage of private letters was not only tolerated but +officially recognized. The change to a revenue-paying basis tended +naturally to emphasize the monopolistic character of the government +service.[59] + +[59] See chapter IX. + + + + +CHAPTER II + +THE POSTAL ESTABLISHMENT A SOURCE OF REVENUE TO THE STATE + +1633-1711 + + +For some time there had been dissatisfaction with the services rendered +by the inland posts. It was said that letters would arrive sooner from +Spain and Italy than from remote parts of the kingdom of England.[60] +The only alternative was to send them by express and this was not only +expensive but was not looked upon with favour by the Postmaster-General. +The five great roads from London to Edinburgh, Holyhead, Bristol, +Plymouth, and Dover were in operation. From the Edinburgh Road there +were branches to York and Carlisle, from the Dover Road to Margate, +Gravesend, and Sandwich, and from the Plymouth Road to Falmouth, but the +posts were slow and the rates for private letters uncertain.[61] In +1633, a project was advanced for the new arrangement of the Post Office. +The plan was not entirely theoretical, for an attempt was made to show +that it would prove a financial success. There were about 512 market +towns in England. It was considered that each of these would send 50 +letters a week to London and as many answers would be returned. At 4_d._ +a day for each letter, this would amount to £426 a week. The charge for +conveyance was estimated at £37 a week, leaving a weekly profit of £389, +from which £1500 a year for the conveyance of state letters and +despatches must be deducted. Letters on the northern road were to pay +2_d._ for a single and 4_d._ for a double letter, to Yorkshire and +Northumberland 3_d._, and to Scotland 8_d._ a letter. The postmasters in +the country were not to take any charge for a letter except one penny +for carriage to the next market town.[62] It is probable that this +project originated with Witherings. At any rate it resembles closely the +plan which was introduced by him two years later. He had already +reformed the foreign post by appointing "stafetti" from London to Dover +and through France and they had proved so efficient as to disarm the +opposition even of the London merchants. His name is without doubt the +most distinguished in the annals of the British Post Office. Convinced +that the carriage of private letters must be placed upon a secure +footing, he laid the foundation for the system of postal rates and +regulations, which continued to the time of national penny postage. He +introduced the first legal provision for the carriage of private letters +at fixed rates, greatly increased the speed of the posts, and above all +made the Post Office a financial success. In order to do this he saw +that the proceeds from private letters must go to the state and not to +the deputy postmasters. + +[60] _Cal. S. P. D._, 1580-1625, p. 360. + +[61] _Ibid._, 1580-1625, p. 630. + +[62] _Ibid._, 1625-26, p. 366. A single letter consisted of one sheet of +paper, a double letter of two, and a triple letter of three sheets. + +His plan was entitled "A proposition for settling of Stafetti or pacquet +posts betwixt London and all parts of His Majesty's Dominions. The +profits to go to pay the postmasters, who now are paid by His Majesty at +a cost of £3400 per annum." A general office or counting house was to be +established in London for the reception of all letters coming to or +leaving the capital. Letters leaving London on each of the great roads +were to be enclosed in a leather "portmantle" and left at the post-towns +on the way. Letters for any of the towns off the great roads were to be +placed in smaller leather bags to be carried in the large portmantle. +These leather bags were to be left at the post-towns nearest the country +towns to which they were directed. They were then to be carried to their +destination by foot-posts to a distance of six or eight miles and for +each letter these foot-posts were to charge 2d., the same price that was +charged by the country carriers. At the same time that the foot-posts +delivered their letters, they were to collect letters to be sent to +London and carry them back to the post-town from which they had started +and there meet the portmantle on its way back from Edinburgh or Bristol +or wherever the terminus of the road might be. The speed of the posts +was to be at least 120 miles in twenty-four hours and they were to +travel day and night. He concludes his proposition by saying that no +harm would result to Stanhope by his plan "for neither Lord Stanhope nor +anie other, that ever enjoyed the Postmaster's place of England, had +any benefit of the carrying and re-carrying of the subjects' +letters."[63] + +[63] _Rep. Com._, xiv, app., p. 55 (35). _Cal. S. P. D._, 1635, p. 166. +Letters were to be carried to and from important places at some distance +from the main roads by post-horses. See _Cal. S. P. D._, above. + +The question now was, Who was to see that these reforms were carried +out? Stanhope was not the man for so important and revolutionary an +undertaking. Witherings alone, the author of the proposition, should +carry it into effect. Sir John Coke made no mistake in constituting +himself the friend of the postal reformer. Witherings was already +Foreign Postmaster-General and in 1635 he was charged with the +reformation of the inland office on the basis of his projected scheme. +In 1637 the inland and foreign offices were again united when he was +made Foreign and Inland Postmaster-General.[64] His experiment was tried +on the Northern Road first and was exceedingly successful. Letters were +sent to Edinburgh and answers returned in six days. On the Northern Road +bye-posts were established to Lincoln, Hull and other places.[65] Orders +were given to extend the same arrangement to the other great roads, and +by 1636 his reform was in full and profitable operation. + +[64] _Rep. Com._, xiv, p. 5; app., p. 57 (36); _Cal. S. P. D._, 1635-36, +p. 32. + +[65] _Cal. S. P. D._, 1635, p. 299. + +Witherings still continued to sell the positions of the postmasters, if +we are to trust the complaints of non-successful applicants. One man +said that he offered £100 for a position but Witherings sold it to +another for £40.[66] The Postmaster at Ferrybridge asserted that he had +paid Stanhope £200 and Witherings £35 and yet now fears that he will be +ousted. Complaints of a reduction in wages were also made, and this was +a serious matter, since the postmasters no longer obtained anything from +private letters.[67] The old complaint, however, of failure to pay wages +at all is not heard under Witherings' administration. He was punctual in +his payments and held his employees to equally rigid account. Their +arrears were not excused.[68] An absentee postmaster, who hired +deputies to perform his duties, was dismissed.[69] His ambition to +establish a self-supporting postal system demanded rigid economy and +strict administration, and with the then prevailing laxity of +administrative methods, this was no mean achievement. From one +occasional practice of the Post Office, that of tampering with private +letters, he cannot perhaps wholly be absolved. It is hinted that he may +have been guilty of opening letters, but the suggestion follows that +this may have happened before they reached England, for the letters so +opened were from abroad.[70] + +[66] _Ibid._, 1637, p. 527; _ibid._, 1636-37, p. 524. + +[67] _Ibid._, 1638-39, p. 119. + +[68] _Ibid._, 1637-38, pp. 52, 53, 394. + +[69] _Cal. S.P.D._, 1637-38, p. 238. + +[70] _Ibid._, 1640-41, p. 340. As early as 1639 persons were not allowed +to have letters back when once posted. (_Ibid._, 1639, p. 279.) + +In June of 1637, Coke and Windebank, the two Secretaries of State, were +appointed Postmasters-General for their lives. The surviving one was to +surrender his office to the King, who would then grant it to the +Secretaries for the time being.[71] It does not appear that Witherings +was altogether dismissed from the service, for his name continued to +appear in connection with postal affairs.[72] Windebank later urged as +reasons for the withdrawal of Witherings' patent, that he was not a +sworn officer, that there was a suspicion that his patent had been +obtained surreptitiously, and that the continental postmasters disdained +to correspond with a man of his low birth. He concludes by saying that +something may be given him, but that he is said to be worth £800 a year +in land and to have enriched himself from his position.[73] At the time +of his removal, in June, 1637, the London merchants petitioned for his +continuance in office, as he had always given them satisfaction. When +they heard who had been appointed in his stead, like loyal and fearful +subjects, they hastened to add that they thought someone else was trying +for the position but they had no doubt that it would be managed best by +the Secretaries.[74] If they thought so they were mistaken, for the +commander of the English army against Scotland found that his letters +were opened,[75] the Lord High Admiral complained that his were +delayed,[76] and Windebank promised an unknown correspondent that the +delay in his letters should be seen to at once and Witherings was the +agent chosen for the investigation.[77] This, however, was not the +worst, for only a month after Witherings had been degraded, orders were +issued to the postmasters that no packets or letters were to be sent by +post but such as should be directed "For His Majesty's Special Affairs" +and were subscribed by certain officials connected with the +Government.[78] It is fair to add that this check on private +correspondence may have been a protective measure induced by the +unsettled state of the kingdom. + +[71] _Ibid._, 1637, p. 255. + +[72] _Ibid._, 1639, p. 279; _Rep. Com._, xiv, app., p. 58 (37). + +[73] _Cal. S.P.D._, 1637-38, p. 51. + +[74] _Ibid._, 1637-38, p. 52. + +[75] _Ibid._, 1639, p. 295. + +[76] _Ibid._, 1639-40, p. 116. + +[77] Hist. MSS. Com., _Rep._ 12, app., pt. 2, p. 236. + +[78] _Cal. S. P. D._, 1637, p. 338. + +In 1640 both the inland and foreign offices were sequestered into the +hands of Philip Burlamachi, a wealthy London merchant who had lent money +to the king. No reasons were given except that information had been +received "of divers abuses and misdemeanours committed by Thomas +Witherings."[79] Stanhope, who had resigned his patent in 1637, now came +forward claiming that his resignation had been unfairly obtained by the +Council, and at the same time he presented his bill for £1266, the +arrears in his salary for nineteen years.[80] In reply to his demand it +was said that shortly before he resigned he had assigned his rights in +the Post Office to the Porters, father and son. The Attorney-General +gave his opinion that whatever rights Stanhope and the Porters had, they +certainly had no claim to the proceeds from the carriage of private +letters.[81] Stanhope had offered to enter an appearance in a suit +brought against him by the Porters but now he refused to do so.[82] +Windebank was also looking out for money due to him while Coke and he +were Postmasters-General.[83] The state had indeed entered upon +troublous times and it was every man for himself before it was too late. + +[79] _Rep. Com._, 1844, xiv, app., p. 59 (39). + +[80] _Ibid._, 1844, xiv, app., p. 22 (19); _Cal. S. P. D._, 1636-37, p. +534; _ibid._, 1637-38, p. 51. + +[81] _Ibid._, 1636-37, p. 530. + +[82] Hist. MSS. Com., _Rep._ 7, p. 154. + +[83] _Cal. S. P. D._, 1640-41, p. 315. + +As long as Witherings had enjoyed the King's favour, the House of +Commons had looked upon him with suspicion. They had ordered in 1640 +"that a Sub-Committee of the Committee of Grievances should be made a +House Committee to consider abuses in the inland posts, to take into +consideration the rates for letters and packets together with the abuses +of Witherings and the rest of the postmasters."[84] As soon as +Witherings was finally dismissed, the Commons took him up and +resolutions were passed that the sequestration was illegal and ought to +be repealed, that the proclamation for ousting him from his position +ought not to be put into execution, and that he ought to be restored to +his old position and be paid the mean profits which had been received +since his nominal dismissal.[85] Protected by the authority of the House +of Commons, Witherings continued to act as Postmaster-General.[86] +Windebank, in Paris, was trying to collect evidence against him through +Frizell, who, he said, had been forced out of his position by Witherings +and Coke.[87] Coke himself was in disgrace and could do nothing. +Parliament was now supreme. Witherings was ordered to send to a +Committee of the Lords, acting with Sir Henry Vane, all letters coming +into or going out of the kingdom for examination and search. Frequent +orders to the same effect followed during the turbulent summer and +autumn of 1641.[88] Among other letters opened were those of the +Venetian Ambassador in England. He was so indignant that a Committee of +the Lords was sent to him to ask his pardon.[89] The two Houses of +Parliament united in condemning the sequestration to Burlamachi, but +Witherings, who had become tired of the strife, assigned his position to +the Earl of Warwick.[90] The Earl was supported by both Houses, but the +Lower House played a double part, for, while openly supporting Warwick, +they now secretly favoured Burlamachi, who had found an influential +friend in Edmund Prideaux, former chairman of the committee appointed to +investigate the condition of the posts and later Attorney-General under +the Commonwealth.[91] Prideaux was a strong Parliamentarian, but was +distrusted even by his own friends. But for the time being, as the +representative of the Commons, he was supported by them. The messenger +of the Upper House made oath that he had delivered the Commons' +resolution to Burlamachi, commanding him to hand over the Inland Letter +Office to Warwick, but James Hicks had presented an order at the place +appointed by Warwick for receiving letters, to deliver all letters to +Prideaux. Burlamachi on being summoned before the Lords for contempt +said that Prideaux had hired his house and now had charge of the mails. +The fight went merrily on. Two servants of Warwick seized the Holyhead +letters from Hicks, but were in turn stopped by five troopers, agents of +Prideaux, who took the letters from them by order of the House of +Commons. Prideaux also seized the Chester and Plymouth letters, one of +his servants calling out "that an order of the House of Commons ought to +be obeyed before an order of the House of Lords."[92] Hicks, who had +been arrested by order of the Lords, was liberated by the Commons as a +servant of a member of Parliament.[93] As between Lords and Commons, +there could be no doubt as to which side would carry the day, and by the +end of 1642 the Lower House was triumphant all along the line. +Understanding that discretion was the better part of valour, the Lords +freed Burlamachi and dropped the contest. Warwick now petitioned the +Lords again, setting forth that he was the legal successor and assignee +of Witherings. Stanhope put in a counter-petition to the effect that +Witherings never had any right to the position which Warwick now +claimed. The House of Lords felt its own weakness too much to interfere +directly, but ordered the whole matter to trial.[94] Besides Stanhope +and Warwick, the following put in claims before the Council of State: +Henry Robinson, through the Porters, to whom Stanhope had assigned; Sir +David Watkins in trust for Thomas Witherings, Jr., for the foreign +office; Moore and Jessop through Watkins and Walter Warde. Billingsley +also, the old Postmaster of the Merchant Adventurers, made a claim for +the foreign office.[95] + +[84] _Jo. H. C._, 1640-42, p. 81. + +[85] _Cal. S. P. D._, 1640-41, p. 453; _Jo. H. C._, ii, p. 500; _Rep. +Com._, 1844, xiv, app., p. 60 (40). + +[86] _Cal. S. P. D._, 1640-41, p. 557. + +[87] _Ibid._, 1640-41, p. 536. + +[88] _Rep. Com._, 1844, xiv, app., p. 101 (74). + +[89] _Ibid._, 1844, xiv, app., p. 101 (74). + +[90] _Jo. H. C._, 1640-42, p. 722; _Jo. H. L._, 1642-43, p. 343. + +[91] _Jo. H. C._, 1640-42, p. 500. + +[92] _Rep. Com._, 1844, xiv, app., p. 10 (40); _Jo. H. C._, 1642-43, pp. +387, 388, 469, 470, 471, 473-74, 508, 512; _ibid._, 1640-42, p. 899. + +[93] _Ibid._, 1640-42, p. 899. + +[94] _Cal. S. P. D._, 1645-47, p. 461; _Rep. Com._, 1844, xiv, app., p. +68 (43); _Jo. H. L._, 1645-46, pp. 579, 588, 637. + +[95] _Cal. S. P. D._, 1652-53, pp. 159, 367; _ibid._, 1653-54, pp. 21, +22, 297; _Rep. Com._, 1844, xiv, app., p. 69 (44); _Jo. H. C._, 1651-59, +p. 192. + +The confusion in postal administration which naturally resulted from the +struggle among the rival claimants was increased by the Civil War. In +1643 the Royal Court was moved to Oxford. The Secretaries of State +acting as Postmasters-General sent James Hicks, the quondam servant of +Prideaux, to collect arrears from the postmasters due to the Letter +Office. In addition to collecting the money due, he was to require all +postmasters on the road to Coventry to convey to and from the Court all +letters and packets on His Majesty's service, to establish new stages, +to forward the names of those willing to supply horses and guides, and +to report those postmasters who were disobedient or disloyal.[96] During +the most desperate period of the royal cause Hicks acted as special +messenger for the King, and apparently had some exciting experiences in +carrying the letters of his royal master. He lived to enjoy his reward +when the second Charles had come to his own. Parliament, in the +meantime, was establishing its control over the posts and reorganizing +the service. In the early period of Parliamentary government, postal +affairs were as a rule looked after by what was known as the "Committee +of Both Kingdoms," and the orders which it issued were necessarily based +upon political conditions. Later the Postmaster-General acted under the +Council of State or under Cromwell himself. In 1644 the House of Commons +issued an order that protection should be granted to the postmasters +between London and Hull, to their servants, horses and goods.[97] The +fact that it was necessary to re-settle posts on the old established +London-Berwick road shows how demoralized conditions had been during the +conflict.[98] Many of the loyal postmasters were dismissed. Their +lukewarm conduct in supplying the messengers of the Commonwealth with +horses produced a reprimand from the Committee and a sharp warning from +Prideaux.[99] Posts were settled from London to Lyme Regis for better +communication with the southwestern counties. In 1644 Edmund Prideaux +was formally appointed Postmaster-General.[100] He was allowed to use as +his office part of the building occupied by the Committee of Accounts, +formerly the house of a London alderman.[101] As long as the war +continued it was necessary that a close watch should be kept over +letters passing by post. Many of the new postmasters were military men +and in addition others were appointed in each town under the heading of +"persons to give intelligence."[102] With the return of normal +conditions after 1649 Prideaux was ordered by the Council of State to +make arrangements for establishing posts all over England as in the +peaceful days before the war.[103] His report of the same year to the +Council of State indicates the successful fulfilment of his +instructions. He said that he had established a weekly conveyance of +letters to all parts of the Commonwealth and that with the receipts from +private letters he had paid all the postmasters except those on the +Dover road.[104] + +[96] _Cal. S. P. D._, 1641-43, p. 501; _ibid._, 1644, pp. 6, 29. + +[97] _Jo. H. C._, 1642-44, p. 426. + +[98] _Cal. S. P. D._, 1644, p. 400. + +[99] _Ibid._, 1644-45, p. 503; _ibid._, 1644, pp. 25, 144, 447. + +[100] _Jo. H. C._, 1642-44, p. 477; _Rep. Com._, 1844, xiv, app., p. 67 +(41). + +[101] _Cal. S. P. D._, 1644, p. 477. + +[102] _Ibid._, 1644-45, p. 170. + +[103] _Ibid._, 1649-50, pp. 13, 147. + +[104] _Jo. H. C._, 1648-51, p. 385. + +For the safety of the Commonwealth it was often found necessary to +search the letters. Sometimes the posts were stopped and all the letters +examined. When this was done, it was by order of the Council of State, +which appointed certain officials to go through the correspondence.[105] +Sir Kenelm Digby, writing to Lord Conway from Calais, asks him to direct +his letters to that place, where they would find him, "if no curious +overseer of the packets at the post break them open for the +superscription's sake."[106] The Commonwealth did openly and is +consequently blamed for what had been done more or less secretly by the +Royal Government. + +[105] _Ibid._, 1648-51, p. 126; _Cal. S. P. D._, 1649-50, pp. 56, 533, +535, 541; 1650, pp. 7, 223; 1651-52, p. 216. + +[106] _Ibid._, 1649-50, p. 381. + +In 1651 the first proposal for farming the Post Office was submitted to +the Council of State. The Council reported the question to Parliament +but there is no evidence as to their attitude on the question at that +time.[107] The next year Parliament ordered that the question of +management, whether by contract or otherwise, should be re-committed to +the Council,[108] and in 1653 it was decided that it would be better to +let the posts out to farm. Prideaux had been quietly dropped by the +Council after making, as it was reported, a large fortune. When we +remember that under his management there was an annual deficit of £600 +besides the expenses of the Dover road and that in 1653 there was a net +revenue of £10,000, it seems probable that there is some truth in the +report. The conditions upon which the Post Office was farmed, were as +follows:-- + +The farmers must be men of stability and good credit and must be +selected from those contracting. Official letters and letters from and +to members of Parliament must be carried free. All postage rates must be +fixed by the Council and not changed without its consent. Finally all +postmasters should be approved by the Council and Lord Protector.[109] + +[107] _Ibid._, 1651-52. + +[108] _Ibid._, 1651-59, p. 192. + +[109] _Cal. S. P. D._, 1652-53, p. 449. The following is a list of the +contractors, with the yearly amounts offered by each: + + Ben Andrews for Inland Office £3600 + Ben Andrews for Foreign Office 3500 + Henry Robinson for both offices 8041 + Ben Andrews for both offices 9100 + John Goldsmith for both offices 8500 + Ralph Kendall for both offices 10103 + John Manley, with good security 8259 + Rich. Hicks 9120 + Rich. Hill 8160 + + --_Cal. S. P. D._, 1652-53, p. 450. + +The policy of the Commonwealth in letting the posts out to farm had much +in its favour. The evil usually resulting from farming is the temptation +and the opportunity it offers for extortion from the people. But in the +case of the posts no oppression was possible, for the farmer was limited +in his charge to the rate fixed by the Government. More than this, +private control over the post office business afforded what was most +needed at the time, greater economy and stricter supervision over the +deputy postmasters. It was upon the deputy postmasters alone that the +farming system might exercise undue pressure, but from them there was no +complaint of the withholding or reduction of wages until after +Cromwell's death.[110] + +[110] _Cal. S. P. D._, 1658-59, p. 371. + +John Manley was appointed "Farmer of the Posts" for two years at a +yearly rent of £10,000. There were at least four higher tenders than +his, and Manley contracted only for £8259. It was hinted that Manley and +the Council had come to a private agreement concerning the rent to be +paid.[111] In his orders to the postmasters, Manley requested them to +take particular care of government packets and to see that no one was +allowed to ride in post unless by special warrant. All letters should be +counted by them and the number certified in London. They were to keep a +sharp eye upon people, especially travellers, and report any discontent +or disaffection.[112] In 1654 Manley's title of Postmaster-General was +confirmed by act of Parliament, the first act dealing directly with +postal affairs.[113] He was unsuccessful in having his franchise +extended beyond the original two years, and by order of the Council of +State the management of the Posts was entrusted to Mr. Thurloe, +Secretary of State, for £10,000 a year, the same amount which Manley had +paid.[114] + +[111] _Ibid._, 1653-54, pp. 27, 328. + +[112] _Cal. S. P. D._, 1653-54, p. 328. + +[113] Scobell's _Collect._, p. 358. + +[114] _Rep. Com._, 1844, xiv, app., p. 71 (48); _Cal. S. P. D._, 1655, +p. 138. + +Shortly after Thurloe had been appointed Postmaster-General, general +orders were issued by Cromwell to all the postmasters. He forbade them +to send by express any letters or packets except those sent by certain +officials on affairs of state, all others to await the regular time for +the departure of the mails. The old regulations for providing mail-bags, +registration of the time of reception, and the like were repeated. The +number of mails to and from London was increased from one to three a +week each way, and to ensure higher speed, each postmaster was to +provide a horse ready saddled and was not to detain the mail longer than +half an hour under any consideration. He was ordered to deliver all +letters in the country at or near his stage and was to collect the +postage marked on the letter unless it was postpaid. The money so +collected was to be returned to London every three months.[115] + +[115] _Ibid._, 1655, pp. 285 f. + +In 1657 the first act of Parliament was passed which fixed rates for the +conveyance of letters and established the system for the British +Islands. The preamble stated: "That whereas it hath been found by +experience that the writing and settling of one General Post Office ... +is the best means not only to maintain certain intercourse of trade and +commerce betwixt all the said places to the great benefit of the people +of these nations, but also to convey the public despatches and to +discover and prevent many dangerous and wicked designs, which have been +and are daily continued against the peace and welfare of this +Commonwealth," it is enacted that there shall be one General Post Office +called the Post Office of England, and one Postmaster-General nominated +and appointed by the Protector for life or for a term of years not +exceeding eleven.[116] In accordance with the terms of this act, Thurloe +was appointed by Cromwell and continued to act as Postmaster-General +until the downfall of the Commonwealth.[117] + +[116] Scobell, _Collect._, pp. 511-13 (1656, c. 30). + +[117] _Cal. S. P. D._, 1657-58, p. 81. In January of 1660 the Council +took the Post Office under its own control for a short time. _Jo. H. +C._, 1651-59, p. 81; _Cal. S. P. D._, 1659-60, p. 303. + +After the Restoration most of the old claimants to the Post Office came +to the front again. Stanhope besieged King and Parliament for +restoration to his old place. He seems to have received some +compensation, which he deserved for his pertinacity if for nothing else. +The Porters were up in arms at once, for he had promised them to come to +no agreement until they were satisfied.[118] The two daughters of +Burlamachi pleaded for some mark of favour, on the ground that their +father had ruined himself for the late King. Frizell was still very much +alive, and a nephew of Witherings carried on the family feud.[119] In +the meantime James Hicks was employed by the Secretary of State to +ascertain how many of the old deputy postmasters were still eligible for +positions. He reported that many of them were dead and that many of +those who were applying for positions had been enemies of the King. For +the time being it was decided that the present officials should remain +in office until a settlement should be made.[120] + +[118] _Cal. S. P. D._, 1660-61, p. 178; Hist. MSS. Com., _Rep._ 7, p. +109. + +[119] _Cal. S. P. D._, 1660-61, pp. 93-100, 301. + +[120] _Ibid._, 1660-61, pp. 37, 82. + +Henry Bishop was appointed by royal patent Postmaster-General of England +for seven years at a rent of £21,500 a year. The King agreed to persuade +Parliament to pass an act[121] settling the rates and terms under which +Bishop was to exercise his duties. For the time being he was to charge +the same rates as those in the "pretended Act of 1657," to defray all +postal expenses and to carry free all public letters and letters of +members of Parliament during the present session. He agreed also to +allow the Secretaries to examine letters and not to change old routes or +set up new without their consent. He was to dismiss all officials whom +they should object to on reasonable grounds. If his income should be +lessened by war or plague or if this grant should prove ineffectual, the +Secretaries agreed to allow such abatement in his farm as should seem +reasonable to them.[122] Bishop's régime does not seem to have been +popular with the postmasters, for a petition in behalf of 300 of them, +representing themselves to be "all the postmasters in England, Scotland, +and Ireland," was presented to Parliament in protest against the +Postmaster-General's actions. They describe how Cromwell had let the +Post Office out to farm. They credit him with respecting their rights +and paying their wages. Lately, however, Bishop had been appointed +farmer, and unless they submitted to his orders, they were dismissed at +once. He had decreased their wages by more than one half, made them pay +for their places again, and demanded bonds from them that they should +not disclose any of these things.[123] + +[121] The act of 1660 (12 Ch. II, c. 35) passed in pursuance of this +agreement added nothing of importance to the act of 1657, except on the +question of rates. See below, chapter VIII. + +[122] _Rep. Com._, 1844, xiv, app., pp. 75, 76 (52, 53). + +[123] Hist. MSS. Com., _Rep._, 7, p. 140. + +In 1633, Bishop resigned his grant to Daniel O'Neale for £8000. O'Neale +offered £2000 and, in addition, promised £1000 a year, during the lease, +to Bennet, Secretary of State, if he would have the assignment +confirmed. He explained that this would not injure the Duke of York's +interest, who could expect no increase until the expiration of the +original contract, which still had four years and a quarter to run.[124] +This refers to an act of Parliament which had just been passed, settling +the £21,500 post revenue upon the Duke of York and his male heirs,[125] +with the exception of some £5000 which had been assigned by the King to +his mistresses and favourites. O'Neale having died before his lease +expired, his wife, the Countess of Chesterfield, performed his duties +until 1667.[126] + +[124] _Cal. S. P. D._, 1663-64, p. 122; _Rep. Com._, 1844, xiv, app., +pp. 86, 91 (60, 64). + +[125] _Ibid._, 1844, xiv, app., p. 91 (64). Confirmed in 1685 (Hist. +MSS. Com., _Rep._, 11, app., 2, p. 315; 1 Jas. ii, c. 12). + +[126] _Cal. S. P. D._, 1664-65, p. 376; 1666-67, p. 567. + +According to the grant made to O'Neale in 1663 no postmaster nor any +other person except the one to whom it was directed or returned was to +open any letter unless ordered so to do by an express warrant from one +of the Secretaries of State. If any letter was overcharged, the excess +was to be returned to the person to whom it was directed. Nothing was +said about letters which were lost or stolen in the post. A certain John +Pawlett complained that of sixteen letters which he had posted not one +was ever delivered in London although the postage was prepaid.[127] +Letters not prepaid were stamped with the postage due in the London +Office when they were sent from London. Letters sent to London were +charged by the receiving postmaster in the country and the charge +verified at the London Office. An account was kept there of the amounts +due and the postmasters were debited with them, less the sum for letters +not delivered, which had also to be returned for verification.[128] All +this meant losses to the postal revenue, but compulsory prepayment would +have been impracticable at the time. The postmasters had nothing to gain +by retaining letters not prepaid, but by neglecting to forward prepaid +letters, they could keep the whole of the postage, for stamps were +unknown. An incentive to the delivery of letters was provided by the +penny payment which it was customary to give the postmasters for each +letter delivered, over and above the regular postage. The postmasters +were required to remit the postage collected to London every month and +give bonds for the performance of their duties.[129] + +[127] _Cal. S. P. D._, 1664-65, p. 457. Although letters might be +prepaid, it was not compulsory that they should be, and the vast +majority were not. + +[128] Joyce, p. 46. + +[129] _Cal. S. P. D._, 1667, p. 80. + +The postal service was very much demoralized by the plague in 1665 and +1666 and the great fire which followed. Hicks, the clerk, said that the +gains during this time would be very small. To prevent contagion the +building was so "fumed" that they could hardly see each other.[130] The +letters were aired over vinegar or in front of large fires and Hicks +remarks that had the pestilence been carried by letters they would have +been dead long ago. While the plague was still dangerous, the King's +letters were not allowed to pass through London.[131] After the fire +the headquarters of the Post-Office in London were removed to Gresham +College. + +[130] _Ibid._, 1664-65, p. 51. + +[131] Hist. MSS. Com., _Rep._, 12, app., pt. 7, pp. 14, 93; _Cal. S. P. +D._, 1665-66, p. 14. _Cal. S. P. D. Add._, 1600-70, p. 713. + +When O'Neale's lease had expired in 1667, Lord Arlington, Secretary of +State, was appointed Postmaster-General.[132] The real head was Sir John +Bennet, with whom Hicks was entirely out of sympathy. He accused Bennet +of "scurviness" and condemned the changes initiated by him. These +changes were in the shape of reductions in wages. The postmasters' +salaries were to be reduced from £40 to £20 a year. In the London +Office, the wages of the carriers and porters were also to be +reduced.[133] + +[132] _Cal. S. P. D._, 1665-66, p. 573. + +[133] _Ibid._, 1667, p. 260. + +At the close of the seventeenth century there were forty-nine men +employed in the Inland Department of the Post Office in London. The +Postmaster-General, or Controller as he was sometimes called, was +nominally responsible for the whole management although the accountant +and treasurer were more or less independent. Then there were eight +clerks of the roads. They had charge of the mails coming and going on +the six great roads to Holyhead, Bristol, Plymouth, Edinburgh, Yarmouth, +and Dover. The old veteran Hicks had been at their head until his +resignation in 1670. The General Post Office building was in Lombard +Street.[134] Letters might be posted there or at the receiving stations +at Westminster, Charing Cross, Pall Mall, Covent Garden, and the Inns of +Court. From these stations, letters were despatched to the General +Office twice on mail nights. For this work thirty-two letter carriers +were employed, but they did not deliver letters as their namesakes now +do. The mails left London for all parts of the country on Tuesday, +Thursday, and Saturday late at night or early the next morning. On these +days all officials had to attend at 6 P.M. and were generally at work +all night. On Monday, Wednesday and Friday when the mails arrived from +all parts of England they had to be on hand at 4 or 5 A.M. The postage +to be paid was stamped on the letters by the clerks of the roads. In +addition three sorters and three window-men were employed. The +window-men were the officials who stood at the window to receive the +letters handed in and to collect postage when it was prepaid. Then +there were an alphabet-man, who posted the names of merchants for whom +letters had arrived, a sorter of paid letters, and a clerk of undertaxed +letters.[135] In the Foreign Office, there were a controller, two +sorters, an alphabet-man, and eight letter receivers, of whom two were +women. In addition the Foreign Office had a rebate man who saw that +overcharged letters were corrected. Both offices seem to have shared the +carriers in common.[136] + +[134] Stow, _London_, bk. ii, p. 163. + +[135] _Notes and Queries_, series 9, i, p. 122; Hist. MSS. Com., _Rep._, +15, app., pt. 2, p. 19; _Cal. S. P. D._, 1670, p. 578. + +[136] Hist. MSS. Com., _Rep._, 15, app., pt. 2, p. 19. + +Before 1680 there was no post between one part of London and another. A +Londoner having a letter for delivery had either to take it himself or +send it by a special messenger. The houses were not numbered and were +generally recognized by the signs they bore or their nearness to some +public building. Such was the condition in the metropolis when William +Dockwra organized his London Penny Post. On the first of April, 1680, +London found itself in possession of a postal system which in some +respects was superior to that of to-day. In the Penny Post Office as so +established there were employed a controller, an accountant, a receiver, +thirteen clerks in the six offices, and about a hundred messengers to +collect and deliver letters. The six offices were:-- + + The General Office in Star Court, Cornhill; + St. Paul's Office in Queen's Head Alley, Newgate Street; + Temple Office in Colchester Rents in Chancery Lane; + Westminster Office, St. Martin's Lane; + Southwark Office near St. Mary Overy's Church; + Hermitage Office in Swedeland Court, East Smithfield. + +There were in all about 179 places in London where letters might be +posted. Shops and coffee-houses were used for this purpose in addition +to the six offices, and in almost every street a table might be seen at +some door or shop-window bearing in large letters the sign "Penny Post +Letters and Parcels are taken in here." From these places letters were +collected every hour and taken to the six main receiving-houses. There +they were sorted and stamped by the thirteen clerks. The same messengers +carried them from the receiving-houses to the people to whom they were +addressed. There were four deliveries a day to most parts of the city +and six or eight to the business centres. + +The postage fee for all letters or parcels to be delivered within the +bills of mortality was one penny, payable in advance. The penny rate was +uniform for all letters and parcels up to one pound in weight, which was +the maximum allowed. Articles or money to the value of £10 might be sent +and the penny payment insured their safe delivery. There was a daily +delivery to places ten or fifteen miles from London and there was also a +daily collection for such places. The charge of one penny in such cases +paid only for conveyance to the post-house and an additional penny was +paid on delivery. From such places to London, however, only one penny +was demanded and there was no fee for delivery. The carriers in London +travelled on foot, but in some of the neighbouring towns they rode on +horseback.[137] + +[137] Stow, _London_, bk. v, pp. 403-04; Thos. DeLaune, _Present State +of London_, 1681, pp. 346-47; W. Thornbury, _Old and New London_, ii, p. +209; Noorthouck, _Hist. of London_, 1773, p. 252. Noorthouck is mistaken +in making Murray the promoter of the London Penny Post, although the +idea may have originated with him. + +Dockwra is credited with being the first to make use of post-marks. All +letters were stamped at the six principal receiving-offices with the +name of the receiving-office and the hour of their reception. For +instance, we have samples of letters post-marked thus: + +[Illustration] + +The first figure shows that they were Penny Post letters and that they +were prepaid. The "W" in the centre is the initial letter of the +receiving-office, Westminster. The second figure shows the hour of +arrival at the Westminster office, 9 A.M. The earliest instance of these +marks is on a letter dated Dec. 9, 1681, written by the Bishop of London +to the Lord Mayor.[138] + +[138] _Notes and Queries_, ser. 6, xi, p. 153; Hist. MSS. Com., _Rep._, +10, app. 4, pp. 125, 132; Joyce, p. 38. + +Whenever letters came from any part of the world by the General Post, +directed to persons in London or in any of the towns where the Penny +Post carriers went, they were handed over to these carriers to be +delivered. In the same way, letters directed to any part of the world +might be left at any of the receiving-offices of the Penny Post to be +carried by its messengers to the General Office. This must have +increased greatly the number of letters carried by the General Post. In +the case of letters arriving by the General and delivered by the Penny +Post, the postage was paid on delivery.[139] Over two hundred and thirty +years ago then, London had for a time a system of postal delivery not +only unrivalled until a short time ago, but in the matter of parcel +rates and insurance not yet equalled. + +[139] DeLaune, _Present State of London_, 1681, p. 345. + +What was Dockwra's reward for the boon which he had conferred? He +himself says that it had been undertaken at his sole charge and had cost +him £10,000. It had not paid for the first few months, and the friends +who had associated themselves with him fell away.[140] As long as it +produced no surplus, Dockwra was left to do as he pleased, for the +General Post was gaining indirectly from it. As soon as it began to pay, +the Duke of York cast his eye on it. In 1683 an action was brought +against Dockwra for infringing upon the prerogative of His Royal +Highness, and the Duke won the case. The Penny Post was incorporated in +the General Post soon after.[141] After William and Mary had come to the +throne, Dockwra was given a pension of £500 a year for seven years. At +the end of that time he was appointed manager of the Penny Post +Department of the General Post and his pension was continued for three +years longer. In 1700 he was dismissed, charged with "forbidding the +taking in of band-boxes (unless very small) and all parcels above one +pound in weight, with stopping parcels, and opening and detaining +letters."[142] Such was Dockwra's reward and such had been Witherings'. +He who would reform the Post Office must be prepared to take his +official life in his hands. + +[140] _Cal. B. P._, 1697-1702, xliv, 56. + +[141] Two men living in Limerick and Tipperary claimed in 1692 that they +had organized a Penny Post in Ireland (_Cal. S. P. D._, 1691-92, p. +449). In 1704 the Countess Dowager of Thanet petitioned to be allowed to +establish a Penny Post in Dublin, but nothing was done (_Cal. T. P._, +1702-07, lxxxix, 305). + +[142] _Cal. T. P._, 1697-1702, lxxi, 40; Charles Knight, _London_, 1842, +iii, p. 282. + +The transition between two reigns was usually a period of unrest and +disquietude, and the Revolution which resulted in the expulsion of James +was naturally accompanied by internal disorder. For a time the posts +suffered quite severely. The Irish and Scotch mails were robbed several +times and not even the "Black Box" escaped. This was the box in which +were carried the despatches between Scotland and the Secretaries of +State, the use of which was not discontinued until after the accession +of the new King and Queen. After 1693 each Secretary was to send and +receive his own despatches separately and all expenses were to be met +from the proceeds of the London-Berwick post.[143] Major Wildman had +been appointed to the oversight of the Post Office, but held office for +a few months only, being succeeded in 1691 by Cotton and Frankland. The +Postmasters-General were henceforth to act under the Lords of the +Treasury.[144] + +[143] Hist. MSS. Com., _Rep._, 12, app., pt. 7, p. 262; _Cal. S. P. D._, +1690-91, p. 50; Hist. MSS. Com., _Rep._,15, app., pt. 9, pp. 144, 180; +_Cal. T. P._, 1557-1696, p. 284. + +[144] _Cal. S. P. D._, 1689-90, pp. 59, 74; _Cal. T. P._, 1557-1696, p. +203. + +Important improvements in the frequency and extension of postal +communication were inaugurated under the management of Cotton and +Frankland. It was, however, for the extension of the foreign postal +service and for that to Ireland and the plantations that their +administration is most notable. + +On Monday and Thursday letters went to France, Italy, and Spain, on +Monday and Friday to the Netherlands, Germany, Sweden, and Denmark. On +Tuesday, Thursday, and Saturday, mails left for all parts of England, +Scotland, and Ireland, and there was a daily post to Kent and the Downs. +Letters arrived in London from all parts of England, Scotland, and +Ireland on Monday, Wednesday, and Friday, from Wales every Monday and +from Kent and the Downs every day. Besides the establishment of the +General Post in London, there were about 200 deputy postmasters employed +in England and Scotland.[145] The Irish Post was supervised from London +and during the Irish war its headquarters in Ireland were transferred +from Dublin to Belfast. It was directly managed by a Deputy +Postmaster-General, aided by ten or a dozen officials and clerks. The +net receipts were sent to England and the books were audited by a deputy +sent over by the Auditor-General of the English Post.[146] + +[145] Stow, _London_, bk. v, p. 401; DeLaune, _Present State of +England_, ed. 1690, p. 343. + +[146] _Cal. T. P._, 1557-1696, pp. 369, 461. + +The Scotch Post Office was not in so good condition as the Irish. The +time when every Scotchman could read and write was yet very far distant. +The only post road of any importance was from Edinburgh to Berwick and +this had been established by the English. For many years the vast +majority of letters travelling over this road were official despatches. +After the crowns of England and Scotland were united, it was necessary +for the English Government to keep in close touch with Scotland and +"Black Box" made frequent journeys between the two countries. The canny +people in the north had discovered a rich country to the south waiting +to be exploited, and the post horses between Edinburgh and London were +kept busy carrying the lean and hungry northern folk to the land of milk +and honey. Until 1695 the English and Scotch Post Offices had been +united under the English Postmaster-General with an Edinburgh deputy; +but by the Scotch act of 1695 the Post Office of Scotland was separated +from that of England. The terms of this act were much the same as those +of the English act of 1660, although the rates established were somewhat +higher. There was to be a Postmaster-General living in Edinburgh, who +was to have the monopoly of carrying all letters and packets where posts +were settled.[147] + +[147] _Acts of Parliament of Scotland_, ix., pp. 417-419 (5 Wm. III). + +The first proposal for a postal establishment in the American colonies +came from New England in 1638. The reason given was that a post office +was "so useful and absolutely necessary."[148] Nothing was done by the +home government until fifty years later when a proclamation was issued, +ordering letter offices to be settled in convenient places on the North +American continent. Rates were established for the continental colonies +and Jamaica.[149] In 1691, acting upon a report of the Governors of the +Post-Office, the Lords of Trade and Plantations granted a patent to +Thomas Neale to establish post offices in North America. About the same +time an act was passed by the Colony of Massachusetts appointing Andrew +Hamilton Postmaster-General. The Lords of Trade and Plantations called +attention to the fact that this act was not subject to the patent +granted to Neale. Matters were adjusted by Neale himself, who appointed +Hamilton his deputy in North America.[150] In 1699 a report was made by +Cotton and Frankland to the Lords of the Treasury based on a memorial +from Neale and Hamilton. The latter had established a regular weekly +post between Boston and New York and from New York to Newcastle in +Pennsylvania. The receipts had increased every year and now covered all +expenses except Hamilton's own salary, £200. Postmasters had been +appointed in New York and Philadelphia, Hamilton himself being in +Boston. The New York postmaster received a salary of £20 with an +additional £90 for carrying the mail half-way to Boston. The +Philadelphia postmaster was paid £10 a year.[151] + +[148] _Cal. S. P. D._, 1574-1660, p. 273. + +[149] Joyce, pp. 196, 300. + +[150] _Cal. S. P. Am. and W. I._, 1693-96, p. 637. + +[151] _Cal. T. P._, 1697-1702, lx, 77. + +The business of the Post Office was rapidly increasing. The same decade +that saw the establishment of the Board of Trade witnessed also the +organization of the Colonial Post. The expansion of English +commerce[152] necessarily reacted on communications both internal and +foreign, while the linking of the country posts with the general system +and the stimulus given by the London Penny Post showed itself in the +increased postal revenue.[153] The way was prepared for the great +expansion of the following century, an expansion turned to account as a +source of taxation. + +[152] Macpherson, _Annals of Commerce_, ii, 707. + +[153] See Appendix: Tables I, II. + + + + +CHAPTER III + +THE POSTAL ESTABLISHMENT AN INSTRUMENT OF TAXATION + +1711-1840 + + +The year 1711 is an important landmark in the history of the British +Post Office. England and Scotland had united not only under one king but +under one Parliament, the war with France made a larger revenue +necessary, the growth of the Colonies required better communication with +the mother country and each other, and it was highly expedient that +certain changes in the policy of the Post Office should receive +parliamentary sanction. The act of 1711 was intended to meet these +conditions. The English and Scotch Post Offices were united under one +Postmaster-General in London, where letters might be received from and +sent to all parts of Great Britain, Ireland, the colonies and foreign +countries. The postage rates were increased to meet the demand for a +larger revenue. In addition to the General Office in London, chief +letter offices were ordered to be set up in Edinburgh, Dublin, New York, +the West Indies, and other American colonies, and deputies were +appointed to take charge of them. + +One of the most important clauses of this act, by providing regulations +for the management of the London Penny Post, finally placed the seal of +the approval of Parliament upon a branch of the General Post, which had +existed for nearly thirty years by virtue of royal proclamations and +legal decisions alone. A penny rate was imposed upon all letters and +packets passing by the Penny Post in London, Westminster and Southwark +to be received and delivered within ten miles from the General Post +Office building. This would seem at first sight to be an improvement on +the old custom, by which a penny had carried only within the bills of +mortality; but as a matter of fact an extra penny was demanded on +letters delivered outside the bills and within the ten mile limit. +Protest was, however, made against this as being illegal, and it was +not until 1730 that the custom was sanctioned.[154] + +[154] In 1765 the maximum weight for articles passing wholly by the +Penny Post was lowered from 16 to 4 ounces (5 Geo. III, c. 25). + +One other provision of the new act remains to be mentioned. The last +section forbade any official connected with the Post Office from +meddling in politics.[155] The system of party government which had +begun to take form during William and Mary's reign, was developing. +Under Anne, the Whigs had been the war party, the expansionists, while +the Tories were anxious for peace. So different were their policies that +Marlborough had gone over to the Whigs. But the Queen and probably the +majority of the people were tired of war. Godolphin, the great +financier, had given way to Harley and the general election was +favourable to the Tories. Frankland had died before the act was passed, +but Cotton, who was a member of Parliament, preferred to keep his +position in the Post Office and accordingly accepted the Chiltern +Hundreds. A Mr. Evelyn was associated with him as Postmaster-General. + +[155] 9 Anne, c. 11. + +Shortly after his appointment the attention of the department was +directed to a weakness in administrative control which had already +resulted in considerable financial loss. The Postmasters-General had +always experienced considerable difficulty in collecting the postage on +bye and cross road letters.[156] Since these letters did not reach +London, no check was possible to ascertain whether the postmaster +transmitted to headquarters the full amount of the postage collected on +them. The difficulty had been met before 1711 by farming a large number +of the country post offices.[157] In 1711 the leases under which the +farmers had held office were cancelled and all the posts in the kingdom +came again under the direct oversight of the Postmasters-General. The +old farmers were made managers, with an allowance of 10 per cent from +the net proceeds of the posts under their control, and the deputy +postmasters were again paid directly by the state. The Government had +refused o appoint surveyors when the act of 1711 was drafted and for a +time these managers acted in that capacity.[158] The experiment was not +a success and the Postmasters-General were at their wits' end to know +what to do to save the revenue which was being diverted to the pockets +of the country postmasters. + +[156] A bye-letter was the name given to a letter carried over one of +the great roads but not passing to, from or through London. A cross post +letter passed not over the great roads, but over subsidiary or minor +roads. + +[157] Joyce, p. 136. + +[158] _Cal. T. P._, 1714-19, cxc, 26; ccvi, 29. + +The country was happily spared any new device on their part, for in 1721 +a man came forward with a proposal to take all the losses upon himself +or rather to prevent them entirely. This was Ralph Allen, whose name is +worth remembering, not as a reformer but as a good business man who came +to the rescue of the postal revenue at a rather critical time. He was +the son of an innkeeper at St. Blazey. At an early age we find him +living with his grandmother, the postmistress of St. Columb. He came +under the notice of one of the surveyors there on account of the +neatness with which he kept the accounts for his grandmother. When he +was old enough, he was appointed to a position in the Post Office at +Bath and in time was made postmaster there. Tradition has it that during +the insurrection of 1715 he informed the authorities that a wagon load +of arms was on its way from the West for the use of the rebels and that +this led to his preferment.[159] He offered to farm the cross and bye +posts throughout the kingdom. The net product from these posts amounted +to £4000 in 1719. Allen offered to pay half as much again and meet all +expenses. The offer was accepted, and in 1721 he was given the lease of +the cross and bye posts for a period of seven years. The rent was fixed +at £6000 a year in accordance with the agreement. For the first quarter, +the receipts exceeded expectations, but later the postmasters began to +relapse into their old ways. In addition, the contract was rather hard +on Allen, as £300 of the £4000 nominally received by the Post Office was +for letters not delivered and hence not paid for. After the third year, +matters began to improve and the receipts increased greatly. The +contract was renewed for terms of seven years, until Allen's death in +1769, and the rent was increased at each renewal.[160] + +[159] Joyce, p. 146. + +[160] _Cal. T. B. & P._, 1731-34, p. 539; W. Thornbury, _Old and New +London_, ii, p. 209; W. Lewins, _Her Majesty's Mails_, ed. 1865, pp. +104-12. + +How did he succeed when so many others had failed? In the first place +he introduced the use of post bills and every postmaster had to +distinguish on these bills the bye letters from all others. The voucher, +which he also introduced, seems to have been only an acknowledgment of +the amount to be collected by each postmaster. Besides this, Allen had a +most intimate knowledge of the various post towns in the kingdom, of +their importance and of the number of letters which might naturally be +expected to pass between them. He based his conclusions upon quite +obvious considerations. Between any two towns of much the same +importance he expected about the same correspondence, that it would not +vary much, and that the letters received and despatched would pretty +well equal each other.[161] + +[161] Joyce, pp. 155, 162. + +When Allen's contract was renewed in 1741 it was proposed that he should +be obliged to settle and support at his own charge posts six days a week +instead of the former tri-weekly posts between London, Cambridge, Lynn, +Norwich, and Yarmouth and from London to Bath, Bristol, Gloucester, and +intermediate towns. This was not done at once, but during the next few +years this proposition was put into effect.[162] In 1734, in addition to +his cross and bye post letters, Allen undertook to pay for the +improvements which he had made in the conveyance of country +letters.[163] He pointed out at the same time that there was some +opposition between the two parts of his contract, since country and +cross post letters interfered more or less with each other.[164] + +[162] _Cal. T. B. & P._, 1730-41, pp. 449-450. + +[163] Country letters were those sent through London. _Cal. T. B. & P._, +1739-41, p. 450. + +[164] _Cal. T. B. & P._, 1734-41, pp. 445, 450; W. Thornbury, _Old and +New London_, ii, p. 209. + +Allen died in 1769, being worth, according to current report, £500,000. +Lewins says that he made £12,000 a year from his farm. Probably both +statements are exaggerated, but it is certain that he accumulated a +respectable fortune while managing the bye and cross posts.[165] + +[165] He is the man to whom Pope alluded in the couplet, + +"Let humble Allen, with an honest shame, Do good by stealth and blush to +find it fame." + +Allen and the poet had a falling out just before the death of the +latter. In his will, Pope left his quondam friend £150 to pay a "few +little debts." Allen is said to have remarked that if Pope had added +another figure, it would have represented better the "few little debts." +W. Lewins, _Her Majesty's Mails_, pp. 104-12. + +There had been a considerable increase in the staff of the General +Office and many improvements introduced since 1711. At the head of the +office were two Commissioners called Postmasters-General, each with a +salary of £2000, assisted by a Secretary and four clerks. There were in +addition a Receiver-General, an Accountant-General, a Solicitor, a +Resident-Surveyor, and two inspectors of missent letters. In addition to +the Penny Post carriers, who were employed also by the General Post, +there were a Court Messenger and a carrier for the House of Commons. At +the General Office, letters were taxed and sorted by the "Clerks of the +Road" and their assistants and by seventeen sorters. The window-man and +alphabet-keeper received the money on prepaid letters and posted lists +of those for whom letters had arrived. Undertaxed letters from the +country were re-taxed by the "Clerks of the Road." Besides the +receiving-houses of the Penny Post where all letters might be posted, +there were thirty receiving-houses for the General Post. Letters were +conveyed from these to the central office by sixty-nine carriers.[166] + +[166] _Cal. T. B. & P._, 1742-45, pp. 102-235; Maitland, _Survey of +London_, p. 998; Noorthouck, _Hist. of London_, 1773, p. 658. + +Letters were sent every night to the principal South and Midland towns +of England. On Tuesday, Thursday, and Saturday, there were mails for all +parts of England and Scotland and on Tuesday and Saturday for Ireland +and Wales. On Monday and Thursday, letters were sent to France, Spain, +and Italy, on Monday and Friday to Germany, Flanders, Sweden, and +Denmark, and on Tuesday and Friday to Holland. Letters arrived in London +every day from the South and Midland towns, on Monday, Wednesday, and +Friday, from all parts of England and Scotland, and on Monday and Friday +from Ireland and Wales.[167] It will be seen from this that the +improvements in postal communications, which had taken place since the +beginning of the century, had been confined to the South and Midland +towns of England and to foreign countries. + +[167] J. Latimer, _Annals of Bristol_, 1893, p. 235; _London and its +Environs_, 1761, v, pp. 209-222. + +With the foregoing enlargement of postal facilities an old grievance on +the part of the public began to assume an acute form. It had always been +a debated question as to how far the postmasters were responsible for +the delivery of letters. There was no general rule upon the question and +the practice varied in different parts of England. Although the towns on +the post roads were fairly well off as far as their letters were +concerned, it was different with those places which were neither on the +great roads nor on the bye-roads leading off from them. The mails for +such places were left at the nearest post towns and were conveyed to +their destination by carriers and messengers. Cotton and Frankland +stated that in addition to collecting the regular postage, they demanded +for this service an extra payment of 3_d._, 6_d._, and sometimes 12_d._ +It was proposed in 1699 that the delivery should be made by persons +appointed to collect as well as to deliver all letters and parcels. For +this they were allowed to take one penny or whatever the people wished +to give them.[168] In Sandwich the cross and bye post letters had always +been delivered free, although a fee was charged for the London letters. +The postmaster there decided to charge for all letters, and the +inhabitants of Sandwich protested. The case was carried to the courts +and the Post Office lost. Sandwich, however, was a place where there had +been a free delivery of part of the letters at least. The +Postmasters-General were very much disturbed at this decision and still +more disturbed lest the courts might decide for free delivery in other +post towns, which had always paid. They resolved to bring on a test +case. The town of Hungerford in Berkshire was chosen, as it could be +proved that the postmaster of that place had received a penny for each +letter delivered since the beginning of the century. The case came +before the Court of King's Bench, Lord Mansfield presiding, and the Post +Office lost again. This case was decided in 1774, and the next year the +"Liverpool Advertiser" records a complaint to the Postmasters-General +that there was only one letter carrier in Liverpool. The reply was that +only one carrier was maintained in any provincial town and that +Liverpool could expect no better treatment.[169] + +[168] _Cal. T. B._, 1697-1702, lxiv, 17; _ibid._, 1702-07, lxxxvi, 134. + +[169] E. Green, _Bibliotheca Somersetensis_, 1902, i, p. 108; Joyce, pp. +107-108; Latimer, _Annals of Bristol_, p. 416. + +At the same time that the Post Office received this adverse decision it +had begun to suffer severely from the illegal carriage of letters by the +post coaches. These post coaches were so called merely because they were +most numerous on the post roads. John Palmer, the proprietor of a +theatre in Bath, pointed out to the Postmasters-General that the coaches +were speedier and cheaper than the post boys who carried the mails on +horseback and proposed that he should be allowed to establish mail +coaches and thus save the postage on letters illegally carried by the +post coaches. His coaches were to be protected by a guard, presumably a +retired soldier, who was to be armed with two guns and to sit facing the +road in front of him. The driver was to carry pistols. No outside +passengers were to be carried, since they impeded the guard in +performing his duties. The speed was to be not less than eight or nine +miles an hour, twice as fast as the post boys travelled. In addition the +mails were to leave London at 8 P.M. instead of after midnight. The +coaches were all to leave London together and return together as far as +possible. To insure this they were not to wait for government letters +when the latter were delayed.[170] + +[170] _D. N. B._, xliii, p. 140; Knight, _London_, 1842, iii, p. 280. + +The first mail coach ran between London and Bristol in 1784. It was +furnished by contractors at a cost of 3_d._ a mile. This was the initial +cost, however, and by 1797, the rate had been reduced to a penny a mile +each way. In the early part of August, 1784, there was only one mail +coach. At the end of the same month, coaches went to Norwich, +Nottingham, Liverpool, and Manchester. During the next year they were +sent to Leeds, Gloucester, Swansea, Hereford, Milford, Worcester, +Birmingham, Shrewsbury, Holyhead, Exeter, Portsmouth, and other places. +In 1786 they ran between London and Edinburgh. In 1797 there were +forty-two mail coach routes established, connecting sixty of the most +important towns in the kingdom, as well as intermediate places. These +coaches travelled a total distance of 4110 miles and cost the Government +£12,416 a year, only half the sum paid for post horses and riders under +the old system. The coaches made daily journeys over nearly two thirds +of the total distance traversed and tri-weekly journeys over something +less than one third the total distance. The remainder travelled one, +two, four, and six times a week. The result of the establishment of +these mail coaches was summed up by a Parliamentary committee in the +following words: "They have lessened the chance of robbery, diminished +the need for special messengers and expresses, and now carry the letters +formerly sent by post coaches."[171] + +[171] _Parl. Papers_, 1812-13, _Rep. Com._, ii, pp. 4, 36, 37, 98; _Fin. +Rep._, 1797, no. 7, p. 114; _D. N. B._, xliii, p. 140. + +Palmer had been appointed Controller-General of the Post Office and had +chosen as his assistant a man by the name of Bonner. Palmer himself was +of a violent and headstrong disposition, and as ill-luck would have it, +Walsingham, one of the Postmasters-General, was as masterful as himself. +Palmer considered that his office was outside the scope of Walsingham's +authority, and although he failed in making his position absolutely free +from the control of the Postmasters-General, yet he heeded them as +little as possible. He organized a newspaper department without +consulting his superiors and paid no attention to them when an +explanation was asked. He stirred up the London merchants to complain +about the late delivery of their letters, a delay which he had probably +brought about intentionally. A mail coach had been ordered by Walsingham +to carry the King's private despatches while His Majesty was taking the +waters at Cheltenham. This was done without consulting Palmer, who was +so indignant that he persuaded the contractor to send in an enormous +bill for supplying the coach. All this came out through the treachery of +Bonner, who owed his advancement entirely to the friend whom he +betrayed. He went so far as to hand over to the Postmasters-General the +private letters which Palmer had written him. Palmer was dismissed in +1792 with a pension.[172] + +[172] _Fin. Rep._, 1797, no. 7, pp. 82-83; Joyce, pp. 251, 275. + +At the time of Palmer's appointment, a Treasury warrant had been issued +for the payment to him of £1500 a year and 2 per cent of the increase +from the Post Office revenue, but this warrant had been pronounced +illegal by the Attorney-General. Through Pitt's influence, Palmer +finally obtained £1500 a year and 2 per cent on any increase in net +revenue over £240,000 a year. Palmer objected to this on the ground +that the old net revenue was only £150,000 a year, but Pitt replied that +the increased rates of 1784 would produce at least £90,000. It is +improbable, however, that the new rates produced the increase estimated. +In 1797 Palmer presented a petition to the House of Commons, asking for +the arrears due him according to his method of estimating the increase +in net revenue, upon which his percentage was due. He said that before +his system was introduced the gross product of the Post Office was +decreasing at the rate of £13,000 a year. This was not true. He claimed +that the increase after 1784 was wholly due to his own reforms, taking +no account of the increased rates and the industrial expansion of +England. No action was taken by Parliament.[173] + +[173] _Fin. Rep._, 1797, no. 7, p. 127; _Jo. H. C._, 1796-97, p. 581. + +One of the arguments advanced by Palmer for the use of mail coaches was +their security against robbers. Previous to and during the rebellion of +1745 numerous attempts were made to rob the mails, and many of them were +successful. These robberies occurred principally at night. It was said +that the mails were carried by boys not always of the best character, +and that very often they were in league with the robbers. The +Postmasters-General asked for soldiers to patrol the roads where these +robberies were the most frequent. This was the method which Cromwell had +used to protect the mails. The request does not seem to have been +granted, but in 1765 the death penalty was imposed for robbing the mail +and for stealing a letter containing a bank note or bill. Any post boy +deserting the mail or allowing any one but the guard to ride on the +horse or carriage with the mails was liable to commitment to hard +labour.[174] Palmer's prediction was fulfilled by the comparative safety +with which the mails were carried after his coaches had come into use. + +[174] _Cal. T. B. & P._, 1739-41, p. 234; 5 Geo. III, c. 25. The Post +Office occasionally made good the loss of valuables from theft or +robbery, but as a rule refused to do so. _Cal. T. P._, 1729-30, p. 75; +_Cal. T. B. & P._, 1731-34, p. 74. + +Charles, Earl of Tankerville, and Lord Carteret had been the +Postmasters-General in 1782 and 1783. On the fall of Shelburne's +ministry in the latter year, Tankerville left the Post Office, but +Carteret still remained. So far these two men had worked together +fairly well, although Tankerville had a suspicion that his colleague +had been engaged in some doubtful transactions. In 1784, when Pitt +became Prime Minister, Tankerville was restored to his old office. In +the same year a transaction came under his notice which aroused his +suspicion. A Mr. Lees had been appointed Secretary of the Irish Post +Office. The man who had held this position was made agent of the Dover +packet boats, the old agent having been superannuated. The new agent +agreed to pay to his predecessor the full amount of the salary coming to +the place, while he himself was to be paid by Mr. Lees the total salary +coming to the Secretary in Ireland. So far there was nothing uncommon +about the arrangement. The unusual part of the agreement and the part +which attracted Tankerville's attention was Lees' promise to pay the +money to "A. B.," an unknown person, after the old agent's death. +Suspicion pointed to Carteret as the man to whom the money was to be +paid. Lees himself denied this, but did not say who "A. B." was.[175] + +[175] _Jo. H. C._, 1787, p. 800. + +In 1787 a Mr. Staunton, the postmaster of Islesworth, a position worth +£400 a year, was in addition appointed Controller and Resident Surveyor +of the Bye and Cross Posts, to which was attached a salary of £500, +coals and candles and a house. The First Lord of the Treasury proposed +that the house should not go with the office, and Carteret decided that +Staunton should receive an extra £100 a year in lieu of the house. +Tankerville refused to agree to this, and the contention became so warm +that the whole matter was referred to Pitt, who, rather than lose +Carteret's political support, dismissed Tankerville.[176] Tankerville at +once demanded an investigation, which was granted. The results showed +the Post Office to be in a deplorable state. Tankerville was completely +exonerated, but failed to obtain much sympathy on account of the +violence of his attack upon Pitt and Carteret. It came out in the +investigation that "A. B." was a foreigner named Treves, who had no +claim on the Post Office or any other department of the government +except that he was a friend of Carteret. Carteret himself knew the +condition of his appointment, but had done nothing except to express +himself displeased with the whole arrangement. A payment of £200 a year +had also been exacted from Mr. Dashwood, Postmaster-General of Jamaica, +as the condition of his appointment, and that too had gone to Treves. +The agent at Helvoetsluys had been allowed by Carteret to sell his +position to a man as incapable as himself. Staunton's office had been +abolished soon after his appointment, and he had been allowed to retire +at the age of forty years with a pension of £600 a year in the face of +the rule that officers of an advanced age and after long service were +allowed upon retirement to receive only two thirds of their +salaries.[177] + +[176] _Ibid._, 1787, p. 800. + +[177] _Jo. H. C._, 1787, p. 800. + +The Postmasters-General had received in 1783, in addition to their +salaries, over £900 for coals. They had also received £694 for candles +during two years and a half and £150 for tinware for the same period. +Tankerville had taken his share of these perquisites, but it is only +fair to add that Carteret's emoluments exceeded his by £213 for the +periods under consideration. It had become customary to receive a money +payment in place of a large part of their supplies. In 1782 the total +sum going to the officials of the General Office amounted to £28,431, of +which sum about £10,000 were placed under the heading of emoluments +other than salaries.[178] Of all the departments of the Post Office, the +Sailing Packet Service was the one most in need of reform. + +[178] _Fin. Rep._, 1797, no. 7, pp. 82-83; _Jo. H. C._, 1787, p 817. + +The light, which was then let in among the dark places of the Post +Office, had a most excellent effect. Acting on the report furnished by +the committee of the House, a new establishment was effected in 1793. +The reforms were approved by the Postmasters-General and carried out +under the direction of the Lords of the Treasury. The good work had been +begun in 1784 by Palmer. He had appointed additional clerks, letter +carriers, surveyors and messengers, had established new offices, and had +increased the inadequate pay of minor officials. This had entailed an +increase of £19,022 in expenses in the General and Penny Posts, but the +increase was justified by increased efficiency and by larger returns +from the conveyance of letters. Of the total increase, £11,451 had been +spent on the General Office and £7571 on the Penny Post, to which had +been added eighty-six more letter carriers for London and seventy-eight +more for the suburbs, as well as some supernumerary carriers.[179] The +reforms introduced in 1793 may be grouped under three heads: regulations +respecting fees and emoluments, abolition of some offices and an +increase in officers and clerks in others; regulation of official +business. The regulations respecting fees and emoluments were +necessarily negative in their character. The most important were as +follows: The postmasters were no longer to pay fees to the +Postmasters-General on the renewal of the bonds given by their +securities. The two per cent allowed to the Scotch Deputy +Postmaster-General on all remittances from Scotland was discontinued and +a compensation for life was granted instead. The fees for tinware were +abolished, and the pension to the New York agent was to cease. No postal +official was allowed to own shares in the sailing packets, and with a +few minor exceptions all salaries were henceforth to be in lieu of every +emolument or fee.[180] + +[179] _Fin. Rep._, 1797, no. 7, pp. 3, 66-83. + +[180] _Ibid._, no. 7, pp. 52-65. + +A number of sinecure and useless offices were abolished. The chief among +them were: Jamineau's perquisite office which had the monopoly of +selling newspapers to the "Clerks of the Roads," the Secretary's +position as agent for the packets, the Controller of the Bye and Cross +Posts, the Inspector of Dead Letters in the Bye Letter Office, the +Collector in the Bye Letter Office, the Secretary of the Foreign Office, +and the Controller of the Inland Office.[181] + +[181] _Ibid._, no. 7, pp. 52-65. + +The changes in business regulations were as follows: The +Postmasters-General were no longer to include legal charges, chaise +hire, and pensions under the head of dead letters. The +Postmasters-General's warrant must be entered previous to any money +being paid. The payment of debts must be enforced. The West India +accounts should be sent to the deputy there every quarter. The payments +to mail coach contractors must be made directly by warrant instead of +through the Controller-General. No change was made in the anomalous +position of the Accountant-General. He was supposed to be a check upon +the Receiver-General, but had to depend upon the Receiver-General's +books for verifying the remittances from the deputies.[182] + +[182] _Ibid._, no. 7, pp. 8, 52-65. + +The Englishman's belief in the sanctity of vested interests has usually +been too strong to permit any abridgment of rights or privileges without +compensation. Those postal officials who had been dismissed or whose +sinecure offices had been abolished were not to be turned entirely +adrift. Provision was made for pensioning most of them. Before the +reform the total sum paid by the Post Office in pensions was £1500. The +incumbrances dismissed were allowed £6101, and between 1793 and 1797 +£1475 more were added to the pension list. It was pointed out at the +time that it was far better to pension them off and leave them to die +than to continue them in service. In 1797 it was a relief to be able to +announce "that already £648 had been saved from dead and promoted +pensioners."[183] + +[183] _Fin. Rep._, no. 7, p. 130. + +The report of the committee which had been appointed at Tankerville's +suggestion is silent on the question of the opening and detention of +letters. It had been provided by the act of 1711 that no letters should +be opened or detained except under protection of an express warrant from +one of the Secretaries of State. The Royal Commission of 1844 reported +that from 1712 to 1798, the number of warrants so issued was 101, +excluding those which were well known or easily ascertained. The +Secretary of State for the Inland Department issued most of them. From +1798 to 1844, 372 warrants were issued, many of them being general +warrants and often for very trivial causes. At the trial of Bishop +Atterbury, the principal witnesses against him were Post Office clerks, +who had opened and copied letters to and from him, under warrant from +one of the Secretaries.[184] + +[184] _Rep. Com._, 1844, xiv, pp. 9-11; app., p. 105 (78); app., p. 107 +(79); app., p. 111 (83). + +In addition to this regular method for intercepting letters, a +particular department had been in existence for some time with no other +duties than to examine letters. Strictly speaking it had nothing to do +with the Post Office and was supported entirely from the "Secret Service +Fund." The truth about it came out in the examination of the conduct of +Sir Robert Walpole by the "Committee of Secrecy." From 1732 to 1742, +£45,675 had been spent upon this department. It had originated in 1718 +and the expenses for that year were only £446, but by 1742 they had +increased more than tenfold. The Secretary of the Post Office in giving +his evidence before the committee, said that this office received +instructions from the Secretaries of State and reported to them. The +working force consisted of a chief decipherer, assisted by his son and +three other decipherers, five clerks, the Controller of the Foreign +Office, a doorkeeper and a former alphabet keeper. Either considerable +business was transacted there or it was a retreat for useless +officials.[185] + +[185] _Rep. Com_., 1844, xiv, app., p. 112 (84); _Cal. T. B. & P_., +1742-45, p. 669. + +An account is given in Howell's "State Trials" of the trial of Hensey +and of the practice then in vogue for finding treasonable +correspondence. His letters were handed over for investigation to the +Secretary of State by a Post Office clerk. This clerk in giving his +evidence said that when war was declared against any nation, the +Postmasters-General issued orders at once to stop all suspected letters. +These orders were given to all the Post Office clerks and letter +carriers. Such instructions can only be justified as a war measure, for +the act of 1711 had provided that no letter should be detained or opened +unless by express warrant from one of the Secretaries of State for every +such detention or opening.[186] + +[186] _Rep. Com_., 1844, xiv, app., p. 112 (85); Howell, _State Trials_, +xix, col. 1369. This was in 1758. + +We find very few complaints about the opening of letters during the +second half of the eighteenth century. On the other hand it must be +confessed that letters were at times opened and searched merely to learn +the beliefs and plans of political opponents. It is difficult to +determine to how great an extent this practice was prevalent as there +seems little doubt that the complainants may occasionally have been +prompted by their own vanity to believe that their correspondence had +been tampered with.[187] In 1795, during the great war with France, the +Government ordered all letters directed to the United Provinces to be +detained. The question then was, what was to be done with them? None of +them seems to have been opened and the cause for their detention was +only to prevent any information being given to the enemy. Accordingly +by an act of Parliament passed in the same year, the Post Office was +empowered to return them to the writers.[188] + +[187] Joyce is of opinion that such practices were very common. So also +is May (T. E. May, _Constitutional History of England_, 1882, iii, pp. +44-49; D. B. Eaton, _Civil Service in Great Britain_, New York, 1880, p. +115). + +[188] 35 Geo. III, c. 62. + +Although the larger part of the fees and emoluments enjoyed by the +postal officials had been abolished in 1793, the proceeds from those +which were left continued to increase steadily. By far the most +lucrative was the privilege of franking newspapers, within the kingdom, +to the colonies, and to foreign countries. Ever since newspapers had +been printed, the "Clerks of the Roads" had been allowed to send them to +any part of the kingdom without paying postage. After 1763, when members +of Parliament were allowed the same privilege, every one felt at liberty +to make use of a member's frank for this purpose, and the Clerks +suffered accordingly. Newspapers to the Colonies were franked by the +Secretary of the Post Office and produced a revenue of £3700 in 1817, +all of which went to Sir Francis Freeling who was then Secretary. In +1825 the privilege of franking papers within the kingdom and to the +colonies was withdrawn, but compensation was granted to Sir +Francis.[189] This did not end the trouble, for the Clerks still acted +as newspaper venders. On account of their official position they were +able to post them until 8 P.M., while the regular newsvenders were +allowed to do so only until 5 P.M. at the Lombard Street Office and 6 +P.M. at the General Office or they must pay a special fee of a halfpenny +on each.[190] Mr. Hume, the member for Montrose, brought the case before +the House, and in 1834 all Post Office officials were forbidden to sell +newspapers. At the same time the officials in the Foreign Office lost +the right to frank papers to any foreign country.[191] + +[189] _Rep. Commrs._, 1829, xi, pp. 215-222. + +[190] London _Times_, 1829, Oct. 6, p. 2; _ibid._, 1832, March 14, p. 1. + +[191] _Parl. Deb._, 3d ser., xxiv, col. 875. + +The members of the Secretary's office had, since 1799 and 1801, issued +two official publications, which paid no postage. These were called the +"Packet List" and the "Shipping List." The first of these contained all +the intelligence received at the Post Office concerning the sailing +packets. The second contained information about private vessels, +furnished principally by "Lloyds." The Commissioners commented upon this +practice in very uncomplimentary language.[192] In addition, the +members of the Secretary's department received fees on the deputations +granted to new postmasters in England and Wales, upon commissions +granted to agents and postmasters abroad, upon private expresses to and +from London, and upon news supplied to the London press during a general +election.[193] In 1837 the fees on deputations and commissions were +abolished, private expresses were discontinued, the "Shipping List" was +discontinued, and the "Packet List" passed from the control of the Post +Office. The revenue from these fees in the Secretary's Office which were +still continued was to go henceforth to the general revenue.[194] + +[192] _Acc. & P._, 1817, pp. 4-16; _Rep. Commrs._, 1837, xxxiv, 8th rep. +app., nos. 12, 13, 14. + +[193] _Ibid._, 1837, xxxiv, 8th rep., app., no. 12. + +[194] _Acc. & P._, 1837-38, xlv, 265, p. 5. + +An extra charge of 6_d._ was demanded upon letters posted between 7 P.M. +and 8 P.M. This had been the rule since 1800, and the proceeds went +either to the Inland or Foreign Office. So also did the registration +fees on ships' letters. These fees were transferred to the general +revenue in 1837.[195] In 1827 the total amount received in fees, +emoluments, and gratuities by the officials in the London Office was +£23,100, by agents and country postmasters £16,500. Most of these were +either abolished or transferred to the general revenue in 1837.[196] + +[195] _Rep. Commrs._, 1837, xxxiv, 8th rep., app., no. 3. + +[196] _Rep. Commrs._, 1829, xi, p. 214. + +The distinguishing feature of the Post Office during the eighteenth +century was the extension of its service, which accompanied the +industrial expansion of the kingdom. The abuses which naturally flourish +during a prosperous period had been largely remedied by the reform of +1793. The nation's need for a larger revenue led not only to a great +increase in postage rates but also to stricter economy in the +organization of the Post Office. The London and Dublin Penny Posts were +reformed and extended, the work of the General and Penny Posts in London +was harmonized, the employees were increased, and the new departments +which had been established were reformed and consolidated. + +The Newspaper Office which had been illegally established by Palmer was +continued after his dismissal. Walsingham had objected to it on the +ground that Palmer had no right to appoint any officials without his +consent. Previously all newspapers had been forwarded to the postmasters +free of postage by the "Clerks of the Roads." Now that they might be +sent with the letters, they were brought in at the last moment still wet +from the press so that they defaced the writing on the letters sent in +the same bag.[197] In 1784 a Dead Letter Office was also established. +Previously, dead and missent letters had been handed to a clerk in the +General Office. During Allen's farm of the cross and bye post letters, +missent letters were no longer forwarded to London, but any postmaster, +into whose hands they came, was instructed to place them on the right +track.[198] Four years later a third office was instituted, a Money +Order Office. No order could be issued for more than five guineas and +the fee for that sum was 4_s._ 6_d._ It was started as a private +speculation by some of the postal officials and so remained until 1838 +when it was taken over by the General Post Office.[199] + +[197] _Parl. Papers_, 1812-13, _Rep. Com._, ii, p. 87. + +[198] _Fin. Rep._, 1797, no. 7, pp. 82-83. + +[199] W. Thornbury, _Old and New London_, ii, p. 212. + +The policy of the Post Office with reference to the registration of +letters containing valuables varied with the nature of the enclosure and +the manner in which it was sent. On ships' letters sent from England, +the registration fee was one guinea, and a receipt was given to the +person sending a registered letter. The fee for a letter coming into the +kingdom was only 5_s._[200] If bank notes were enclosed in a letter, it +received no special attention from the Post Office. If gold or silver +was sent in a letter marked "money letter," the postmaster placed it in +a separate envelope and made a special entry on the way bill, which was +repeated at every office it passed through. No special fee was charged +for the extra attention bestowed upon these letters until 1835 when the +Postmaster-General was allowed to charge a fee for their registration in +addition to the ordinary postage.[201] The Money Order Department, still +a private undertaking, had its fees reduced from 6_d._ to 3_d._ on sums +not exceeding £2 and from 18_d._ to 6_d._ on sums exceeding £2 but not +more than £5.[202] + +[200] _Rep. Commrs._, 1837, xxxiv, 8th rep., app., no. 3. + +[201] _London Times_, 1832, Apr. 27, p. 3; 5 and 6 Wm. IV, c. 25; 3 and +4 Vict., c. 96. + +[202] London _Times_, 1837, Jan. 26, p. 5; Dec. 13, p. 4; _Acc. & P._, +1841, xxvi, 221, no. 6. + +At the same time that the General Post was being reformed, a former +letter carrier by the name of Johnson was improving the Penny Post. The +six principal receiving-houses which Dockwra had instituted had been +reduced to five and were now still further reduced to two. The +subsidiary receiving-houses in the shops and coffee-houses were +increased and the number of letter carriers more than doubled. Six +regular deliveries for the city proper and three for the suburbs were +introduced. Before 1793 the deliveries in the city had not been made at +the same time, for the carriers had to go to one of the main +receiving-houses to get their letters. The deliveries were now made as +near the same time as possible all over the city and the delivery hours +were posted so that people might know when to expect the carriers and +thus act as a check upon them. Mounted messengers conveyed the letters +to those carriers who delivered in distant parts of the city.[203] + +[203] Joyce, p. 302; _Fin. Rep._, 1797, no. 7, p. 83. + +In 1794 an act was passed "to regulate the postage and conveyance of +letters by the carriage called the Penny Post." The rate for letters +posted in London, Westminster, Southwark and the suburbs for any place +within these places and their suburbs remained one penny. Letters sent +from these places to any place outside paid 2_d._ as before. Hitherto +letters sent from outside to London, Westminster, Southwark and the +suburbs had paid only one penny. This was raised by the act of 1794 to +2_d._ It was also provided that the postage for Penny Post letters need +not be paid in advance. This would increase the expense but the idea was +probably to secure greater safety in the delivery of letters. Finally, +the surplus revenue at the end of each quarter was to be considered part +of the revenue of the General Post.[204] + +[204] 34 Geo. III, c. 17. + +The changes introduced by Johnson and the act of 1794 were in the right +direction. This seems a reasonable conclusion not so much on account of +the increase in net product, which was not great, as on account of the +increase in gross product, showing that the number of letters and +parcels sent by the Penny Post had doubled. The financial condition of +the Penny Post before and after the reform is shown by the following +figures:-- + + _Average Yearly_ _Average Yearly_ _Average Yearly_ + _Gross Product_ _Expense_ _Net Product_ + + 1790-1794 £11,089 £5289 £6000 + 1795-1797 £26,283 £18,960 £7323[205] + +[205] _Parl. Papers_, 1812-13, _Rep. Com._, ii, p. 94. + +London was not the only place which could boast a Penny Post in 1793. +The system was extended in that year to Edinburgh, Manchester, Bristol, +and Birmingham, while Dublin had been so favoured since 1773. It is +almost unnecessary to add that in all these places, it was a pronounced +success from a financial and social point of view.[206] + +[206] Joyce, pp. 196, 300. + +In 1801 the London Penny Post which had lasted for 120 years was +practically swept out of existence, for 2_d._ was then charged where a +penny had formerly been the rate. An exception was made in the case of +letters passing first by the General Post, for on these the old rate +still held.[207] Four years later, the limits of the Twopenny Post, as +it was called, were restricted to the General Post Delivery and 3_d._ +was charged for letters crossing the bounds of this delivery. This was +called the Threepenny Post.[208] The effect of the increased rates and +the growth of population in the metropolis is shown by the increase in +gross receipts, which rose from £11,768 in 1703 to £96,089 in 1816 and +to £105,052 in 1823. During the same period, the number of letter +carriers was increased from 181 to 235, and nineteen officials were +added to the establishment.[209] + +[207] 41 Geo. III, c. 7. + +[208] 45 Geo. III, c. 11. + +[209] _Acc. & P._, 1817, pp. 15, 16; _Rep. Commrs._, 1829, xi, pp. 10, +136. + +Although the General, the Twopenny, and the Threepenny Posts, were all +under one management, no attempt was made to harmonize their methods of +procedure until 1831. Letters for the General Post were often entrusted +to the Twopenny Post but the receiving-houses of both Posts were +frequently established in the same street and close together. The +General Post had seventy receiving-houses in the city, the Twopenny Post +209, the Threepenny Post 200 more in the suburbs and adjoining country. +In addition there were 110 "bellmen" who collected letters from door to +door, ringing their bells as they went. They charged one penny for each +letter collected.[210] The General Post receiving-houses closed at 7 +P.M., the Twopenny receiving-houses at 8 P.M., but letters might be +posted at the Charing Cross Office until 8.30 and at the General Office +until 9 P.M.[211] At the beginning of the nineteenth century, there were +three deliveries, by the Inland, Foreign, and Twopenny Post carriers. +The limits of the Inland Post Delivery were very irregular and left out +a large part of the populous suburbs. The Foreign Post Delivery was also +very irregular and still more restricted in area. The Twopenny Post +Delivery included London, Westminster, Southwark and their suburbs, and +was the most extensive. Letters were delivered by the Threepenny Post +within an irregular area bounded on the inside by the Twopenny Delivery +and extending nearly twelve miles from the General Post Office. The +separate delivery of foreign letters was abolished first and all foreign +letters were delivered by the General Post carriers, and in 1831 the +deliveries of the General and Twopenny Posts were made co-extensive, +extending to a distance of three miles from the General Office at St. +Martin's-le-Grand. Three years later the Twopenny Post building in +Gerard Street was given up and all Twopenny Post letters henceforth were +sent to the General Post Office building to be sorted.[212] + +[210] _Rep. Commrs._, 1837, xxxiv, 9th rep., app., no. 1; _ibid._, 1829, +xi, pp. 310-311; _London Times_, 1825, Dec. 6, p. 2. + +[211] London _Times_, 1835, Jan. 24, p. 3. + +[212] _Rep. Commrs._, 1837, xxxiv, 9th rep., app., nos. 30, 63, 64. + +The regular collections of Twopenny Post letters were made at 8 A.M., 10 +A.M., 12 M. and 2, 5 and 8 P.M. Deliveries were made at the same hours +in the morning, at noon, and at 2, 4 and 7 o'clock in the afternoon. A +letter posted at or before 8 A.M. was sent for delivery at 10 A.M. and +so on. The letters collected were taken to the General Office by +horsemen to be sorted. Two sets of men were employed, one collecting +while the other delivered.[213] There was an additional "early delivery" +as it was called. The carriers on the way to their own "walks" +delivered letters to subscribers, who paid 5_s._ a quarter for the +accommodation thus afforded. The postage for letters so delivered was +not paid until the carriers called again on their regular delivery.[214] +In 1837 the times of the regular deliveries were changed to every second +hour from 8 A.M. to 8 P.M. and collections were made at the same +hours.[215] In the Threepenny Post limits, there were on an average +three deliveries a day but those towns which had a General Post delivery +received only two a day from the Threepenny Post. Letters were sent by +horsemen or mail carts for delivery. The same receiving-houses were used +for General and Threepenny Post letters.[216] + +[213] _Ibid._, 1837, xxxiv, 9th rep., app., no. 1; London _Times_, 1835, +Jan. 24, p. 3. + +[214] _Rep. Commrs._, 1829, xi, p. 50; _Parl. Deb._, 1st ser., xxxi, +col. 943; _Acc. & P._, 1826-27, xx, p. 397. + +[215] _Ibid._, 1837-38, xlv, 265, p. 6. + +[216] _Rep. Commrs._, 1837, xxxiv, 9th rep., app., no. 1. + +The Dublin Penny Post was remodelled in 1810. The deliveries, which had +been only two a day, were increased to four and then to six, additional +letter carriers were appointed and receiving-houses established. The +penny delivery extended to four miles around the city. There was a 2_d._ +rate for letters beyond the four mile radius.[217] Previous to 1835, the +boundary of the Edinburgh Penny Post was a circle with a radius of 1-3/8 +miles from the Register Office. Some Scotch mathematician must have been +consulted when in 1835 the boundary was made an ellipse with its foci a +furlong apart, the distance from each focus to the most remote part of +the circumference being 1-5/16 miles. Outside this ellipse, there was a +2_d._ rate. There had been three deliveries a day, raised in 1838 to +five.[218] + +[217] _Ibid._, 1829, xii, p. 73; 7 Wm. IV, and 1 Vict., c. 34. + +[218] _Rep. Com._, 1837-38, xx, 2d rep., app. E, no. 31. + +Before 1837 Penny Posts had also been established in Newcastle and +Glasgow.[219] + +[219] _Rep. Commrs._, 1837, xxxiv, 9th rep., app., no. 14. + +Since nearly all the mail coaches left London at 8 o'clock in the +evening, most of the letters arriving there in the morning for outside +places were not despatched until the same evening. It was pointed out by +the commissioners in the Report of 1837 that a large proportion of these +letters might be forwarded by the post coaches.[220] If they arrived on +Saturday morning they were not forwarded until Monday evening since +Sunday was not a mail day and mail coaches arriving on Sunday were +detained in the outskirts of the city.[221] The rumour that the Post +Office was considering the expedience of a Sunday Post brought forth a +flood of protests. Bankers, merchants, vestries, and religious societies +were represented by delegations and petitions to the Postmaster-General +and the House of Commons, praying that no change might be made.[222] +Sixteen hundred solicitors joined in the opposition. Lord Melbourne +informed the Bishop of London that the subject was not under +consideration, and the Chancellor of the Exchequer told Sir Robert +Inglis that the Government had no intention of opening the Post Office +on Sunday.[223] Derby had a Sunday delivery in 1839, but, on their own +request, many of the inhabitants were excluded from it.[224] + +[220] _Ibid._, 1837, xxxiv, 7th rep., p. 7, and app., nos. 46, 47, 48. + +[221] _Acc. & P._, 1837, l. 316. + +[222] _Ibid._, 1837, xlvi, 176. + +[223] _Parl. Deb._, 1st ser., xlvi, coll. 206, 332. + +[224] London _Times_, 1839, June 1, p. 7. + +For over forty years all the mail-coaches in England were provided by +one man, with whom a new contract was made every seven years. Before +1797 a penny a mile was paid each way but on the imposition of a tax on +carriages, the rate was raised to 1-1/2_d._, then to 1-3/4_d._, and +later to 2-1/8_d._ a mile. One contractor supplied the coaches, others +provided horses and drivers, but the guards were hired directly by the +Post Office. In Scotland and Ireland, coaches, horses, and drivers were +all provided by the same men. The number of miles a day covered by the +mail-coaches in 1827 was 7862 and the mileage allowance for that year +was £46,900. When the mails were exceptionally heavy, mail carts were +used, which cost somewhat more than the coaches, since they carried no +passengers. In 1836 the contract for the supply of coaches was thrown +open to public competition. By this move, the expenses dropped from +£61,009 a year to £53,191 although the total distance travelled per day +increased from 13,148 to 14,482 miles.[225] The mail-coaches were at a +disadvantage in competing with the post-coaches, since the former were +allowed to carry no more than four inside and two outside passengers +nor were they allowed to carry any luggage on the roof.[226] On the +other hand the mail-coaches in England paid no tolls until 1837.[227] +The 268 mail guards of the British coaches received £7577 in salaries in +1837, paid directly by the Post Office. Seven inspectors were also +employed at a fixed yearly salary and 15_s._ a day when travelling. They +superintended the coachmen and guards, investigated complaints, delays, +and accidents, and made preliminary agreements in contracting for +coaches.[228] The majority of the Irish coaches had paid tolls ever +since they had been introduced. Generally they were paid by the Post +Office at stated intervals. The total distance travelled by mail-coaches +in Ireland in 1829 was 2160 miles each day, by mail-carts 2533 miles. +The number of guards employed was eighty-five, receiving £2935 a year. +The Irish coaches were allowed to carry four outside passengers.[229] + +[225] _Parl. Papers_, 1811, _Rep. Com._, p. 9; _Rep. Commrs._, 1837, +xxxiv, 7th rep., apps. 5, 7, 26, p. 71; London _Times_, 1832, Apr. 27, +p. 2; _Acc. & P._, 1837-38, xlv, 265, p. 3: 265, p. 4; _Rep. Commrs._, +1829, xi, p. 294. + +[226] _Parl. Papers_, 1811, _Rep. Com._, pp. 10, 32, 50, 51. + +[227] _Ibid._, 1811, _Rep. Com._, p. 1; _Parl. Deb._, 1st ser., xix, +col. 683; Wm. IV and I Vict., c. 33. + +[228] _Rep. Commrs._, 1829, xi, p. 34; _ibid._, 1837, xxxiv, 7th rep., +app., nos. 30, 31. + +[229] _Parl. Papers_, 1811, _Rep. Com._, p. 1; 43 Geo. III, c. 28; _Rep. +Com._, 1831-32, xvii, pp. 336, 338, 339; _Rep. Commrs._, 1837, xxxiv, +7th rep., app., no. 31. + + +The first railway in England over which mails were carried was operated +between Manchester and Liverpool. In 1838 the Government paid the Grand +Junction Railway 5-7/8_d._ a single mile for the conveyance of its +mails. At the same time the average rate by the coaches was 2-1/8_d._ a +single mile. On the London and Birmingham Railway when a special Post +Office carriage was used, 7-1/2_d._ was paid. When the ordinary +mail-coach was carried on trucks the rate was 4-1/4_d._ When a regular +railway carriage was used, the rate was 2-1/2_d._ a mile for one third +of a carriage.[230] For the year ending 5th January, 1839, the Post +Office paid £105,107 for the conveyance of mails by coaches and £9883 to +the railways. For the next official year, the figures had risen to +£109,246 and £39,724.[231] + +[230] _Ibid._, 1837, xxxiv, 7th rep., app., nos. 12, 13. The first day +coach left London in 1837, connecting at Birmingham with the railway to +Hartford, Cheshire. (London _Times_, 1837, Sept. 5, p. 4; _Rep. Com._, +1837-38, xx, pts. 1 and 2, 2d rep., app. E, No. 48; pt. 1, p. 469, no. +17.) + +[231] _Acc. & P._, 1841, xxvi, 221, no. 5. + +The increased business of the Post Office made necessary a corresponding +increase in the employees and better arrangements for dealing with the +reception and despatch of letters. The number of persons employed in the +General Office in 1804 was 486. In 1814 there were 576. There were 563 +postmasters in England and over 3000 persons officially engaged in the +receipt and delivery of letters. Additional offices had also been +established. In 1813 a Returned Letter Office was organized for the +purpose of returning undelivered letters to the writers and collecting +the postage due. Previous to 1813, the practice had been to return only +such letters as appeared to contain money or were supposed to be +important enough to escape destruction. A Franking Department was +organized to inspect such letters as were sent free. The increased use +of private ships for conveying letters led to the establishment of a +Ship Letter Office.[232] + +[232] _Parl. Papers_, 1813-14, _Rep. Com._, p. 35; _Acc. & P._, 1817, +pp. 4-16; _Rep. Commrs._, 1829, xi, p. 137. + +The old Post Office building in Lombard Street was quite too small to +provide for the new offices and employees. The Inland Department +contained only 3140 superficial feet, half of which was occupied with +sorting tables, leaving only 1500 feet for 130 persons. In the Foreign +Department with thirty-five men, there were only 250 superficial feet +where they must perform their duties. The accommodations for receiving +letters were so inadequate that when a foreign mail was being made up, +the windows were crowded with an impatient and seething mob waiting for +their turn to post their letters. The condition of the Penny Post +Department was no better. In 1814 a committee of the House of Commons +reported that a new General Post Office building was absolutely +necessary. Objections were raised on account of the necessary expenses +involved and it was not until 1829 that the new Post Office in St. +Martin's-le-Grand was formally opened.[233] + +[233] _Parl. Papers_, 1813-14, _Rep. Com._, pp. 11-16. + +In 1784 Ireland was given much larger political powers than she had +previously enjoyed, and her Parliament was freed from the direct +tutelage of the English Privy Council. At the same time greater latitude +in postal matters was also granted. An Irish Postmaster-General was +appointed to reside in Dublin and to collect the postage on all letters +which did not pass beyond Ireland. The postage between the two countries +was to be collected on delivery, and then to be divided between the two +according to the distance travelled in each. All net receipts from the +Irish Office were ordered to be transmitted to London. The sailing +packets remained in the charge of the English Postmasters-General, but +£4000 a year was paid to the Irish Office for this privilege.[234] + +[234] 24 Geo. III, c. 6. + +After the separation of the Irish from the English Post Office, +different postage rates had been established for the two countries. The +division of authority thus established had caused endless difficulties. +Complaints about the delay or loss of letters crossing the Channel at +Kingstown, Howth, and Waterford were referred from one office to the +other. The Commissioners who inquired into the condition of the Dublin +Office found things in a deplorable condition. There were nearly as many +postal officials employed in Dublin as in London, although the number of +letters handled was not one fourth so great. In the secretary's office, +employing six persons, the fees amounted to £2648 a year, largely on +English and Irish newspapers. In the whole Dublin establishment they +averaged over £15,000 a year. The contracts for the supply and horsing +of the mail-coaches were supposed to be public but they were awarded by +favour. The Postmasters-General did not attend to business and were very +jealous of each other. The Commissioners recommended the amalgamation of +the English and Irish offices, and this was accomplished in 1831, the +Irish postage rates having been altered four years earlier to coincide +with the English rates.[235] + +[235] _Rep. Commrs._, 1829, xii, 253, pp. 7, 8, 15-84; _ibid._, 1837, +7th rep., app. nos. 22, 68; 7 and 8 Geo. IV, c. 21. + +Ireland was divided into eight postal divisions, according to the routes +of the mail-coaches. Mails left Dublin at 7 A.M. with an additional mail +for Cork at noon. They arrived in Dublin between 6 and 7 A.M. The most +important postal centres in addition to Dublin were Belfast, Cork, +Limerick, and the packet stations at Waterford and Donaghadee. The total +number of post towns in Ireland was 414. At the same time there were in +Great Britain 546 post towns.[236] A new post office building was +completed in Dublin in 1821 at a cost of £107,000.[237] + +[236] _Rep. Commrs._, 1829, xii, 253, pp. 7, 8; 1831-32, xvii, p. 325. + +[237] 48 Geo. III, c. 48; _Parl. Papers_, 1821, xix, 286. + +The Scotch Post Office had been amalgamated with the English Office in +1711, and Scotland was constituted one of the eighteen postal divisions +of Great Britain. The Scotch rates had been the same as the English +rates since that date, although an additional half-penny was paid on +Scotch letters to meet mail-coach tolls. In 1821 there were only eight +towns for which mails were made up. At the same time that a new building +for the use of the Post Office was being erected in Dublin, a contract +was signed for a new General Office building for Edinburgh to cost +£14,000.[238] + +[238] _Rep. Commrs._, 1829, xii, 353, p. 8; _Parl. Papers_, 1821, xxi, +423. + +The rates established by the act of 1765 were still unchanged for the +colonial possessions of the United Kingdom. The American dominions had +been sadly depleted by the Revolutionary War but the postage revenue +from the loyal remnants had steadily increased. In 1838 the amount of +postage charged upon the colonial postmasters in America amounted to +£79,000. At one time Jamaica had been the most important American colony +from a postal point of view. Canada now took the lead, followed in order +of importance by Jamaica, Nova Scotia, and New Brunswick. In 1834 it was +provided that, as soon as the North American Provinces passed postal +acts of their own and these acts were approved by the King, the colonial +rates of 1765 should cease and the net postal revenue of the North +American Provinces should be retained by them.[239] + +[239] _Rep. Com._, 1837-38, xx, pts. 1 and 2, 2d rep., app. E, no. 42; 4 +and 5 Wm. IV, c. 7. + +The British Post Office was now to experience the most far reaching and +vital change since 1635. Sir Rowland Hill was the representative of the +movement, aided by Mr. Wallace, who, as a member of Parliament, was able +to exercise an important effect upon the proposed reform. The history of +the adoption of penny postage has been so well told by Hill himself that +only a bare story of its acceptance by Parliament is necessary here. A +committee was appointed to report upon the condition of the Post Office, +the attitude of postal officials and of the public towards the proposed +change, its effect upon the revenue, and finally to give their own +opinion. This committee examined the Postmaster-General,[240] the +Secretaries and Solicitors of the London, Dublin, and Edinburgh offices, +other officials in the Post Office, the Chairman, Secretary, and +Solicitor of the Board of Stamps and Taxes, Rowland Hill and +eighty-three other witnesses from different classes of people, and +obtained many reports from the Post Office. Hill presented his plan to +the Committee as follows:-- + +That inland letters should pay postage according to weight at the rate +of one penny for each half ounce.[241] + +Such postage should be paid in advance by means of stamped papers or +covers.[242] + +An option might be allowed for a time to pay a penny in advance or 2d. +on delivery.[243] + +Day mails should be established on the important lines of +communication.[244] + +[240] Since 1823 there had been only one Postmaster-General, as the dual +system was abolished in that year. + +[241] _Rep. Com._, 1837-38, xx, pt. 1, 3d rep., 708, p. 3. + +[242] _Ibid._, 1837-38, xx, pt. 1, p. 13; xx, questions 113, 128, 129, +548. + +[243] _Ibid._, 1837-38, xx, pt. 1, p. 13; _ibid._, xx, qs. 113, 128, +129, 548. + +[244] _Ibid._, 1837-38, xx, qs. 750-59, 890-92. + +There should be a uniform rate of postage because the cost of +distributing letters consisted chiefly in the expenses for collecting +and delivering them.[245] The plan then in operation for letters not +exceeding one ounce in weight was to charge according to the number of +enclosures. This plan was uncertain because the number could not always +be ascertained, necessitated a close examination, and was evaded by +writing several letters on one sheet.[246] + +[245] _Ibid._, 1837-38, xx, qs. 114, 11092-97; pt. 1, 3d rep., 708, p. +5; pts. 1 and 2, 2d rep., app. E, no. 58. + +[246] _Ibid._, 1837-38, xx, qs. 3116, 4599, 8137, 9770; 3d rep., p. 44. + +Payment on delivery made it necessary to keep two separate accounts +against each postmaster, one for unpaid letters posted in London, and +one for paid letters posted in the country. The postmasters had also to +keep accounts against each other. Payment in advance, if made +compulsory, would do away with half of these accounts and the use of +stamped covers or paper would do away with the other half.[247] In some +small places where the penny charge would not cover the cost of +delivery, Hill proposed that a small additional charge be made, either +in advance or on delivery, but he withdrew this suggestion later.[248] + +[247] _Ibid._, 1837-38, xx, 3d rep., pp. 35, 38; qs. 113, 620, 621. + +[248] _Ibid._, 1837-38, xx, pt. 1, pp. 48, 59, 424; pts. 1 and 2, 1st +rep., no. 25, p. 508. + +The witnesses summoned to give their evidence before the committee +pointed out that a multitude of business transactions were not carried +on at all, or were carried on clandestinely, or were hampered by the +high postage rates. Bills for small amounts were not drawn,[249] +commercial travellers did not write until several orders could be sent +on one sheet of paper,[250] samples were not sent by post,[251] +communication between banks and their branches was restricted,[252] +statistical information was denied,[253] social correspondence +restricted especially among the poor,[254] working men were ignorant of +the rates of wages in other parts of the country,[255] and the high +postage was a bad means of raising revenue.[256] In order to estimate +the probable revenue after the change, it was necessary to know the +number of letters carried. Hill had come to the conclusion that the +total number was about 80,000,000 a year. The Secretary, Maberley, +considered that there were about 58,000,000. A return was called for by +the committee and Hill's estimate proved to be nearly correct.[257] + +[249] _Rep. Com._, 1837-38, xx, qs. 6682, 7093. + +[250] _Ibid._, q. 7668. + +[251] _Ibid._, qs. 7671, 7721. + +[252] _Ibid._, q. 10,059. + +[253] _Ibid._, qs. 6951, 10,305. + +[254] _Ibid._, qs. 2923, 5522-54, 5443-54, 6703, 7961. + +[255] _Ibid._, qs. 7991, 9840-42. + +[256] _Ibid._, qs. 8126, 8130 (Lord Ashburton). + +[257] _Ibid._, pt. 1, pp. 9, 434; _ibid._, pt. 2, pp. 59, 658; app., p. +58; _ibid._, pts. 1 and 2, 3d rep., p. 19. + +The committee reported that the Post Office "instead of being viewed as +an institution of ready and universal access, distributing equally to +all and with an open hand the blessings of commerce and civilization, is +regarded as an establishment too expensive to be made use of" (by large +classes of the community) "and as one with the employment of which they +endeavour to dispense by every means in their power." They were on less +solid ground when they proceeded to state that the idea of obtaining +revenue had been until lately only a minor consideration and that the +Post Office had primarily been established for the benefit of trade and +commerce.[258] Finally Hill's plan was approved, though only by the +casting vote of the chairman, Mr. Wallace. + +[258] _Ibid._, 1837-38, xx, pt. 1, 3d rep., p. 10. + +The House of Commons received the proposed change with favour. Over 300 +petitions with 38,000 signatures were presented praying for its +adoption. The Duke of Richmond, a former Postmaster-General, thought +that it would be beneficial and that it was the only means of stopping +the illegal conveyance of letters.[259] Sir Robert Peel was of the +opinion that, with the prevailing deficits, it was an unfortunate +departure, and he feared that prepaid letters would not be +delivered.[260] But the Treasury was given power to lower rates and in +1840 a treasury warrant was issued, imposing postage rates between the +colonies and between foreign countries through Great Britain according +to weight and distance.[261] Stamped covers were issued for the use of +members of Parliament, and in 1840 an act was passed establishing penny +postage for the United Kingdom, permitting the use of stamped paper or +covers, and imposing rates on foreign and colonial letters according to +weight and distance conveyed.[262] + +[259] _Rep. Com._, 1837-38, xx, 2d rep., app., p. 3; _Parl. Deb._, 3d +series, xlvii, col. 1231. + +[260] _Ibid._, 3d series, xlvii, coll. 278-84, 293. + +[261] _Acc. & P._, 1841, xxvi, p. 53; 1839, xlvi, p. 568. + +[262] _Parl. Deb._, 3d series, li, col. 227; 3 and 4 Vict., c. 96. + +The complete change thus produced in the policy of the Post Office is +vividly set forth by the old Secretary, Sir Francis Freeling. "Cheap +postage"--he writes, "What is this men are talking about? Can it be that +all my life I have been in error? If I, then others--others whose +behests I have been bound to obey. To make the Post Office revenue as +productive as possible was long ago impressed upon me by successive +ministers as a duty which I was under a solemn obligation to discharge. +And not only long ago. Is it not within the last six months that the +present Chancellor of the Exchequer[263] has charged me not to let the +present revenue go down? What! You, Freeling, brought up and educated as +you have been, are you going to lend yourself to these extravagant +schemes? You with your four-horse mail coaches too! Where else in the +world does the merchant or the manufacturer have the materials of his +trade carried for him gratuitously or at so low a rate as to leave no +margin of profit?"[264] + +[263] The Rt. Hon. Thomas Spring Rice. + +[264] Joyce, pp. 427-28. + + + + +CHAPTER IV + +THE POSTAL ESTABLISHMENT AN INSTRUMENT OF POPULAR COMMUNICATION + + +With the inauguration of inland penny postage the Postal Establishment +ceased to exist primarily as a tax-collecting agency, and, although +maintained as a whole upon a paying basis, certain of its recent +experiments have, from a financial point of view, been far from +successful. On the other hand, the simultaneous unification and +reduction of rates, together with various other changes which have been +adopted since 1840, have resulted in lessening appreciably the expenses +of management. + +The postage on inland letters was reduced in 1865, 1871, 1884, and again +in 1897. In 1839, the last year of high postal rates, the total number +of letters, including franks, delivered in the United Kingdom, was +somewhat in excess of eighty-two millions. This number was rather more +than doubled in the following year. During the ensuing ten years the +figures were again doubled, the total in 1850 being 347 millions. For +the five-year period 1866-70, following the reduction in postage of +1865, the average yearly number delivered was 800 millions. In 1875 this +increased to a little over 1000 millions; in the postal year 1880-81 to +1176 millions, in 1890-91 to 1705 millions, and in 1900-01 to 2323 +millions.[265] So far as colonial letters were concerned, a marked +reduction in rates was granted soon after inland penny postage was +obtained, the reduction being extended to the larger part of the +Empire.[266] Further reductions followed until, in 1898, a penny half +ounce rate was established for most of the colonies, and all were +included in 1905. As on a previous occasion, the United States was the +first foreign country with which an agreement was made to adopt this low +rate, and its advantages have been enhanced still further by an +increase in the initial weight from half an ounce to an ounce. During +the sixties, treaties were entered into with the most important European +countries for lower postage rates, and, in 1874, at the first meeting of +the Postal Union, a uniform rate for prepaid letters of 2-1/2_d._ a half +ounce was agreed to. Reductions also followed for other postal matter. +In 1891 a universal foreign letter rate of 2-1/2_d._ was announced so +far as the United Kingdom was concerned, with the exception of those +countries where a lower rate already prevailed, and a further reduction +followed in 1907 by increasing the initial weight from half an ounce to +an ounce in the case of all foreign and colonial letters, the charge on +foreign letters for each unit after the first being reduced at the same +time from 2-1/2_d._ to 1-1/2_d._ + +[265] _Rep. P. G._, 1855, p. 65; 1881, app., p. 11; 1891, app., p. 16; +1901, app., p. 25. + +[266] Colonial legislatures were given the power in 1849 to establish +posts of their own and to fix the inland postal rates (12 and 13 Vict., +c. 26). + +After 1840 the registration fee was reduced by a series of gradations +from 1_s._ to 2_d._, and the compulsory registration of all letters +containing coin was enforced. In 1891 the separate system of insurance +was abolished, and registration was extended for the first time to +inland parcels. The limit of compensation was increased at the same time +to £25 and in the following year to £50 by the payment of 2_d._ for the +first £5 and an additional penny for each additional £5 of +insurance.[267] Seven years later the amount of compensation payable was +increased to £120 and the fee payable was lowered for all sums over £15. +Arrangements were also made by which letters addressed to certain +colonies and foreign countries might be insured to the same maximum +amount.[268] The limit of compensation is now £400 for inland registered +correspondence as well as for correspondence to many foreign countries +and a few of the colonies. + +[267] _Rep. P. G._, 1892, p. 7. + +[268] _Ibid._, 1899, pp. 4, 6-7. + +Among other postal reforms dear to Hill's heart had been the compulsory +payment of postage by means of stamps. He pointed out that this would +greatly simplify the keeping of accounts by the department and increase +the net revenue. The proposition was, however, too unpopular to secure +approval. Nevertheless in 1847 the Postmaster-General secured +parliamentary authority to abolish or restrict payment in money and +require stamps to be used, but the experiment proved so unpopular that +it was eventually abandoned.[269] The use of perforated stamps, an +invention of Mr. Archer, was in 1852 recommended by a committee +appointed to report on the question.[270] Finally, in 1904, the law +forbidding the use of embossed or impressed stamps cut out of envelopes, +postcards, letter cards, wrappers, and telegraph forms was +repealed.[271] + +[269] 10 and 11 Vict., c. 85; _Rep. Com._, 1852, xv, 386, p. 150; _Rep. +P. G._, 1859, p. 25. + +[270] _Rep. Com._, 1852, xv, 386, pp. iii-iv. + +[271] 4 Edw. VII, c. 14. + +From 1808 to 1840 the rural districts as a rule obtained their postal +matter by a special payment on their part to messengers for its +conveyance from the nearest town, sometimes aided by a bonus from the +revenue, or by means of the "fifth-clause" posts,[272] or by the penny +posts which were constantly increasing in number and were occasionally +established under guarantee. In 1838 there were fifty-two "fifth-clause" +posts in England and Wales, and 1922 villages in the United Kingdom were +served by penny posts. In 1843 the government of Sir Robert Peel laid +down the following principle: "All places the letters for which exceed +one hundred per week should be entitled to a receiving office and a free +delivery of letters." A "delivery" here meant a daily delivery, and the +boundary of the free delivery was to be determined by the +Postmaster-General. The principle enunciated above was followed until +1850, and during that period the increase in the number of free and +guaranteed rural deliveries was very great. At the close of this period +it was decided that in future the determining rule should be based upon +the probability of financial success. A post was held to pay its way +whenever its cost was covered by a halfpenny on each letter delivered, +but, since it was held that the number of letters would be doubled by +free delivery, double the number arriving before its establishment might +be assumed to arrive afterward. The post might be bi-weekly, tri-weekly, +or weekly. This rule was to a certain extent made retroactive, but no +post established under the rule of 1843 was stopped so long as the cost +was covered by calculating delivered letters at a penny each. It was +decided in 1853 that a post less frequent than once a day might be +increased in frequency whenever the cost would be covered by a revenue +estimated on the basis of three farthings for each letter, and in +treating an application for a second daily post this amount was to be +reduced to one farthing. The experiment was tried of delivering letters +at every house in a few selected places but did not prove a success. It +was stated that at the end of this revision, 93 per cent of all postal +packets were delivered. In 1860 the rule was laid down that new posts +should be set up only when the cost would be covered by half a penny on +each letter actually arriving, the old rule having been found to be too +liberal. Two years later it was stated by the Post Office that only 6 +per cent of the total postal packages were undelivered. In 1882 the +question of extending the rural posts was considered by Mr. Fawcett, the +then Postmaster-General, who decided that credit should be given for +revenue by increasing the halfpenny to 6/10_d._ for each letter, and in +the next year the existing rule as to a second daily delivery was made +more liberal. In 1890, for places hitherto unserved, the rate per letter +for estimating revenue was increased to three farthings, for each parcel +the rate was fixed at 1-1/2_d._, and in the following year rural +sanitary authorities in England and Wales were authorized to guarantee +posts. In Scotland the district committee or the county council, where +the counties were not divided, was given the same power in 1892. In the +same year the rule was laid down that a second service in the day might +be given provided that its cost did not exceed half a penny a letter and +a penny a parcel and in addition that the total cost of night and day +mail services should not exceed the revenue from the whole +correspondence at half a penny per letter and a penny per parcel. It was +estimated in 1892 that about thirty-two and a half millions of letters +were undelivered, but the work of extending the rural posts went on +gradually until in 1897 it was announced that provision would be made as +soon as possible for delivery to every house in the United Kingdom. In +1900 the Postmaster-General was able to report that house to house +delivery had been completed in England and almost completed in Scotland +and Ireland.[273] + +[272] Established by agreements between the Postmaster-General and the +inhabitants of small towns and villages. + +[273] _Rep. P. G._, 1898, pp. 32-39; 1860, pp. 9 f.; 1864, p. 15. + +In addition to the ordinary delivery at regular intervals there was a +growing demand for a more rapid service on extraordinary occasions as +well as a desire for a special messenger service when the use of the +Post Office as a medium meant an undesirable loss of time. In 1886 a +private company started to supply messengers for postal services. After +some trouble with the Post Office, a licence was granted them in 1891 in +return for which they agreed to pay a percentage of their gross receipts +to the department and observe certain conditions with reference to the +delivery of letters.[274] An express delivery service was also +established by the Post Office, the fee in addition to the ordinary +postage being 2_d._ for the first mile, 3_d._ for the second and beyond +that, and where no public conveyances existed, 1_s._ a mile or actual +cab-fare. In the case of letters delivered locally the ordinary postage +was abrogated soon after and a charge of 1-1/2_d._ per pound for parcels +exceeding one pound in weight was imposed, but this charge was later +lowered to a penny per pound with a maximum payment of 1_s._ and the +maximum limit of weight was increased from 15 to 20 pounds where the +messenger could travel by public conveyance. The initial charge for the +first mile of 2_d._, and 3_d._ for each succeeding mile, for each parcel +was made a uniform charge of 3_d._ per mile, and the fixed charge of +2_d._ for each parcel beyond the first was reduced to a penny where +several packets were tendered by the same sender for delivery by the +same messenger. In the case of several packages delivered at the same +address the charge was lowered to 3_d._ plus an additional penny for +every ten packages or part thereof, later changed to a weight fee of +3_d._ on each packet or bundle of packets weighing more than one +pound.[275] Rural postmen were also allowed to receive letters and +parcels from the public at any point in their walks and deliver them +without passing them through a post office, having first canceled the +stamps.[276] An agreement was also made with the railways to carry +single letters left in the booking office for 2_d._ each. These letters +may be taken to the booking office by messenger and delivered by a +messenger at the end of their journey or posted there.[277] The express +delivery service was also extended to such foreign countries as would +agree to it, including nearly all of Western Europe, part of South +America, and the far East. In every case the primary fee in England is +_3d._, the foreign charges varying with local conditions. Express +letters from abroad are delivered free within one mile from the Post +Office. Beyond that the distance charge is 3_d._ a mile for one parcel, +with a penny for each additional parcel delivered to the same person. +The Postmaster-General reported that the establishment of this service +was not only much appreciated by the people, but was self-supporting and +even profitable to the state. During the ten year period ending March +31, 1901, the number of express delivery services in the United Kingdom +increased from 108,000 to 804,000.[278] + +[274] Their extended licence will expire in 1922 (_Rep. P. G._, 1901, p. +2). + +[275] _Parl. Deb._, 3d series, cccli, col. 1751; _Rep. P. G._, 1901, p. +2; 1892, p. 7; 1891, pp. 4 f.; 1893, p. 7; 1894, p. 6; 1899, pp. 2, 3. + +[276] _Ibid._, 1894, p. 5. + +[277] _Ibid._, 1891, p. 5. + +[278] _Rep. P. G._, 1893, p. 10; 1897, p. 3; 1901, app., p. 28. + +The impressed stamp to which newspapers were subject until 1855 enabled +them to pass free by post. After this stamp ceased to be compulsory, +newspapers which bore it passed free from other postage until 1870--when +the halfpenny rate was established--and were known as "free"[279] as +distinguished from "chargeable" newspapers. Of the former there were +carried by post in 1856 over 53 millions, of the latter, including book +packets, 20 millions. In 1875 the number of newspapers delivered in the +United Kingdom had increased to 121 millions. For the five year period +ending March 31, 1881, the average yearly number had increased to a +little over 129 millions, for the next five years to something over 142 +millions. During the period ending March 31, 1891, they had increased to +155 millions, there being an actual decrease in one year. In the period +following there was an average yearly increase of only three millions +and the ensuing five years ending March 31, 1901, showed a decrease of +about one million.[280] + +[279] Free newspapers also included those coming from abroad on which no +charge was made in the United Kingdom. + +[280] _Rep. P. G._, 1896, p. 2; 1859, pp. 28 f.; 1881, app., p. 12; +1891, app., p. 17; 1901, app., p. 27. + +The book post, instituted in 1848, had its rates reduced in 1855 and +again in 1870 to a halfpenny for the initial two ounces and an +additional 1/2_d._ for each succeeding two ounces. In 1892 its scope was +greatly enlarged and the expression Halfpenny Post, which is now its +official name, better illustrates its cosmopolitan character for it now +includes all printed documents of a conventional, formal, or impersonal +character. From 1872 to 1875 the number of articles carried by the +Halfpenny or Book Post increased from 114 millions to 158 millions. The +yearly average during the next five years was 204 millions; during the +following five, 305 millions and for the five year period ending March +31, 1891, they had increased to 418 millions. During the next five years +there was a still greater average increase to 596 millions and the +average for the postal year ending in March, 1901, was 732 +millions.[281] The rates for the Inland Pattern and Sample Post, +established in 1863, were assimilated with those of the Book Post in +1870. It was abolished or rather incorporated with the Letter Post in +the following year but was reëstablished in 1887, the rates being a +penny for the first four ounces and 1/2_d._ for each succeeding two +ounces, but, when the Jubilee letter rates were published, it lost its +_raison d'être_ and was abolished for inland purposes.[282] + +[281] _Rep. P. G._, 1896, p. 2; 1903, p. 5; 1904, p. 5; 1881, app., p. +12; 1891, app., p. 17; 1901, app., p. 27. + +[282] _Ibid._, 1864, p. 29; 1896, p. 2; _Acct. & P._, 1871, xxxvii (pp. +1-2). + +Post cards were introduced in 1870, being carried for 1/2_d._ each +prepaid, 2_d._ when payment was made on delivery.[283] In addition to +the stamp a charge was made to cover the cost of the material in the +card itself. Somewhat later reply post cards were issued for the inland +service and arrangements were made for the use of international reply +post cards. In 1894, private post cards, to which a halfpenny stamp was +affixed, were allowed to pass by post. The resulting enormous +growth[284] in their number showed that the privilege was appreciated. +In less than five years they were estimated to form 5 per cent of the +total number passing through the post.[285] Shortly after, the +prohibition of any writing save the address on the face of a post card +was withdrawn and it was provided that the address side of all mail +matter might be used for purposes of correspondence provided that it did +not obscure the address, encroach upon the stamp, or prove in any way +inconvenient. Formerly, so far as mail matter other than post cards was +concerned, the right half of the face side was reserved for the +address.[286] During the four five-year periods from 1881 to the year +ending 31st March, 1901, the average numbers of post cards delivered +yearly in the United Kingdom were about 108 millions, 152 millions, 272 +millions, and 379 millions.[287] + +[283] Charge on unpaid inland post cards reduced to 1_d._ each in 1896. + +[284] They increased from 248 millions for the postal year 1893-94 to +312 millions during the ensuing year. + +[285] _Rep. P. G._, 1896, p. 2; 1882, p. 4; 1895, p. 18; 1900, p. 1. + +[286] _Rep. P. G._, 1897, p. 5. + +[287] _Ibid._, 1881, app., p. 12; 1891, app., p. 17; 1901, app., p. 27. + +It had not been usual for England to lag behind the continent in the +adoption of new postal ideas. Such was the case, however, with reference +to the adoption of the convenient post card and the no less useful +parcel post. In 1880 the question of the establishment of an +international parcel post was discussed in Paris and an agreement was +reached for the transmission throughout nearly the whole of Europe of +parcels not exceeding three kilogrammes in weight. It was impossible for +Great Britain to sign, as she had no inland parcel post at the time and +found it difficult to establish one as an agreement with the railways +was necessary. A movement was at once begun for one and it was started +three years later. The first despatch of foreign and colonial parcels +took place in 1885, and at the beginning of the following year +arrangements were completed for the exchange of parcels with +twenty-seven different countries, including some of the colonies, India, +and Egypt. An agreement was concluded in 1904 with the United States for +the interchange of parcels by post at the rate of 2_s._ for each and the +maximum is two kilogrammes. These cannot be insured and customs' duties +must be paid by the recipient. The previously existing agreement for +parcels weighing as much as eleven pounds each, providing for insurance +and the prepayment of customs' duties, continues to be carried on by the +American Express Company.[288] Since the establishment of the inland +parcel post the question of collecting the value of the parcels on +delivery, if the sender and the recipient so desire, has often been +raised. Owing to the opposition of retail dealers, it has not yet been +adopted although in operation in India and nearly all important foreign +countries. In the words of the Postmaster-General--"In these +circumstances I am by no means satisfied, so far as my enquiries have +gone, that the apprehensions expressed by retail traders in this country +afford sufficient cause for withholding a convenience from the community +at large."[289] + +[288] _Ibid._, 1881, p. 4; 1885, p. 4; 1886, p. 5; 1895, p. 21; 1905, p. +7; _The Economist_, 1881, Nov. 5, p. 1369; 1882, July 29, p. 939. + +[289] _Rep. P. G._, 1904, pp. 4-5. + +The various changes and improvements adopted by the Post Office since +1840, in addition to those already named, are so numerous that only the +most important can be considered here. Among others the amalgamation of +the London District Post with the General Post in 1854 deserves +attention. In the following year it was ordered that letters should be +sorted in each of the ten postal districts into which London was divided +instead of being taken to the General Office at St. Martin's-le-Grand as +had been customary, thus materially lessening the expenses of sorting +and facilitating their delivery.[290] + +[290] _Ibid._, 1855, p. 12; 1856, p. 9; 1860, p. 8. + +In 1840 there were but 4028 post offices in the Kingdom; in 1854, +9973.[291] Road letter boxes were introduced in 1858 and the public +receptacles for the receipt of letters numbered 13,370 in 1859 as +compared with 4518 before the establishment of penny postage.[292] In +1829 the total number of persons in England employed in Post Office +business numbered only 5000. Twenty-five years later for the United +Kingdom over 21,000 were so employed; in 1880 over 47,000, of whom, +however, more than 11,000 were engaged wholly in telegraph duties. By +1890 these had increased to nearly 118,000 and by 1900 to 173,000 of +whom 35,000 were females.[293] + +[291] _Ibid._, 1855, p. 21. + +[292] _Ibid._, 1855-59. + +[293] _Rep. Commrs._, 1829, ii, p. 137; _Rep. P. G._, 1855, p. 20; 1881, +app., p. 16; 1891, app., pp. 34-35; 1901, app., p. 50. + +The money order business which originated as a private speculation in +1791 was the result of an attempt to check the frequent theft of letters +containing money. In 1838, shortly after its acquisition from the +proprietors, the rates were reduced and the number of money orders +transmitted increased from 188,000 in 1839 to 587,000 in 1840 and to +1,500,000 in 1842. From the latter date until 1879 the increase both in +the number and in the value of money orders transmitted was steady, +aided by the increase in 1862 from £5 to £10 of the maximum +transmissible sum and by the reduction in rates in 1871. The penny rate +of that year for orders to the value of ten shillings was a mistake, for +the actual cost to the state of issuing and paying a money order was +about 3_d._ In order to meet this difficulty a simpler form of order was +issued in 1881 with an initial rate as low as half a penny, the cost of +which to the Post Office was much less than that of the old kind of +order. These postal notes, as they were called, were issued for new +denominations in 1884 and 1905 and the rates on some of them were +diminished. The lowest rate for a money order was for a few months fixed +at 3_d._ but, as this aroused considerable opposition, the present rate +of 2_d._ was soon after substituted, and in 1903 the maximum sum +transmissible was increased to £40 with a few accompanying changes in +rates. In 1889 an opportunity was given in the case of a few towns for +sending telegraphic money orders and during the ensuing three years the +privileged area was greatly extended. In 1897 the expenses were +considerably reduced. In 1858 arrangements were made for the exchange of +money orders with Canada and by 1862 similar agreements were decided +upon with most of the other colonies, but foreign countries were not +included until somewhat later and in 1880 colonial and foreign rates +were harmonized. Rates were reduced in 1883, 1896, and 1903, and in the +last year the inland £40 limit was agreed upon with most foreign +countries and some of the colonies. + +Inland money orders which started to decrease in amount in 1878-79 +steadily continued their downward course until 1891-92, when there was a +slight recovery for a few years, but since 1903-04 the number has +somewhat diminished. During the postal year ending in March, 1907, the +number of inland money orders transmitted was nearly eleven millions as +compared with nearly nineteen millions for the year ending March, 1879. +This decrease in numbers is largely due to the lowering of the +registration fee for letters, the introduction of postal notes, and the +use of other means for transmitting small sums of money. The total value +of inland money orders also began to diminish in 1879, but began to +recover in 1886, and has since increased quite uniformly, being in 1907 +nearly £38,000,000 as compared with £29,000,000 in 1879.[294] The +increase in the number of postal notes has been enormous, although there +was an apparent falling off in the years 1903 and 1904 due to the +increased number of denominations offered for sale. For the first +complete postal year after their authorization the number issued was +nearly four and a half millions of the value of £2,000,000, and for the +postal year 1906-07 the number was 102,000,000 of the value of nearly +£41,000,000.[295] On the other hand, while inland money orders were +decreasing in number, colonial and foreign orders increased in general +both in number and value.[296] + +[294] _Rep. P. G._, 1896, pp. 28-32; 1897, pp. 10-11; 1881, app., p. 37; +1891, app., p. 53; 1901, app., p. 69; 1907, p. 74. + +[295] _Rep. P. G._, 1891, app., p. 59; 1901, app., p. 77; 1907, p. 84. + +[296] _Ibid._, 1891, app., pp. 52-53; 1892, p. 12. + +The establishment of Post Office savings banks is naturally closely +connected with the money order department since both of these departures +from a purely postal character were adopted at about the same time, for +much the same reasons, and were opposed on the ground of their +infringement upon the banking prerogative. In 1859 the efforts of Mr. +Sikes of Huddersfield to bring a Post Office Savings Bank into being +were supported by Mr. Gladstone, Chancellor of the Exchequer, and Sir +Rowland Hill, the then Secretary of the Post Office, and two years later +it was established by Parliamentary sanction.[297] The main features of +the system were that deposits could be withdrawn not later than ten days +after demand; that accounts should be kept at London alone, all money +being remitted to and from headquarters; that the total amount deposited +should be handed over to the "Commissioners for the Reduction of the +National Debt" for investment in government securities, and that +interest on complete pounds at the rate of 2-1/2 per cent should be +allowed to depositors. As the interests of the poorer classes were made +the primary object in establishing the banks, deposits were limited in +the case of individuals to £30 a year and £150 in all, later increased +to £50 a year and £200 in all, but Friendly Societies were allowed to +deposit without limit and Provident and Charitable Societies might +deposit within limits of £100 a year and £300 in all or, with the +consent of the Commissioners, beyond these limits.[298] + +[297] 24 Vict., c. 14. + +[298] _Rep. P. G._, 1897, app., pp. 32-36. + +In 1880 the savings banks were made a medium for investing in government +stock at a trifling expense varying from 9_d._ to 2_s._ 3_d._ and with +the privilege of having dividends collected free from further charge. +These special advantages were confined to investments from £10 to £100 +in value, the latter being the maximum sum in any one year, and the +investments themselves might be sums especially deposited or transferred +from a depositor's account. In 1887 the minimum amount of stock +purchasable was reduced to 1s., and anyone who had purchased stock +through a savings bank might have it transferred to his own name in the +Bank of England. In 1893 the limits of investment were raised from £100 +to £200 in one year, from £300 to £500 in all, and the Post Office was +empowered to invest in stock any accumulations of ordinary deposits +above the limit of £200, unless instructions were given by the depositor +to the contrary. + +An act was passed in 1864 enabling the Postmaster-General to insure the +lives of individuals between the ages of fourteen and sixty for amounts +varying from £20 to £100. He might also grant annuities, immediate or +deferred, to any one of ten years of age or upward for sums between £4 +and £50. The act came into operation in certain towns of England and +Wales in the following year, and the system remained unaltered until +1884. During this period of nineteen years, 7064 policies of insurance +were effected, representing a yearly average of 372 policies amounting +to an average of £79 each. The contracts for immediate annuities +numbered 13,402 or an average of 705 a year and there were 978 contracts +for deferred annuities. The value of immediate annuities granted was +£187,117 and of deferred £19,938, but a part of the latter never came +into payment as the purchasers were relieved from their bargains upon +their own representation. + +A new system associated with Mr. Fawcett's name was prescribed in 1882. +Its merit consisted in linking the annuity and insurance business with +the Savings Bank Department so that payments for annuities and insurance +are made through deposits in the savings banks. It was further provided +that for persons between the ages of fourteen and sixty-five the limits +of insurance should be from £5 to £100 and that sums of money might be +insured payable at the age of sixty or at the expiration of a term of +years. For annuities the minimum was reduced to £1, the maximum +increased to £100, and the annuity and insurance privileges were +extended to all places having savings banks. Owing to the necessary +preparation of tables the new regulations did not actually come into +operation until 1884. The growth of life insurance and annuity business +was slow as compared with the rapid growth of the savings deposits. +Intended, however, primarily for the poor, it has not been without +success, especially as the premiums charged are lower than those of +insurance companies or industrial societies.[299] + +[299] _Rep. P. G._, 1897, app., pp. 32-38. The insurance and annuity +business of the Post Office has been described by the _Economist_ as a +practical failure because of the government's refusal to solicit +business (_Economist_ 1881, Nov. 5, p. 1369). + +In addition to joining the insurance and annuity business with the +savings banks operations, Mr. Fawcett was responsible for a rapid +increase in the number of branch saving offices in villages, for the +special attention paid to "navvies" and workmen at their places of +employment, and above all for the arrangement for making small deposits +by slips of postage stamps. In 1887 by act of Parliament the +Postmaster-General was empowered to offer facilities for the transfer of +money from one account to another and for the easier disposal of the +funds of deceased depositors. In 1891 the maximum permissible deposits +of one person were increased from £150 to £200 inclusive of interest. +The annual limit remained at £30 but it was provided that, irrespective +of that limit, depositors might replace the amount of any one withdrawal +made in the same year. Where principal and interest together exceeded +£200, the interest was henceforth to cease on the excess alone, whereas +previously it had ceased entirely when it had brought an account to +£200. The next development arose from the Free Education Act of 1891 in +order to make it easier for children and parents to save the school +pence which they no longer had to pay. Special stamp slips were prepared +to be sold to children, and clerks attended the schools with these +slips. About 1400 schools adopted the scheme at once and three years +later the number had risen to 3000, but the movement seemed by 1895 to +have spent its force. + +In 1893 the annual limit of deposits was increased to £50 and, as we +have already seen in another connection, any accumulations over £200 +were to be invested in Government Stock unless the depositor gave +instructions to the contrary. In the same year arrangements were made +for the withdrawal of deposits by telegram. A depositor might telegraph +for his money and have his warrant sent by return of post at a cost of +about 9_d._ or the warrant also might be telegraphed to him at a total +cost of about 1_s._ 3_d._ In 1905 a rule was introduced by which a +depositor, on presentation of his pass-book at any post office doing +savings bank business, may withdraw on demand not more than £1. This +obviates the expense of telegraphing and, that it was appreciated, is +shown by the fact that during the first six months after the privilege +was extended there were nearly two millions of "withdrawals on demand," +forming nearly one half of the total number. As a result the number of +telegraphic withdrawals fell from 227,573 for the postal year 1904-05 to +180,996 for the year 1905-06.[300] + +[300] _Rep. P. G._, 1897, app., pp. 32-36; 1906, pp. 12-13; 56 and 57 +Vict., c. 59. + +There has been a steady and pronounced growth in savings bank business +since its establishment. This growth has shown itself in the increased +number of banks, of deposits, and of the total amounts deposited. The +average amount of each deposit has varied somewhat from £3 6_s._ in 1862 +to £2 in 1881, but since this date it has increased slowly but steadily +and in 1901 it stood at £2 14_s._ 2_d._, which is about the average +yearly amount since 1862. At the end of the year 1900 over £135,000,000 +were on deposit in the Post Office savings banks.[301] The increase in +amounts invested in government stock has not been by any means so +pronounced but there has been an increase. In 1881 we find that nearly +£700,000 were so invested, in 1891 nearly £1,000,000, and in 1900 a +little over £1,000,000.[302] So far as annuities are concerned, the +immediate seem to be considerably more popular than the deferred. The +purchase money receipts for the former were £184,000 in 1881, £296,000 +in 1891, and have since increased more rapidly to £728,000 in 1900, with +an actual decrease, however, for the four preceding years. The receipts +for the purchase of deferred annuities amounted to £5243 in 1881, +£12,578 in 1891 and £14,283 in 1900, also a decrease since 1896. The +amounts received as premiums for life insurance policies have also been +rather disappointing, having increased from £10,967 in 1881 to £15,073 +in 1891 and to £22,185 in 1900.[303] + +[301] _Ibid._, 1881, app., pp. 32-33; 1891, app., p. 46; 1901, p. 60; +1907, p. 67. + +[302] _Ibid._, 1891, app., p. 47; 1901, app., p. 62. + +[303] _Rep. P. G._, 1891, app., p. 48; 1901, app., p. 63. + +The increasing use of railway trains for the conveyance of the mails has +presented new and difficult problems with reference to the authority of +the Postmaster-General over mail trains and reasonable payments to the +railway companies. So far as the method for ascertaining the rate of +payment was concerned, a difficulty arose as to whether the Post Office +should pay any part of the tolls as distinguished from operating +expenses. Major Harness, a Post Office official, stated that in +discussing this question with Robert Stephenson in the case of the +London and Birmingham Railway it had been agreed that tollage should not +be paid but only the out-of-pocket expenses, this being in conformity +with the principles adopted in paying for mail coaches. The question of +tollage was not mentioned by the Railway Mails Act (10 and 11 Vict., c. +85), but Major Harness, in his evidence before a parliamentary +committee, stated that he, as an arbitrator, estimated the tollage +payable by the Post Office by finding out how much each ton, if the road +were fully occupied, should contribute to return 10 per cent upon the +share capital and 5 per cent on the bonds, the Post Office to pay its +proportion according to the weight of mail matter carried. The cost of +locomotive power was also taken into count and the carriage +accommodation was paid for on the basis of what the railways charged +each other.[304] In addition to these items the committee recommended +that the expenses for station accommodation, the additional cost of the +working staff, and interference with ordinary traffic should also be +taken into account.[305] In the event of a failure on the part of the +Post Office and a railway company to come to an agreement as to the +amount payable, each of the parties nominated an arbitrator whose first +duty was to select an umpire. Each arbitrator was required to present +his case in writing to the umpire and to attend in person if required. +The umpire was supposed to give his decision within twenty-eight days +after the receipt of the cases.[306] In 1893 it was provided by act of +Parliament that when any dispute arose between the Post Office and a +railway, the question should be taken to the Railway and Canal +Commission for settlement instead of being left to arbitration.[307] The +Postmaster-General has also been authorized to make use of tramways for +transporting the mails, and in 1897 the experiment was made of using +motor vans for the same purpose. A few years later the +Postmaster-General expressed himself as "doubtful whether a thoroughly +reliable motor vehicle suitable for Post Office work has yet been +found." However, in 1906-07 about thirty-five mail services were +performed by motors, the work being undertaken by contractors who +provide the vans and employ the drivers. They have proved to be more +economical than horse vans when the load is heavy, the distance +considerable, and greater speed desirable.[308] + +[304] _Rep. Com._, 1854, xi, 411, pp. 370-371. + +[305] _Ibid._, 411, p. 14. + +[306] _Rep. Com._, 411, p. 280; 1 and 2 Vict., c. 98. + +[307] 56 and 57 Vict., c. 38. + +[308] 56 and 57 Vict., c. 38; _Rep. P. G._, 1898, pp. 9 f.; 1907, p. 3. + +The expenditure for the conveyance of mails by the railways for the year +ending 5th January, 1838, amounted to only £1743. In 1840 this had +increased to £52,860, in 1850 to £230,079, in 1860 to £490,223, in 1870 +to £587,296, in 1880 to £701,070 and in 1890 to £905,968. By 1896 the +million mark had been reached and after that year all the expenses for +the conveyance of the mails are grouped together. For the following year +this total was £1,453,517, the payment for mail coaches in the preceding +year, which are here included, being £365,000. In 1906 the total +expenditure for the "conveyance of the mails" was £1,821,541.[309] + +[309] _Parl. Papers_, 1852-53, xcv, p. 3; _Rep. P. G._, 1861, p. 20; +1872, pp. 26-27; 1884, p. 56; 1893, p. 78; 1896, p. 86; 1906, p. 92. + +In common with the members of other branches of the civil service the +postal employees, prior to 1855, were political appointees. The +appointment of a patronage secretary had relieved members of Parliament +from the odium incurred as a result of this reprehensible method of +manning the service, but it is doubtful whether any improvement in the +personnel of the force actually resulted or was even anticipated. With +the adoption between 1855 and 1870 of the principle that fitness should +be tested by competitive examinations, the vast majority of the members +of the postal establishment came under its influence. At the same time +the postmasters of small rural communities, where the postal revenue was +insignificant,[310] still continued to be nominated by the local member. +In 1896 this power was abridged, but members still continued to exercise +a limited right of recommendation. Finally in 1907 the +Postmaster-General announced that, though due weight should continue to +be given to the opinions of members in the case of the appointment of +these rural postmasters, such recommendations should be based on +personal knowledge and should carry no more weight than the opinion of +any other competent person.[311] + +[310] Less than £120 in England, less than £100 in Scotland and Ireland. + +[311] D. B. Eaton, _Civil Service in Great Britain_, New York, 1880, pp. +75, 307, 308; _Parl. Deb._, 3d ser., ccxxxix, col. 211; cclv, col. 1575; +_ibid._, 4th ser., clix, col. 397; clxx, col. 641. + +No question which has arisen in the internal management of the Post +Office has presented more difficult problems for solution than that of +the condition of the postal employees with reference to hours of labour, +promotion, and remuneration. The first complaints which attract our +attention during the period under discussion came rather from outside +the service as a protest against Sunday labour in the Post Office, but +the fact that many of the postal servants were deprived of their holiday +and often needlessly so deprived was a real grievance advanced by the +employees themselves. It had been the policy of the Post Office for some +time not to grant any application for the withdrawal of a Sunday post if +there were any dissentients to the application. In 1850 all Sunday +delivery was abolished for a time, but this hardly met the approval even +of the strict Sabbatarians, and the rule was promulgated the same year +that no post should be withdrawn or curtailed except upon the +application of the receivers of six sevenths of the letters so affected. +Of the rural posts in the United Kingdom at that time more than half did +no work on Sunday and about half of the remainder had their walks +curtailed, while in certain cases a substitute was provided on alternate +Sundays. A committee reporting on the question in 1871 advised that it +should be made easier to discontinue a Sunday delivery by requiring that +a Sunday rural post should be taken off if the receivers of two thirds +of the letters desired it, that no delivery in the country should be +granted except upon the demand of the receivers of the same proportion +of letters, and that the principle of providing substitutes on alternate +Sundays should be more generally adopted. This report was favourably +received and its recommendations adopted in the early seventies. In +London and many of the provincial towns there is no ordinary Sunday +delivery, and so little advantage is taken of the opportunity for +express delivery on Sundays that there is presumably no strong demand +for a regular Sunday delivery. Various measures advocated for the relief +of the town carriers were also adopted.[312] + +[312] _Acct. & P._, 1872, xxxvi, 337, pp. 1-2; _Rep. Commrs._, 1872, +xviii [c. 485], pp. 1-5; _Rep. P. G._, 1872, p. 6; _Parl. Deb._, 4th +ser., xciv, coll. 1358-60, 1364-65. + +In 1858 an attempt was made by the Post Office employees, led by the +letter carriers, to secure higher wages and to obtain a remedy for +certain other grievances advanced by them. Sir George Bower asked for a +select committee of enquiry in their behalf but this was refused by the +Chancellor of the Exchequer. He agreed, however, to the appointment of a +committee composed of Post Office and Treasury officials, but their +personnel was so repugnant to the employees that they refused to give +evidence, and as a result of this and other difficulties four of their +leaders were suspended. The protest on the part of the men was not +entirely unproductive, for in the end the Postmaster-General granted +them a slight increase in their wages. At the same time he referred to +the following rates of wages in support of his contention that there was +no good ground for dissatisfaction among the servants of the Post +Office: for carriers, 19_s._ a week advancing to 23_s._; for sorters of +the first class, 25_s._ to 30_s._; of the second class, 32_s._ to +38_s._; and of the third class, 40_s._ to 50_s._ "Carriers also obtain +Christmas boxes averaging, so it is said, £8 a year. In addition these +wages are exclusive of uniform, of pension in old age, and of assistance +for assurance."[313] + +[313] _Rep. P. G._, 1859, pp. 40-43; _Parl. Deb._, 3d ser., clix, coll. +211-214; clxviii, coll. 675-82. + +The first thorough-going attempts to remedy the grievances of the Post +Office employees were made in 1881 and 1882 by Mr. Fawcett in his +capacity as Postmaster-General. His scheme for improving the pay and +position of the sorters, sorting clerks, telegraphists, postmen, lobby +officers, and porters resulted in a mean annual cost to the Post Office +of £320,000. In 1888, 1890, and 1891, under the supervision of Mr. +Raikes, improvements were made in the condition of the chief clerks and +other supervising officers, the sorting clerks and telegraphists in the +provinces, the telegraphists, counter-men and sorters in London, and the +sorters in Dublin and Edinburgh at an additional yearly expense of +£281,000. While the representatives of the London postmen were in +process of examination, some of them went out on strike. They were +severely punished, some 450 men being dismissed in one morning, and a +committee was appointed to enquire into the complaints of the London and +provincial postmen.[314] In the same month that the strike took place +Mr. Raikes announced increases in the pay of the postmen involving an +additional yearly payment of £125,000. The revisions so announced from +1881 to 1894 have been estimated to involve an increased annual +expenditure of nearly £748,000.[315] + +[314] _Rep. P. G._, 1895, pp. 9-11; 1891, p. 3; _Parl. Deb._, 3d ser., +cccxviii, coll. 537, 1549; cccxlix, col. 213. + +[315] _Rep. P. G._, 1895, pp. 9-11. + +A committee was appointed in 1895 to deal with the discontent which was +only lessened, not silenced, by the efforts of Messrs. Fawcett and +Raikes. This was composed of Lord Tweedmouth, Sir F. Mowatt, Mr. Spencer +Walpole, and Mr. Llewellyn Smith, and the compromise which they proposed +was known as the "Tweedmouth Settlement" which apparently gave little +satisfaction at the time and less thereafter. It resulted in a higher +average rate of payment, but dissatisfaction was felt because the pay +for some services was less than before. The basis of the report was "the +abolition of classification whereby each man was allowed to proceed by +annual increments to the maximum pay of a combined class, subject only +to an efficiency-bar which he may not pass without a certificate of good +conduct and ability, together with the abolition of allowances for +special services." Differences in pay according to the volume of +business in particular localities were left untouched, and this was the +cause of much complaint. Special inducements in the shape of double +increments were offered to the staff on the postal and telegraph sides +to learn each other's work in order to lighten the strain which might +otherwise fall on a particular branch. Overtime, Sunday and bank-holiday +pay were assimilated throughout the service, and efforts were made to +reduce the hardship resulting from "split" work, so called from the fact +that the working day of many of the men was divided by an interval when +there was nothing to do. The higher officials were acquitted of +favouritism in the matter of promotion and of "unfairness and undue +severity in awarding punishments and in enforcing discipline." The +general charges of overcrowding the post offices and leaving them in an +unsanitary condition were also rejected. The changes proposed were all +adopted at an immediate estimated cost of £139,000 a year and an +ultimate cost, also estimated, of £275,000.[316] The Tweedmouth +Commission in its turn was soon followed by a departmental committee, +composed of the Duke of Norfolk, then Postmaster-General, and Mr. +Hanbury, the Secretary of the Treasury, then acting as the +representative of the Post Office in the House of Commons. The postal +employees demanded that their grievances should be laid before a select +committee composed of members of the House of Commons, and motions to +that effect were introduced year after year only to meet the +Government's disapproval. The most important demands of the men turned +upon the questions of full civil rights, complete recognition of their +unions, the employment of men who were not members of the civil service, +and the old difficulty of wages and hours. So far as the question of +full civil rights was concerned, the Post Office employees had been +granted the franchise in 1874, but were required not to take an active +part in aiding or opposing candidates for election, by serving on +committees or otherwise making themselves unduly conspicuous in +elections. The men demanded that these restrictions should be withdrawn. +In the second place, the Postmaster-General refused to receive +deputations from those employees not directly interested in the question +at stake, refused to recognize officials who were not also employees of +the Department, and exercised more or less control over the meetings of +employees. Finally, in addition to the general demand for higher wages +due to the higher cost of living, the telegraphists contended that they +had been deceived by the promise of a maximum salary of £190 a year, +whereas they actually received only £160. Mr. A. Chamberlain opposed the +appointment of a select committee of members of the House of Commons +because of the pressure likely to be brought upon them and because of +their unfitness to decide upon the question at issue. He agreed, +however, after consultation with various members of Parliament and the +men themselves, that a committee of enquiry might reasonably be granted, +composed of business men not in the Civil Service and not members of the +House of Commons.[317] + +[316] _Rep. P. G._, 1897, pp. 27 f. + +[317] _Parl. Deb._, 4th ser., viii, col. 673; xxix, col. 117; lxxxii, +coll. 199 f.; xciv, coll. 1357 f.; cvi, coll. 660-683, 715, 747; cxxi, +coll. 1021-64; cxlviii, coll. 1367-69, 1382. + +In accordance with this promise the so-called "Bradford Committee" was +appointed to report on "the scales of pay received by the undermentioned +classes of established civil servants and whether, having regard to the +conditions of their employment and to the rates current in other +occupations, ... the remuneration is adequate." In the meantime Mr. +Chamberlain retired, but his successor, Lord Stanley, asked that the +enquiry be continued. The members of this committee, interpreting their +instructions very loosely, extended their report to include their own +recommendations as to changes in pay, and refrained entirely from making +any comparison between the wages of postal servants and those in other +employments, on the ground that such information was easily accessible +from the statistics published by the Board of Trade. They added that it +was difficult to make any comparison between a national and a private +service, for payment according to results and dismissal at the will of +the employer are inapplicable under the state. There was also a pension +fund in the service, the present value of which it is difficult to +estimate. In their own words, "It appears to us that the adequacy of the +terms now obtaining may be tested by the numbers and character of those +who offer, by the capacity they show on trial, and finally by their +contentment." They agreed that there was no lack of suitable candidates +and no complaints as to capacity, but there was widespread discontent. +Finally the committee recommended the grading of the service as a whole, +taking into consideration the differences in cost of living as between +London and other cities and between these cities and smaller towns and +an increase in pay of the man at an age to marry, irrespective of years +of service. "They" (the above recommendations) "obviously do not concede +all that has been asked for, but they go as far as we think justifiable +in meeting the demands of the staff and we trust it will do much to +promote that contentment which is so essential to hearty service."[318] +From an examination of the evidence presented by the Committee and a +comparison of present scales of pay in the Post Office with those +current in other employments, the Postmaster-General concluded that +there was no reason for increasing the maximum wages payable, but there +seemed to be ground for modifying and improving the scales in some +respects. The special increase at the age of twenty-five was granted. +The maximum was increased in London and the larger towns on account of +the higher cost of living and at the same time wages in the smaller +towns were advanced. The postmen also, both in London and the provinces, +were granted higher wages, and all payments to the members of the force +were in the future to be made weekly. The additional cost entailed by +these changes was estimated at £224,400 for 1905-06, the average in +later years at £372,300.[319] + +[318] _Rep. Commrs._, 1904, xxxiii, 171, pp. 5-26. + +[319] _Acc. & P._, 1905, xliv, 98, pp. 3-6; _Parl. Deb._, 4th ser., +cxlviii, col. 1363. + +The Post Office employees who had asked for the appointment of a select +committee were greatly dissatisfied with the personnel of the "Bradford +Committee." This dissatisfaction on their part was increased by the fact +that the recommendations of the committee were to a great extent +disregarded by Lord Stanley on the ground that the members had not +reported upon the question laid before them, but had instead proposed a +complete reorganization of the whole of the service. He was willing to +grant some increase in pay but there were certain recommendations of the +committee which he refused to accept. He himself was of the opinion that +the average wages of the employees were in excess of those of men doing +similar work under competitive conditions, but the postmen objected to a +comparison of their wages with those of employees in the open labour +market on the ground "that there is no other employer who fixes his own +prices or makes an annual profit of £4,000,000 sterling." Delegates +representing over 42,000 members of various postal associations +protested strongly against Lord Stanley's refusal to adopt the findings +of the "Bradford Committee" _in toto_ and the men prepared to take an +active part against the Government in the approaching election. Appeals +were sent out by the men from which Lord Stanley quoted as follows in +the House: "Two thirds at least of one political party are in great fear +of losing their seats. The swing of the pendulum is against them and any +member who receives forty or fifty of such letters will under present +circumstances have to consider very seriously whether on this question +he can afford to go into the wrong lobby. This is taking advantage of +the political situation."[320] The Postmaster-General's unpopularity +with his employees was not diminished by his reference to these appeals +as "nothing more or less than blackmail." He himself was of the opinion +that there should be some organization outside of politics to which such +questions should be referred.[321] + +[320] In connection with such appeals both sides of the House as +represented by their leaders had in 1892 advised that members should pay +no attention to them (_Parl. Deb._, 4th ser., v, coll. 1123 f.). + +[321] _Parl. Deb._, 4th ser., cxxxix, coll. 1633-34; cxlviii, coll. +1350, 1357-61, 1365; the London _Times_, 1904, Oct. 11, p. 4; Oct. 18, +p. 4; Oct. 22, p. 10; 1905, Jan. 16, p. 7; Apr. 7, p. 11. + +Shortly after the Liberals had come into power, a Post Office circular +was issued granting to the secretaries of the branches of the various +postal organizations the right to make representations to the +Postmaster-General relating to the service and affecting the class of +which the branch of an association was representative. In matters solely +affecting an individual the appeal had to come from the individual +himself. This was followed by a full recognition of the postal unions by +the new Postmaster-General, Mr. Buxton, with the rights of combination +and representation through the representatives of different classes. +These conclusions were commented upon most favourably at the annual +meeting of the "Postmen's Federation."[322] The representatives present +were glad to see that "the old martinet system was fast breaking down." +[323] But the greatest triumph of the men was to follow in the +appointment of a select committee composed of members of the House of +Commons with full powers to investigate the conditions of employment of +the postal employees and make such recommendations, based upon their +investigation, as might seem suitable. Nine members were appointed for +this purpose, two of their number being members of the Labour Party, and +Mr. Hobhouse was chosen as chairman. Their report is very voluminous and +treats minutely all the questions concerning which the postal employees +had expressed so much dissatisfaction. The most important of these are +connected with the civil rights of the men, their wages, hours of +labour, and the conditions of their employment. The demand for full +civil rights was supported by four members on the ground that the +position of the postal employees is not in many respects "comparable to +that of the Civil Service as a whole," but the point was lost for the +men by the vote of the chairman. Some departments asked for a reduction +in the age of voluntary retirement from sixty to fifty and of compulsory +retirement from sixty-five to sixty, but these changes were not +recommended by the committee. The question of extending part of their +pensions to the widows and children of deceased employees was referred +to a plebiscite of the employees themselves. So far as incapacitated +officials were concerned, it was pointed out that the "Workmen's +Compensation Act" of 1906 had been extended to them. Night work had been +limited to the time from 10 P.M. to 6 A.M., seven hours of night work +counting as eight hours of day work. The committee asked that night duty +be from 8 P.M. to 6 A.M., the ratio of the relative value to remain +unchanged. Some servants asked for a forty-two hour week, especially in +the case of those who had "split" work to do, and for a half holiday +each week. The committee thought that the forty-eight hour week should +remain unchanged but that a half holiday might be granted where "the +exigencies of the service demand." They also recommended that +compensation should be allowed where free medical attendance was not +granted. There was a general protest from postmen, telegraphists, and +sorters against the employment of casual and auxiliary labour on the +ground that it dealt a blow at thorough work and trade unionism. The +Department replied that it was necessary in the case of especially busy +holiday periods and where "split" attendance was unavoidable. The +committee contented themselves by asking that casuals who have full work +elsewhere should not be employed. The claim on the part of the employees +that promotion should be contingent on "seniority, good conduct and +ability," in the order named was not accepted by the committee, whose +members contended that ability, as at present, should count for most. So +far as wages themselves were concerned, a general increase was approved +by the committee, and it also, commenting unfavourably on the complexity +and number of existing classes, recommended a reduction in their number +and greater regularity and simplicity in grading them. [324] + +[322] The Postmen's Federation was established in 1891 and a journal, +the _Postman's Gazette_, representing their views, was started in the +following year (_Postman's Gazette_, May 28, 1892; _Post Office +Circular_, no. 1702). + +[323] _Parl. Deb._, 4th ser., cliv, col. 202; clix, col. 396; clxxiv, +col. 387; the London _Times_, 1906, June 9, p. 9. + +[324] _Parl. Deb._, 4th ser., cliii, coll. 323-38, 354-58; _Rep. Com._, +1907, 266. + +The recommendations of the "Hobhouse Committee" have proved, in many +respects, unsatisfactory to the postal employees who have not hesitated +to express their condemnation of what they consider the sins both of +commission and omission of the members. In the words of the delegates +from the branches of the "Postmen's Federation" meeting in London: "We +express our deep disappointment with the report of the Select Committee +for the following reasons": the "cowardice" of the committee in +recommending the continuance of the system of Christmas boxes; the +failure in many cases to increase the minimum and maximum rates of +wages; the mistaken method of grading towns for wages; the failure to +grant full civil rights and the granting of so much power to the +permanent officials. The Conference of Postal Clerks in turn expressed +their dissatisfaction with the findings of the committee. The "Irish +Postal and Telegraph Guardian" considered that the "report had +intensified discontent" and commented on the fact that large increases +in salaries to highly paid classes had been recommended without any +agitation on their part while the lower grades got practically nothing, +this in direct opposition to opinions expressed both by Mr. Buxton and +Mr. Ward, a member of the committee. Deputations were appointed to +discuss with the Postmaster-General those findings of the committee +which were unsatisfactory, but Mr. Buxton refused to grant a re-trial of +the controverted points although he agreed to listen to the plea of +those employees whose case had not been presented before the committee. +[325] + +[325] _Parl. Deb._, 4th ser., clxxxiv, coll. 1058-59, 1061-66, 1080; +cxcii, coll. 1175, 1173; the London _Times_, 1907, Aug. 19, p. 17; Aug. +20, p. 2; Oct. 16, p. 12. + +Mr. Buxton explained his position with reference to the recommendations +of the committee in a speech delivered in the House. He knew that in the +case of the Tweedmouth and Bradford committees the men stated beforehand +that they would not be bound by the decisions reached, but on the other +hand had asked for a Parliamentary committee as the only solution of the +difficulty. Broadly speaking, he was of the opinion that the findings of +the committee should be binding, and he understood that the men would +agree to accept them. There were, however, certain points of the report +on which nearly every section of the staff asked for a re-trial, but +this he was compelled to refuse. The most important recommendations of +the committee which were adopted by Mr. Buxton are: an increase in the +case of each employee to the minimum or "age pay" of his class; the +extension of the "technical increment" beyond the ordinary maximum pay, +after a searching examination; the reduction in London of the four +"wage" zones to three; a reduction in the number of classes in the +provinces, with wages based on volume of work and cost of living in the +order named; a reduction after the first five years from five to four +years in the period necessary to obtain good conduct stripes; an +increase in the pay of women; a reduction in the amount of auxiliary +labour employed; night labour to be reckoned from 8 instead of 10 P.M.; +overtime to be watched and checked; unsanitary conditions in the Post +Office buildings to be remedied; and wages increased in the engineering +branch.[326] + +[326] _Parl. Deb._, 4th ser., clxxxiv, coll. 1058-70; cxcii, coll. +1120-21. It has been estimated that the recommendations adopted by the +Postmaster-General will entail upon the country an additional cost of +about £600,000, rising to £1,000,000 (_Parl. Deb._, 4th ser., cxcii, +col. 1156). + + + + +CHAPTER V + +THE TRAVELLERS' POST AND POST HORSES + + +The duty of providing horses for conveying letters and for the use of +travellers on affairs of state was enforced from the beginning of the +sixteenth century by orders and warrants issued by the +Postmaster-General and the Privy Council to mayors, sheriffs, +constables, and other officials.[327] Where ordinary posts were laid, +the postmen themselves were supposed to have horses ready. Such at least +was the understanding, not, however, invariably realized. In 1533 we +find the Postmaster-General complaining that, except between London and +Dover, there were never any horses provided over the whole kingdom.[328] +A few years later when the London-Berwick posts became an established +fact each postman had to provide one horse, always to be ready to carry +either the mails or a chance traveller on affairs of state. In 1542, +since, owing to trouble with Scotland, the number of letters and +travellers between that country and London had become much more +numerous, each postman was required to have in readiness three horses +instead of one, and it was partly for this reason that their pay was +increased at the same time.[329] The fee for the use of these horses was +fixed at a penny a horse for every mile travelled. Generally this fee +was named in the warrant empowering the traveller to take up +horses.[330] When the sum was not definitely named, it was required that +it should be reasonable.[331] It seems to have been the custom of the +members of the Council to grant these warrants quite indiscriminately. +To remedy this, it was provided in 1566 that in future no warrant should +be granted to any person, who was not actually travelling upon state +affairs.[332] Twelve years later we find the people of Grantham +petitioning the Council against the taking-up of horses to ride post. +They said that the practice had increased so much that it had become +intolerable.[333] The demand for horses had become so great that 2_d._ a +mile was asked for each horse and complaint was made that travellers and +messengers refused to pay the increased charge.[334] It is improbable +that the state was successful in preventing the use of the postmasters' +horses by private individuals, and it is more improbable still that the +postmasters themselves objected to hiring their horses to those who +travelled on their own affairs. Warrants issued by the Council nearly +always fixed the price which should be paid. Now such prices, like wages +when fixed by employers, are likely to be lower than demand and supply +warrant. On the other hand, as between the postmasters and the ordinary +travellers, the question of charge was adjusted by agreement. + +[327] Hist. MSS. Com. _Rep._, 14, app., pt. 8, p. 35; _P. & O. P. C._, +vii, p. 350. + +[328] _Rep. Com._, 1844, xiv, app., p. 32 (7). + +[329] _L. & P. Hen. VIII_, xvii (1542), p. 484. + +[330] _A. P. C._, 1542-47, pp. 164, 333, 465, 469, 527; 1547-50, p. 505. + +[331] _Ibid._, 1550-52, p. 452; 1542-47, p. 384. + +[332] _Ibid._, 1558-70, p. 326. + +[333] _Cal. S. P. D._, 1547-80, p. 612. + +[334] _Ibid._, 1547-80, p. 362. + +When the postmasters themselves were too poor to obtain horses at their +own expense, they were sometimes aided by the town or county. In +Norfolk, for instance, each one of three postmasters was provided with a +certain sum out of the treasury of the city of Norwich to be lent +without interest. They were also paid so much a year out of money levied +on the people of Norwich, one half on the innkeepers and tipplers and +one half on the other inhabitants. No man was to take up post horses in +Norwich unless licensed by warrants from the Queen, the Council, the +Duke of Norfolk, or the Mayor of Norwich. No one was to ride a horse +farther than twelve or fourteen miles at a stretch, and he was to pay +2_d._ each mile and 6_d._ to his guide to lead back the horses. No horse +was to carry any cloak bag over ten pounds in weight.[335] + +[335] F. Blomefield, _Norfolk_, 1806, iii, p. 294. + +If more horses were demanded from the postmaster than he himself had in +his stable, he might seize them from his neighbours but the full amount +paid was to go to the owners. The date of the commission empowering +horses to be used, the name of the person using them, and the date when +the horses were demanded were to be entered in a book, kept for the +purpose.[336] + +[336] _A. P. C._, 1571-75, p. 181. + +Complaints from the postmasters concerning the abuses of travellers +were frequent. The London-Berwick posts in a petition to the Council +stated that on account of the great number riding over that road many of +their horses were injured or spoiled and were not paid for, while the +constables, whose duty it was to see that horses were provided, were +often ill-treated. Accordingly by a proclamation issued in 1578, it was +provided that no commission to ride in post should be issued unless it +was first moved at a council meeting or ordered by the Secretary for +causes properly relating to Her Majesty's service.[337] This was +followed in 1582 by a still more stringent proclamation, forbidding any +person to use a commission more than once unless otherwise specified. +The pay of 2_d._ a mile for each horse was to be in advance as was also +the "guide's groat" and, if the payment was not so advanced, the +postmaster might refuse to supply horses.[338] Occasionally we find +people objecting to having their horses taken when the postmaster had +not sufficient of his own. Complaints like these were generally followed +by an order to the offending postmaster to provide himself with more +horses.[339] + +[337] _A. P. C._, 1577-78, p. 219. A particularly violent man roused the +ire of the Mayor of Guildford, who wrote to Walsingham asking for +damages to a gelding killed by a Mr. Wynckfeld, riding post from +Guildford to Kingston. The gelding stumbled and fell on the road and +Wynckfeld thrust his dagger into him, beat the guide and threatened to +kill the constables on his return (_Cal. S. P. D._, ii, p. 529). + +[338] _A. P. C._, 1577-78, p. 219. + +[339] _Ibid._, 1588-89, p. 206. + +The travellers, however, were not the only people who were at fault. The +owners of the horses were often offenders and can hardly be blamed for +rendering as difficult as possible the enforcement of the obnoxious +proclamations, which they were ordered to obey. If they had to supply +horses, they must do so, but there was nothing to prevent them from +offering clumsy plough horses or venerable specimens no longer capable +of drawing a plough. The constables were more apt to sympathize with the +owners, who were their neighbours, than with the travellers. +Consequently it is not surprising that complaints were loud and deep +over the pieces of horseflesh, whose angular outlines must have +presented a sorry seat for the Queen's messengers.[340] + +[340] _Ibid._, 1577-78, p. 62; 1580-81, p. 203. + +By a Privy Council proclamation issued in 1603, all posts receiving a +daily fee were required to keep at least two horses apiece. So far as +the letting of horses was concerned, they had up to this time been +subject to competition from other people, who had horses to hire. They +were now granted the prior right to provide horses for travellers and it +was only in case of their supply being inadequate that horses might be +procured elsewhere. The hire as usual was to be paid in advance and was +fixed at 2-1/2_d._ a mile, together with the guide's fee for those +riding on commission and was to be settled by agreement for all others. +No heavier burden than thirty pounds in excess of the rider's weight was +to be carried by each horse.[341] + +[341] _Rep. Com._, 1844, xiv, app., pp. 38, 39, 40 (18). + +It is in connection with the monopolistic restriction of 1603 that +Macaulay says that the state must have reaped a large reward from the +prior right of the postmasters to hire horses to travellers.[342] Mr. +Joyce has pointed out that the proceeds went to the postmasters and not +to the state, but he has given no good reason for dissenting from +Macaulay's opinion. Without doubt Joyce is correct, as is shown by a +complaint from the postmasters on the Western Road that they had been +injured by an interloper who supplied travellers with horses.[343] In +1779, the state made an attempt to obtain something from the postmasters +by requiring them to take out a licence for the hiring of horses and to +pay a percentage for their receipts to the government.[344] Indirectly, +however, the state did reap some benefit from the revenue from post +horses, for if the postmasters had received nothing from their horses or +from the conveyance of private letters, it would have been necessary to +pay their salaries much more promptly than was the custom. As early as +the latter part of the sixteenth century, we find complaints from the +London-Dover posts that they had received nothing on their salaries for +a whole year.[345] This was nothing to later complaints and proves that +an impecunious government was enabled to act the bad debtor by the fact +that other forms of revenue were available for the postmasters. + +[342] Macaulay, _Hist. of England_, 1849, i, p. 387. + +[343] _Cal. S. P. D._, 1629-31, p. 193. + +[344] 19 Geo. III, c. 51. + +[345] _Cal. S. P. D._, 1581-90, p. 131. + +In 1609 the rate for each horse was raised from 2-1/2_d._ to 3_d._ a +mile, and an attempt was made to enforce the postmasters' monopoly more +strictly.[346] No horse was to be ridden beyond the initial stage unless +with the consent of the postmaster concerned. The postmasters complained +that they were held responsible for supplying horses, and yet, when it +was necessary to obtain them from the surrounding country, they were +resisted by the owners or were supplied with inefficient animals.[347] +The complaints of the public were more to the purpose. According to them +there were some who were being called upon constantly for horses while +others escaped all demands. The postmasters often accepted bribes from +owners of horses on condition that they should not be troubled.[348] At +times the horses, after being seized, were not used but were kept in the +stables of the postmasters, and their owners charged the expense of +maintaining them. + +[346] _Rep. Com._, 1844, xiv, app., p. 42 (20). + +[347] _Cal. S. P. D._, 1619-23, p. 517. + +[348] _Ibid._, 1619-23, p. 86; 1635, p. 18; 1631-33, p. 257. + +At the establishment of Witherings' plan in 1635, the postmasters on all +the roads in England were required to have as many horses ready as were +necessary for the carriage of letters and the accommodation of +travellers. The rate for each horse was lowered from 3_d._ to 2-1/2_d._ +or 5_d._ for two horses and a guide.[349] Before 1635, the post enjoyed +no priority over the traveller in being provided with horses, and if all +the horses happened to be in use when the mail arrived, it had to wait. +Now it was provided that on the day when the mail was expected, enough +horses should be kept in the stable to ensure its prompt +transmission.[350] In 1637, after Witherings' dismissal, the fee for the +hire of a horse was raised again to 3_d._ at which rate it continued +until 1657, when it was lowered to 2-1/2_d._ by the Commonwealth +Government. So much trouble had been caused by the seizure of horses +from owners unwilling to part with them that it was provided by the act +of 1657 that no one might take or seize horses for service without the +consent of the owner, but no one save the Postmaster-General and his +deputies might hire horses to persons riding in post with or without +commission.[351] At the Restoration in 1660, the old rate of 3_d._ a +mile for each horse was re-imposed together with a 4_d._ fee to the +guide for each stage. If the postmaster was unable to furnish horses +within half an hour, they might be obtained elsewhere, but always with +the consent of the owner.[352] + +[349] _Ibid._, 1635, p. 299. + +[350] _Rep. Com._, 1844, xiv, app., p. 57 (36); _Cal. S. P. D._, 1637, +p. 338. + +[351] Scobell, _Collect._, 1656, c. 30. + +[352] 12 Ch. II, c. 35. + +The sole right to supply horses was continued to the Postmasters-General +and their deputies by the famous act of 1711. The rate per horse and the +guide's fee remained at the figure imposed by the act of 1660. If the +postmaster did not supply the horses demanded within half an hour, he +was liable to a fine of £5 and the horses might be obtained from any one +who would consent to hire them. The maximum burden for one horse over +and above the rider's weight was eighty pounds.[353] + +[353] 9 Anne, c. 11. + +The postmasters enjoyed the monopoly of letting horses to travellers +until the middle of the eighteenth century. But the industrial growth of +England and the improvement in the roads had produced such an increase +in the number of travellers that the postmasters were unable to supply +the demand. The use of carriages had become more common, enabling people +to travel who could not proceed on horseback, and this had still further +increased the demand for horses. It was plain that something must be +done and some more extensive source of supply drawn upon than that +furnished under the old system. The postmen had heard some of the +rumours in the air that a change was about to be made, and they +forwarded a petition to the House of Commons, protesting against the +contemplated change as an infringement upon their old monopoly. They +said "that if the amendment should pass into a law as it is now drawn, +it would not only tend to the great damage and loss of the petitioners, +but also the prejudice of His Majesty's revenue."[354] The amendment did +pass, however, declaring that in future any one might furnish chaises +and calashes with horses and that people letting chaises might supply +horses for them at the same time.[355] + +[354] _Jo. H. C._, 1745-50, p. 830. + +[355] 22 Geo. II, c. 25. + +In 1779, when the Treasury was sadly in need of money, an act was +passed, requiring all persons letting horses to take out licences. In +addition, duties were levied on all horses and carriages hired for the +purpose of travelling post.[356] In the following year this act was +superseded by a stricter and more comprehensive one. It was provided by +the new act that every person letting horses to travel should pay five +shillings a year for a licence. In addition one penny a mile should be +paid for every horse, or, if the distance was not known, 1_s._ 6_d._ a +day, such duties to be paid by the person hiring the horses to the +postmaster or other person who provided them, to be by him handed over +to the Treasury. At the time of payment the postmaster was to give the +traveller a ticket, which must be shown to the toll keepers on the road. +If he had no ticket to show, the toll keeper was ordered not to allow +him to pass.[357] Five years later the duty to be collected was raised +to 1-1/2_d._ a mile for each horse or 1_s._ 9_d._ a day.[358] In 1787, +permission was given to let these duties out to farm, because so many +difficulties had been experienced in their collection.[359] The whole +theory of these duties was illogical, for it was to every one's interest +to evade them, and direct supervision was impossible. In 1808 another +act for farming the post-horse duties was passed, modifying somewhat the +provisions of the previous act. The tax was to extend to horses used in +travelling, when hired by the mile or stage and when hired for a period +of time less than twenty-eight days for drawing carriages used in +travelling post. Persons licenced to let horses were required to have +their names and places of abode painted on their post carriages if they +provided these also. The carriages must have numbers painted on them so +as to distinguish them easily.[360] In 1823 all previous acts relating +to licences and fees for keeping horses for hire were repealed, and a +complete system of rates was substituted. Every postmaster or other +person keeping horses to hire for riding by post must pay an annual +licence of five shillings and additional duties calculated according to +distance or time. The Treasury was given authority to let these duties +to farm.[361] + +[356] 19 Geo. III, c. 51. + +[357] 20 Geo. III, c. 51. + +[358] 25 Geo. III, c. 51. + +[359] 27 Geo. III, c. 26. + +[360] 48 Geo. III, c. 98. + +[361] 4 Geo. IV, c. 62:-- + +For every horse let to hire by the mile at the ordinary rate, 1-1/2_d._ + +For no greater distance than eight miles, one fifth part of the sum +charged or 1_s._ 9_d._ + +For no greater distance than eight miles and when the horse or horses +shall not bring back any person nor deviate from the regular road, +1_s._ + +For every horse let for a period less than twenty-eight successive days +and not let according to the terms given above, one fifth part of the +sum charged or 2s. 6d. for each day not exceeding three days and 1_s._ +9_d._ for each day exceeding three days but not exceeding thirteen days +and 1_s._ 3_d._ for each day exceeding thirteen but not exceeding +twenty-eight days. + +For every horse let for twenty-eight successive days or for a longer +period, one fifth of the sum charged or 2_s._ 6_d._ for each day not +exceeding three and 1_s._ 9_d._ for each day exceeding three days but +not exceeding thirteen days and 1_s._ 3_d._ for each day exceeding +thirteen and less than twenty-one days. + + + + +CHAPTER VI + +ROADS AND SPEED + + +Sir Brian Tuke, writing in 1533, said that the only roads in the kingdom +over which letters were regularly conveyed were from London to Dover and +London to Berwick.[362] The road to Berwick had been in use in 1509[363] +but had evidently been discontinued, for Sir Brian says in his letter +that postmen were appointed to it in the year that he wrote. Regular +posts were established between London and Portsmouth when the fleet was +there and discontinued as soon as it left, so that it can hardly be +included among the regular roads.[364] Between 1580 and the accession of +James I, there was a distinct revival in postal affairs within and +without the kingdom. The posts on the London-Holyhead road had been +discharged for some time and Irish letters were conveyed to London by +the postmaster at Chester.[365] In 1581 Gascoyne, the acting +Postmaster-General, was ordered to appoint stages and postmen on this +old route.[366] A letter patent was issued, calling upon all Her +Majesty's officers to assist him in so doing, and a warrant was signed +for the payment of £20 to defray his expenses. The Rye-Dieppe posts were +also reorganized, principally for the conveyance of letters to and from +France.[367] Bristol ranked next to London in size and importance, but +it was not until 1580 that orders were given to horse and man the road +between the two cities,[368] and only in the following decade were posts +also laid from London to Exeter and somewhat later from Exeter to +Plymouth.[369] This illustrates as well as anything the fact that the +early English postal system was mainly political in its aims. The great +post roads were important from a political rather than an economic +standpoint. It was necessary to keep in close touch with Scotland +because the Scotch would always stand watching. The wild Irish needed a +strong hand and it was expedient that English statesmen should be well +acquainted with things Irish. The post to and from the continent was +quite as necessary to keep them informed of French and Spanish politics. + +[362] _Rep. Com._, 1844, xiv, app., p. 32 (7). + +[363] _L.& P. Hen. VIII_, vii, pt. 2, p. 1444. + +[364] _A. P. C._, 1556-58, pp. 249-309. + +[365] _Ibid._, 1571, 75, p. 201; _Cal. S. P. D._, 1547-80, p. 265. + +[366] _Cal. S. P. Ire._, 1574-85, p. 176; _A. P. C._, 1580-81, p. 131. + +[367] Hist. MSS. Com., _Rep._, 13, app., pt. 4, p. 89. + +[368] _A. P. C._, 1580-81, p. 211. + +[369] _Cal. S. P. D._, 1581-90, p. 712; _Rep. Com._, 1844, xiv, app., p. +43 (21). + +In conveying letters the postman who started with them did not, on the +regular roads, proceed through to the place where they were directed, +but carried them only over his stage to the next postman. By this method +a fair rate of speed should have been maintained, for the horses' path +in the middle of the road was as a rule not so bad as seriously to +impede travelling.[370] Nevertheless complaints about the tardiness of +the post are numerous. Lisle, the Warden of the Marches, said that +letters from London were nearly five days in reaching him at +Alnwick.[371] Nine days from London to Carlisle was considered too slow +but it often took that long, notwithstanding that the letters were +marked twice "for life, for life."[372] The Earl of Sussex complained to +Cecil that they never arrived in York under three days. He expected too +much, however, for three days from London to York was considered good +speed.[373] According to a post label made out in 1589, the distance +from Berwick to Huntingdon was accomplished in ninety-one hours. By the +mileage tables then published, the distance was 203 miles, giving an +average speed of only a little over two miles an hour. It is only fair +to add that the real distance was 282 miles, and this would raise the +speed to about three miles an hour.[374] The distance from Dover to +London was covered in twelve hours, from Plymouth to Hartford Bridge in +forty-four hours, from Portsmouth to Farnham in five hours, from +Weymouth to Staines via Sherborne in five days, but this must have been +exceptionally long.[375] + +[370] Hist. MSS. Com., _Rep._, 14, app., pt. 8, p. 35. + +[371] _L. & P. Hen. VIII_, 1543, p. 4. + +[372] _Cal. S. P. D._, 1547-65, p. 360. + +[373] _Ibid._, 1566-79, p. 109. + +[374] _Ibid._, 1580-1625, p. 278. + +[375] Hist. MSS. Com., _Hatfield House_, pt. 7, pp. 174, 168, 332, 358. + +Orders were given to the postmen in 1603 that they should not delay the +mails more than fifteen minutes at each stage and that they should +travel at the rate of seven miles an hour in summer and five in +winter.[376] This was an ideal but seldom realized. Complaints continued +to come in pretty constantly during the first thirty-five years of the +seventeenth century.[377] Secretary Conway wrote to Secretary Coke that +the posts must be punished for their tardiness.[378] Even those from +London to Dover were reprimanded and they had hitherto given the best +satisfaction. The postmaster at Dover was threatened with imprisonment +unless he mended his ways.[379] Letters were either not delivered at all +or were needlessly delayed on the road. Some of the postmasters, who +held lucrative positions, were themselves absentees and their work was +performed by their agents, who were often incompetent, and this sort of +thing was connived at by the Postmaster-General, from whom their +positions were bought. The postmen themselves acknowledged their +tardiness but said that they were able to do no better, since they had +received no wages for several years.[380] One had been paid nothing for +over two years,[6] another had received no wages for seven years,[381] +and finally in 1628 a petition was presented to the Privy Council from +"all the posts in England, being in number ninety-nine poor men." This +petition prays for their arrears, due since 1621, the amount unpaid +being £22,626, "notwithstanding the great charge they are at in the +keeping of many servants and horses to do His Majesty's service."[382] +The Council did not grant their petition, for two years later £25,000 +were still due them.[383] + +[376] _Rep. Com._, 1844, xiv, app., pp. 38-40 (28). + +[377] Six days from London to Holyrood House (_Cal. S. P. D._, 1611-18, +p. 44). Five hours from Sittingbourne to Canterbury (12 miles) (_ibid._, +1619-23, p. 610). Nine hours from Sittingbourne to Dover (_ibid._, +1625-26, p. 256). + +[378] _Cal. S. P. D._, 1619-23, p. 564. + +[379] _Ibid._, 1625-26, pp. 43, 168. + +[380] _Ibid._, 1627-28, p. 307. + +[381] _Ibid._, 1623-25, p. 141; 1627-28, p. 307. + +[382] _Ibid._, 1628-29, p. 184. + +[383] _Ibid._, 1629-31, p. 379. + +The Council of State gave directions in 1652 for roads to be manned +between Dover and Portsmouth, Portsmouth and Salisbury, London and +Yarmouth, and London and Carlisle through Lancaster.[384] Hitherto, +Carlisle had to depend upon a branch post from the great North Road. +Dover and Portsmouth had no direct connection nor had Bristol and +Exeter, but letters between these places passed through London. These +orders formed part of the directions given to the farmer of the posts in +the following year.[385] Cromwell seems to have recognized the +impracticability of enforcing the speed limit ordered by Elizabeth in +the case of the ordinary mails. He issued orders that in future only +public despatches or letters from and to certain high officials should +be sent by express, and such despatches and letters must be carried at a +speed of seven miles an hour from the first of April to the thirtieth of +September, and five miles an hour the rest of the year.[386] + +[384] _Ibid._, 1652-53, p. 312. + +[385] _Cal. S. P. D._, 1652-53, p. 449. + +[386] _Ibid._, 1655, pp. 285-86. + +Toward the close of the seventeenth century, more attention was directed +to the slowness of the posts and the delays along the road. The average +speed on the great roads varied from three to four miles an hour, +anything below three miles generally calling for reproof. For instance, +the posts on the Portsmouth road were reprimanded for travelling only +twenty-two miles in ten hours.[387] It was said that it took the +Yarmouth mail sixty-six hours to travel less than one hundred miles. The +post labels were an important check upon the postmaster's carelessness. +Each postmaster was supposed to mark the time that he received the mail +on a label attached to it for that purpose. In this way no postmaster +marked the speed that his own postboy made and each was a check upon his +neighbour.[388] Lord Arlington gave orders in 1666 for this practice to +be enforced more strictly. In addition to marking the time of arrival, +the time of departure was also to be added.[389] A year later a further +improvement was made by the use of printed labels, containing also +directions as to speed. The names of the post towns through which the +mail must pass were also added, and blanks were left for the postmasters +to fill in the hours of arrival and departure.[390] + +[387] _Ibid._, 1661-62, p. 385. + +[388] _Ibid._, 1665-66, p. 19. + +[389] _Ibid._, 1666-67, p. 384. + +[390] _Ibid._, 1667-68, p. 116. From copies of these labels made out in +1666 and 1667 we know exactly how long it took to convey the mails +between London and the important cities of the kingdom although the time +varied more or less at different trips and different seasons. + + _Between_ _Hours_ + London and Yarmouth From 29 to 32 + Plymouth 50 58 + York 39 42 + Chester 30 56 + Bristol 25 30 + Gloucester 20 26 + Portsmouth 15 23 + Edinburgh 73 103* + Newcastle 57 81 + Manchester 32 48 + Preston 47 58 + Dover 19 22 + Southampton 18 23 + (_Cal. S. P. D._, 1667-68, pp. 117, 118, 120, + 121; 1666-67, pp. 388, 389.) + + * Reproved for slowness. + +It was often difficult to tell the relative position of places in +England from the post towns. The Post Office had for its own use a +table of places along the great roads,[391] and from the middle of the +seventeenth century, private individuals began to publish road maps. On +these maps, the post towns are marked by a castle with a flag flying +from it. Some of them are quite artistically done and represent on a +large scale every important road in England with the places where branch +roads leave them. One map has each road outlined on a long scroll, and +it gives the rivers, brooks, bridges, elevations, villages, post towns, +forests, and branch roads throughout the whole distance.[392] In 1668, +Hicks, in writing to Arlington's secretary, advised him not to have a +new map of the post roads printed, fearing the great changes that might +thereby be produced in the Post Office. He says: "When Parliament sees +how all the branches lie and most of them carried on at the charge of +those in the country concerned, they will try to have them carried +through by the Postmaster-General, which will be very chargeable."[393] + +[391] _Cal. S. P. D._, 1673-75, p. 494. + +[392] John Ogilby, _Itinerarium Angliae_, 1675. + +[393] _Cal. S. P. D._, 1667-68, p. 543. + +At the close of the seventeenth century, the five great roads to +Edinburgh, Holyhead, Bristol, Plymouth, and Dover remained practically +unchanged. The Plymouth road had been continued to Falmouth and the +Northern Road now passed through York. The greatest changes noticeable +are in the Southern and Eastern counties. In the South, nearly all the +coast towns were now connected with the Falmouth road, and the post ran +to the extreme southwest of Cornwall. Portsmouth had a direct service +from London through Arundel and Chichester. There were branches from the +Falmouth road to several towns in Dorset and Somerset, but as a rule the +country between the two great roads to the West was poorly supplied. A +new road of considerable importance ran from Maidenhead on the Bristol +road through Abingdon, Gloucester, Cardiff, and Swansea to Milford, +where there was a packet boat for Ireland. From this road there were a +few unimportant branches to the North. + +In the Northeast, the post road to Edinburgh now passed through York to +Northallerton. From York there was a branch to Scarborough and Whitby. A +new road left the Edinburgh road at Royston, about forty miles from +London, and passed along the coast nearly parallel to the great road, +through Newmarket, Lynn, Boston, and Hull to Bridlington. Another branch +left Newmarket for Norwich and the seacoast towns of northern Norfolk. +An important road left London for Yarmouth, with branches to the coast +towns of Suffolk. One new road ran through the midland counties, leaving +the Holyhead road about thirty miles from London and passing through +Sheffield, Manchester, and Preston to Carlisle. Derby was supplied by an +east and west road from Grimsby to Manchester. Liverpool had a post road +to Manchester. In 1683, provision was made for an extension of the post +roads by an order issued to the Postmaster-General to set up posts +between the market towns and the nearest post towns. These were called +bye-posts. It was to them that Hicks had objected as leading to +increased expense. At the same time orders were given for a map to be +printed, showing where all these bye-posts were situated so that people +might know where to address their letters.[394] + +[394] _Rep. Com._, 1844, xiv, app., p. 91 (64). + +In Ireland, there were three main post roads, running from Dublin +through Ulster, Munster, and Connaught.[395] There were practically no +post roads worthy of the name in Scotland. That part of the great North +Road beyond the Tweed was English rather than Scotch. Between Edinburgh +and Glasgow there was a foot-post. The mail was also carried between +Glasgow and Portpatrick.[396] In 1699, the length of the roads in +America over which the mails passed was 700 miles. These roads connected +the principal towns along the Atlantic coast.[397] + +[395] Joyce, p. 53. + +[396] _Cal. T. B. & P._, 1739-41, p. 240; _Rep. Com._, 1844, xiv, app., +p. 94 (67); _Acts of the Parl. of Scotland_, ix, p. 417 (5 Wm. III). + +[397] _Cal. T. P._, 1697-1702, p. 280. + +In 1696, the Postmaster-General reported favourably on the establishment +of a cross post road between Bristol and Exeter.[398] The report was +approved, and two years later Bristol and Exeter had direct postal +communication. Colonial and foreign letters for Bristol, after their +arrival in Falmouth, still went via London.[399] Towns adjacent to +Bristol and Exeter, which might have been connected with the cross post, +remained separated. For example, the post went from London through +Cirencester to Wotton-under-Edge, which was within fourteen miles of +Bristol, yet letters from Cirencester to Exeter went via London.[400] +The Exeter-Bristol cross post proved a success. After it had been in +operation three years, it produced over £350 net profits a year. The use +of cross posts was advocated as leading to the conveyance of a larger +number of letters, and private individuals started to establish +them.[401] In 1700, the post road from Exeter to Bristol was continued +to Chester through Worcester and Shrewsbury.[402] Three years later, a +direct road was ordered between Exeter and Truro, but it seems to have +been discontinued after one year's trial.[403] + +[398] _Ibid._, 1657-96, p. 55. + +[399] Latimer, _Annals of Bristol_, p. 488. + +[400] _Cal. T. P._, 1697-1702, pp. 21-22. + +[401] _Ibid._, 1697-1702, p. 56. + +[402] _Ibid._, 1702-07, p. 26. + +[403] _Ibid._, 1702-07, p. 134. + +The post roads throughout the kingdom had not been measured correctly. A +mile on the London-Edinburgh road was fully ten furlongs. This had +resulted in a decreased revenue from post horses and often unjustifiable +reprimands for slowness. By a provision in the act of 1711, it was +ordered that all the post roads in the kingdom should be measured. This +was to be done by officials appointed by the Postmaster-General and the +measurements left in the general offices in London, Edinburgh, and +Dublin.[404] + +[404] 9 Anne, c. 11. + +As the seventeenth century had seen the extension of roads in the +southern and eastern counties of England, so the eighteenth century was +marked by the establishment of posts in those parts of the kingdom most +affected by the industrial revolution. The country about Birmingham, +Kidderminster, and Worcester was to share in the better postal +facilities offered by the mail coaches. Lancashire and the West Riding +of York were not debarred from the use of Palmer's innovation. This was +especially the case in Liverpool, Manchester, Newcastle, Halifax, and +Leeds, for where industrial expansion paved the way, the coaches were +sure to follow. + +At the beginning of the nineteenth century the roads in Ireland were +attracting considerable attention, and it was the slow speed made by the +mail carts there which was a primary cause in producing any improvement. +The Postmasters-General were directed to cause surveys to be made and +maps drawn of those roads in Ireland over which the mail passed. The +roads were to be levelled so that the ascent or descent should be no +more than one foot in thirty-five wherever this was practicable, the +expense to be borne by the county or barony.[405] This was in 1805, and +the next year the Grand Jury was given the power to call for another +survey, and the surveyor whom they appointed was to decide as to the +necessity for a change in the direction of the road. Copies of all Grand +Jury presentments were to be made to the Postmasters-General.[406] In +1813 the Grand Juries were empowered to present for damages accruing to +owners and occupiers of land, such damages to be raised by the county +and advanced from the consolidated fund.[407] + +[405] 45 Geo. III, c. 43. + +[406] 46 Geo. III, c. 134. + +[407] 53 Geo. III, c. 146. + +After 1817, the Postmasters-General were able to report a considerable +acceleration in the speed at which the mails were carried. This was +owing largely to the introduction of a lighter and more improved type of +mail coach, and after 1821 the use of steam packet boats in the case of +the transportation of the Irish and continental mails. Letters leaving +London at 8 P.M. on Tuesday for Ireland had not been delivered in Dublin +until 10 A.M. on Friday. In 1817 they arrived on Thursday in time for +delivery on that day.[408] In 1828, the coaches travelled from London to +Holyhead, a distance of 261 miles, in twenty-nine hours and seventeen +minutes. Four years later the time had been reduced to twenty-eight +hours.[409] By the introduction of one of the patent mail coaches on the +Yarmouth road, the inhabitants of that town were enabled to answer their +letters a day earlier. The coach left London at the usual time (8 P.M.), +arriving in Yarmouth at 11.40 A.M., returning at 3 P.M. on the same +day.[410] The mails to Manchester and Liverpool travelled at the rate of +nine miles an hour over the greater part of the road.[411] The average +speed varied from eight to nine miles an hour. To give the exact +figures, the highest speed attained in England was ten miles and five +furlongs an hour, the slowest six miles, and the average eight miles and +seven furlongs.[412] In Ireland the highest speed attained by the mail +coaches was nine miles and one furlong an hour, the slowest speed six +miles and seven furlongs, and the average eight miles and two +furlongs.[413] Mail carts drawn by two horses were also used largely in +Ireland for the conveyance of the mails, and by these the speed was not +so great. The highest speed made by them was seven miles and five +furlongs an hour, the slowest five miles and one furlong, and the +average six miles and three furlongs.[414] In Scotland the highest +speed was ten miles and four furlongs an hour, the slowest seven miles, +and the average eight miles and two furlongs.[415] + +[408] London _Times_, 1817, Aug. 28, p. 2. + +[409] _Rep. Commrs_., 1830, xiv, p. 347; 1831-32, xvii, p. 7. + +[410] London _Times_, 1819, July 17, p. 2. Yarmouth is distant from +London 124 miles. + +[411] _Ibid._, 1821, Aug. 23, p. 3. + +[412] _Acc. & P._, 1836, xlv, 364, pp. 2 f. The following times are +given in _Rep. Commrs._, 1830, xiv:-- + p. 348 London to Liverpool 22 hrs. 7 min., distance 202 miles + p. 349 London to Bristol 13 14 122 + p. 350 Bristol to Milford 19 38 149 + p. 351 London to Carlisle 34 7 311 (via Leeds) + p. 352 Carlisle to Portpatrick 11 32 85 + p. 353 Bristol to Birmingham 10 29 87 + +[413] _Acc. & P._, 1836, xlv, 364, p. 4. The following times are given +in _Rep. Commrs._, 1830 xiv:-- + p. 354 Dublin via Cashell to Cork 22 hrs. distance 126 miles + p. 355 Cork to Waterford 12 hrs. 4 min., 72 + p. 356 Dublin to Belfast 13 15 80 + p. 356 Donaghadee to Belfast 2 24 14 + +[414] _Acc. & P._, 1836, xlv, 364, p. 7. + +[415] _Ibid._, 1836, xlv, 364, p. 5. + +The mails which left London at 8 P.M. arrived in Holyhead at 12.6 A.M. +on the next day but one. The packet left Holyhead twenty-five minutes +later for Howth. The packet left Howth at 4 P.M. for Holyhead, and the +mails for London left Holyhead at 12.15 A.M. The passage across the +Irish Sea took from five to eight hours. The London coach arrived in +Milford at 5.27 A.M., travelling at a rate of eight miles an hour, and +twenty-five minutes after its arrival, the packet left for Dunmore. +Another left Dunmore with the mails at 12 P.M., and the coach left +Milford for London at 7.30 P.M.[416] The London mail coach arrived at +Portpatrick at 10.27 P.M., fifty hours and twenty-seven minutes from +London. The packet did not leave Portpatrick until 6.10 A.M., after the +arrival of the Glasgow mail, which left Glasgow at 4.45 P.M., arriving +at 5.6 A.M. The packet left Donaghadee at noon, and the mail left +Portpatrick at 4 P.M., arriving in Glasgow at 6 A.M. Ordinarily the +passage across took four hours. The London mail coach arrived in +Liverpool at 6 P.M., twenty-two hours from London, and left at 10.30 +P.M. Packets sailed from Liverpool and Kingstown at 5 P.M. and 5.15 +P.M., the time for crossing being about fourteen hours. No London +letters went via Liverpool until 1841.[417] + +[416] _Rep. Commrs._, 1831-32, xvii, pp. 7, 373-74. + +[417] _Ibid._, 1831-32, xvii, pp. 373-74. + +The method used to ensure a rapid transmission of the mails by the +coaches was as follows: Time bills were issued to the guards of the +different coaches. On these bills were printed the speed that should be +made from stage to stage, and it was the guard's duty to fill in the +time made by the coach on which he rode. Penalties were inflicted for +any mistakes which he might make or any failure on his part to leave the +bill in the office at the end of his route. On some of the time bills it +was set forth that a fine of one shilling was payable by the proprietor +for each minute that the coach was late and he might recover it from the +guard or coachman if the delay was due to the negligence of either of +them. The coachmen were ordered to make up any time lost on the road +and to report the horse keepers if they were at fault.[418] + +[418] _Rep. Commrs._, 1837, xxxiv, 7th rep., app., nos. 40-45. + +The chief cause for delay was the lack of close connection between the +mail coaches and the packets to and from Ireland. In 1837 the London +mail arrived in Holyhead at 11 P.M., but the packet did not leave for +Kingstown until 8 A.M., a change having been made in the time of +sailing.[419] Letters from England were detained in Dublin eleven hours +before their departure for the rest of the island.[420] More than one +third of the Irish letters for England left Kingstown by the day packet +at 9 A.M., remaining in Holyhead from 3 P.M. to 4 A.M., with the +exception of the letters for Chester and Manchester, which were +forwarded by a special coach.[421] + +[419] _Ibid._, 1837, xxxiv, 7th rep., app., no. 11. The packet leaving +Holyhead at 6.30 P.M. carried letters from Birmingham, brought by the +coach from that place, but took no London letters (_Acc. & P._, 1841, +ix, p. 9). + +[420] _Rep. Commrs._, 1831-32, xvii, p. 325. + +[421] _Ibid._, 1837, xxxiv, 7th rep., app., no. 11. + +The packets from Liverpool started shortly before the arrival of the +London mail. The Commissioners proposed that they should be detained +until it had arrived, but this was not done until ten years later.[422] +The packets at Portpatrick always waited for the mails from Glasgow, and +as these were nearly always late, letters from Carlisle and Northern +England were necessarily detained.[423] The station at Milford had +always given the most trouble. From a financial point of view it was the +least satisfactory, and English letters for the south of Ireland often +went through Holyhead. The packet left Waterford[424] for Milford at 12 +P.M., arriving in Milford about noon, but the mail did not leave for +London until 7.30 P.M.[425] English letters for Ireland via Milford were +detained from ten to thirteen hours in Waterford.[426] + +[422] _Ibid._, 1831-32, xvii, pp. 5-9; _Acc. & P._, 1841, xix. + +[423] _Rep. Commrs._, 1831-32, xvii, pp. 5-9. + +[424] Sometimes the packet left Dunmore. See _Rep. Commrs._, 1831-32, +xvii, pp. 373-4. + +[425] _Ibid._, 1831-32, xvii, pp. 5-9, 373-74. + +[426] _Ibid._, p. 325. + +Before the introduction of Penny Postage, the use of railways had only +started. In 1837, it was objected that the railways could never be of +much use in this respect because they could not travel at night for +fear of accidents. In answer to this objection it was pointed out that +trains between Liverpool and Manchester and Leeds and Selby found no +difficulty in that respect.[427] In 1837, mails were carried between +Manchester and Liverpool at a rate of twenty miles an hour, and these +trains left both Liverpool and Manchester as late as 5 P.M.[428] The +Postmaster-General was given authority by Parliament to require any +railway to carry mails either by ordinary or special train and to +regulate the speed to the maximum of the fastest passenger train, as +well as to control places, times and duration of stoppage and the times +of arrival, provided that such regulations were reasonable. He might +require the exclusive use of a carriage, if necessary, provided either +by the railway or himself as seemed better to himself. In 1844 he was +allowed to order a speed not in excess of twenty-seven miles an hour but +he complained that he was unable to enforce his regulations although the +speed was increasing. In 1855 a parliamentary committee reported in +favour of a deduction of payment for irregularity on the part of the +railways and the fining of the Post Office for irregularity in dealing +with mail to be entrusted to the railways, the amounts of such +deductions and fines to be a matter of contract, and in addition it was +advised that the Postmaster-General's demands with reference to speed +should be certified by the Railway Department of the Board of Trade to +be consistent with safety. In conformity with this resolution, the +Postmaster-General proposed to pay a bonus to the railways when their +trains were on time and to exact a penalty from either the railway or +the Post Office whichever were the offender, but the proposition was, as +a rule, not very favourably received by the railways.[429] + +[427] _Rep. Com._, 1837-38, xx, pt. 1, p. 469, no. 17. + +[428] _Rep. Commrs._, 1837, xxxiv, 7th rep., app., no. 13. + +[429] 1 and 2 Vict., c. 98; 7 and 8 Vict., c. 85; _Rep. Com._, 1854, xi, +411, p. xiii; _Rep. P. G._, 1857, p. 7. + + + + +CHAPTER VII + +SAILING PACKETS AND FOREIGN CONNECTIONS + + +The Irish mail service was the first to boast a regular sailing +packet.[430] The postal expenditure for the year 1598 included £130 for +a bark to carry letters and despatches between Holyhead and Dublin, and +an additional vessel was hired occasionally for the same purpose.[431] +At the beginning of the seventeenth century, Queen Elizabeth ordered +packets to be established at Milford Haven and Falmouth to ply between +England and Ireland. This order was probably temporary, being intended +to furnish a means of communication only during Essex's expedition.[432] +In 1649 the port of departure for the Irish packets was changed from +Holyhead to Portinllain in Carnarvon and at the same time the land +stages were altered to meet the new conditions.[433] Prideaux reported +the same year that the cost of these packets averaged £600 a year.[434] + +[430] _Cal. S. P. Ire._, 1574-85, p. 401. + +[431] _Rep. Com._, 1844, xiv, app., p. 37 (15). + +[432] _Cal. S. P. D._, 1598-1601, p. 107. + +[433] _Ibid._, 1648-49, p. 210. + +[434] _Jo. H. C._, 1648-51, p. 385. + +In 1653 the Council of State gave orders for the revival of the old +packet service between Milford and Waterford. At the same time Chester +was substituted for Portinllain as the point of departure on the English +side, and mails were carried weekly between the two countries by the +Milford and Chester Packets.[435] The establishment of these boats was +made one of the conditions under which the post was farmed in the same +year.[436] The situation of Holyhead, however, was so much in its favour +that in 1693 a contract was signed for the conveyance of the mails +between Holyhead and Dublin. Mr. Vickers, the contractor, agreed to +maintain three packet boats for this purpose for £450 a year. He also +undertook to provide two boats for the mail service between Portpatrick +and Donaghadee. When the Scotch was separated from the English Post +Office in 1695, three packet boats came under the control of +Scotland.[437] Upon the separation of the British and Irish Posts in +1784, it was provided that each office should receive its own proportion +of the inland postage collected on letters passing between the two +countries. The packet service between the two countries continued to be +managed by the English Postmaster-General, to whom all receipts were +forwarded. In return for this they were required to pay to the Irish +Office a sum not exceeding £4000 a year. This was to be the rule until +Ireland had established packet boats of her own.[438] + +[435] _Cal. S. P. D._, 1644, pp. 6, 29; 1641-43, p. 501. + +[436] _Cal. S. P. D._, 1652-53, pp. 312, 449. + +[437] _Cal. T. P._, 1557-1696, p. 308. + +[438] 24 Geo. III, c. 6. + +The Irish Post Office, before the Act of Union, had employed boats +called wherries for the despatch of special messengers and expresses to +England. In the course of time they lost their special character and, +after 1801, were used to carry passengers and goods in opposition to the +Holyhead packets. In 1813, Lees, the Secretary of the Irish Office, +informed the London Office that these wherries would henceforth be +employed to carry the Irish mails to Holyhead. This was actually done +for six weeks and the regular packets arrived on the English side +without the mail, which was brought by boats that, as a rule, did not +arrive until after the coach had left for London. Lees may have been +obstinate and ill advised but there was no doubt that he was acting +entirely within his rights. The question then arose, should the Irish +Office receive that part of the £4000 due them while the Holyhead +packets did not carry the mails? The Postmaster-General decided that +they should, much to Freeling's disgust. Lees had obtained his object, +for two years later Parliament passed an act increasing the amount +payable to the Irish Office to £8000 a year.[439] + +[439] Joyce, pp. 380-83; 55 Geo. III, c. 145. + +Shortly after the Restoration, two packet boats were employed between +Deal and the Downs. They carried letters to and from the ships of the +merchant marine and the Royal Navy lying there. They also collected +letters from vessels arriving from foreign ports and brought them to the +shore whence they were transmitted by the General Post.[440] By an act +passed in 1767 the Isle of Man was for the first time supplied with a +postal service. A packet boat was to run between Whitehaven and the +Port of Douglas in the island.[441] In 1828 sixteen packet boats were +employed in carrying mails between the coast towns and to and from the +outlying islands of the United Kingdom. All of these boats were hired by +the Post Office, except those from Weymouth to Jersey and Guernsey.[442] + +[440] _Cal. S. P. D._, 1667-68, pp. 248, 249; Joyce, p. 46. + +[441] 7 Geo. III, c. 50. + +[442] _Rep. Commrs._, 1830, xiv, app., nos. 78, 80. + +Early in the sixteenth century Dover was the port of departure and +arrival for letters to and from the continent, and Calais was the +distributing point on the other side, although the royal mail was +occasionally conveyed between Rye and Dieppe.[443] From Calais the +letters were carried to their destination by the English messengers to +whom they were entrusted. They took up post horses along the way, paying +for them as they proceeded, and often grumbling at the excessive charges +which were demanded.[444] Letters from abroad directed to England were +usually carried as far as Calais by foreign messengers. The foreign +Postmaster-General would then send his bill to the English +Postmaster-General for expenses so incurred.[445] Regular sailing +packets were not used to carry the mails between Dover and Calais during +the sixteenth century, but merchant vessels were employed by the Post +Office. + +[443] _Cal. S. P. D._, 1581-90, p. 485. + +[444] _Cal. S. P. For._, 1553-58, pp. 239, 341. + +[445] _Cal. S P. D._, 1580-1625, p. 188; 1581-90, p. 84; _L. & P. Hen. +VIII_, i, 3639. + +Witherings' appointment as Foreign Postmaster-General in 1632 was made +the occasion for a report to Sir John Coke on the foreign postal +service. The immediate cause of the report was the fact that mails had +not arrived from Germany, the Hague and Brussels. The fault was laid +upon the messengers, who were accused of "minding their own peddling +traffic more than the service of the state or the merchants, omitting +many packages, sometimes staying for the vending of their own +commodities, many times through neglect or lying in tippling houses." +The report goes on to express confidence in Witherings and in his plan +for the reform of the foreign post.[446] In 1631, thirteen messengers +were employed to carry letters to the continent: three for France; six +for Germany, Italy and the Netherlands; and four, who travelled to Paris +and other parts of France on special occasions.[447] The service which +they gave was inadequate and slow, and in 1633 the foreign post, at +Witherings' suggestion, was ordered to be conducted on the following +principles. Packet posts were to be appointed at suitable stages to run +day and night without stopping. This was the plan which was commented +upon favourably in the report to Sir John Coke. The Foreign +Postmaster-General was to take the oaths of Allegiance and Supremacy, to +have an office in London, and to give notice at what time the public +were to bring in their letters for despatch to the continent. A register +was also to be kept, in which should be enrolled the names of all +persons bringing letters, together with the names of those to whom they +were addressed. The letters themselves were placed in a packet and +locked and sealed with the Foreign Postmaster-General's seal. Letters +from abroad for ambassadors residing in England and for the Government +were to be delivered at once, after which a table of all other letters +was to be set up for every one to see and demand his own.[448] + +[446] Hist. MSS. Com., _Rep._, 12, app., pt. 1, p. 478. + +[447] _Cal. S. P. D._, 1631-33, p. 242; Hist. MSS. Com., _Rep._, 12, +app., pt. 2, p. 103. + +[448] _Cal. S. P. D._, 1631-33, p. 522. + +Witherings attempted next to come to some agreement with the postal +officials of foreign countries about the despatch of letters. In Calais +he met the Countess Taxis, secretary of the Postmaster of Ghent, and she +agreed to settle stages between Antwerp and Calais. Witherings himself +established stages between London and Dover. There had always been +trouble with the boatmen who conveyed the mail between Dover and Calais. +Witherings reported that he had found a man, who for 40s. would wait for +the packet and depart with it at once, carrying nothing else. The +messengers hitherto employed between Antwerp and Calais were +dismissed.[449] The arrangement in France for the carriage of letters to +and from England was decidedly unique. Witherings obtained the +permission of the French ambassador to settle stages in France +himself.[450] + +[449] Hist. MSS. Com., _Rep._, 12, app., pt. 2, p. 6. + +[450] _Cal. S. P. D._, 1634-35, p. 193. + +In 1644, King Charles, from his headquarters at Oxford, ordered sailing +packets to be established at Weymouth to ply between that town and +Cherbourg. This was done ostensibly for the accommodation of the +merchants in the southwest of England. James Hicks was ordered to live +in Weymouth for the purpose of exercising a general oversight over all +letters going or coming by these packets. All dues must be paid before +they were allowed to depart and the masters were accountable to him for +passage money. Postage was charged on all letters going to or coming +from any part of England except those on His Majesty's service. No +letters were to be sent from those parts of England in the hands of the +rebels.[451] + +[451] _Cal. S. P. D._, 1644, pp. 6, 29. + +Until 1638, Flanders was the only country with which England had come to +an agreement concerning the mutual exchange of the correspondence of +each. In that year, a similar agreement was concluded with de Nouveau, +the French Postmaster-General. All letters between England and France +were henceforth to pass through Dover, Calais, Boulogne, Abbeville, and +Amiens. Both the French and English kings ratified this agreement, and +all others were prohibited by them from infringing upon the monopolies +enjoyed by the two Postmasters-General.[452] On special occasions, of +course, both the French and English kings sent special messengers but +they were not used so often as before.[453] In 1640, the Governor of the +Merchant Adventurers was asked to give his opinion upon the question of +foreign correspondence concerning which there was considerable +dissatisfaction, especially in the case of letters sent to Flanders and +Holland. The Governor in his reply said that complaints had hitherto +been restrained because of the connection of the state with the foreign +post. He added that some time before a letter had come from the Court of +their company at Rotterdam, complaining about the overcharging of the +Company's letters. He did not care to investigate the question alone but +proposed that it be entrusted to a committee composed of two members +from each of the great companies, the Merchant Adventurers, the Turkish, +the Eastland, and the French.[454] After the Restoration, matters were +adjusted with de Nouveau and provision was made for the transmission of +letters to England twice a week.[455] At the same time an attempt was +made to reach an understanding with the burgomaster of Amsterdam and the +Dutch ambassador for the conveyance of English letters to Germany, the +East, and Italy through Holland. Bishop, the English Postmaster-General, +was accused of accepting money for making this bargain and the proposed +agreement did not materialize.[456] In 1665, Frizell was sent abroad to +talk over postal connections with de Nouveau and the Flemish +Postmaster-General, de Taxis, between whom difficulties had arisen. De +Taxis was reminded that letters from Holland for England passing through +Flanders were not treated in accordance with the agreement made between +England and Flanders.[457] The old contract was continued, for in 1693 a +bill was presented to the English Post Office by the next in order of +the House of Thurn and Taxis, referring to the former agreement. £2711 +was then due to the Flemish Postmaster-General and, as the bill was +presented in the form of a petition signed by the Prince of the House +and his brothers and sisters, there was probably some difficulty +experienced in collecting it.[458] The Dutch were not satisfied with +receiving letters through Flanders, and in 1667 we find the +Postmaster-General of Holland in Harwich, arranging for a direct service +with England, which was established in the following year.[459] Letters +to and from Holland might go via Calais through France and Flanders, or +by sailing packet to Nieuport and thence through Flanders, or directly +from Harwich to Helvoetsluys. The mail for Holland left London every +Tuesday and Thursday night. The route was along the Yarmouth road as far +as Colchester and then directly to Harwich. The Harwich boats were +stopped for a short time in 1672,[460] but after William's accession +they were in such constant service that it was necessary to hire extra +boats.[461] Orders were often given to delay them until the arrival of +an express from the King and on other occasions they were hurried off +before their regular time for departure.[462] + +[452] _Rep. Com._, 1844, xiv, app., p. 58 (37). + +[453] _Cal. S. P. D._, 1639-40, p. 457. + +[454] _Ibid._, 1640, p. 163. + +[455] _Ibid._, 1660-61, p. 82. + +[456] _Cal. S. P. D._, 1661-62, p. 56. + +[457] _Ibid._, 1664-65, p. 489. + +[458] _Ibid._, 1693, p. 57. + +[459] _Ibid._, 1667, p. 440. + +[460] _Ibid._, 1667-68, p. 428; 1672, p. 189. + +[461] _Ibid._, 1690-91, p. 119. + +[462] _Ibid._, 1690-91, p. 552. + +It was agreed by a contract signed by the French and English +Postmasters-General in 1698 that the mails, as soon as they arrived in +Dover from Calais or in Calais from Dover, should be forwarded by +"express" to London and Paris respectively. This was done in England, +but in France the foreign mail continued to be sent at the regular time +of departure and, as there was only one mail a day, English letters +might have to remain in Calais for nearly twenty-four hours, if the +packet from Dover happened to be late. Cotton and Frankland remonstrated +but Mr. Pajot, the French Postmaster-General, returned no answer. The +English Postmasters-General had agreed to pay about £2500 a year to Mr. +Pajot for the conveyance of English letters through France. One or two +instalments were paid before the war broke out.[463] Nothing further was +done until after the Treaty of Utrecht, when a commission was sent to +France to negotiate a new postal agreement. Pajot refused to accept a +lump sum and declared that each letter passing through France must pay +the ordinary postage according to the French rates. Objection was taken +to this as the French rates were higher than the English, but objections +were of no avail. Pajot, who carried matters with a high hand, gained +his point. By the act of 1711, the postage for a single letter through +France to Italy was 15_d._, and by the terms of the new treaty with +France, 21 sous would have to be paid by the English Postmasters-General +for the conveyance of a letter through France.[464] + +[463] Joyce, p. 77. + +[464] _Ibid._, p. 139. + +The withdrawal of the sailing packets between England and France in 1689 +had interrupted postal communication between England and Spain, since +the regular route lay through Calais. Accordingly, packet boats were +hired to ply between Falmouth and the Groyne.[465] After the Methuen +treaty had been signed and while England and France were struggling in +the Spanish Netherlands, it was proposed to replace the old boats +between Falmouth and Lisbon by new. In 1703 a weekly packet service, +supplied by four boats, was established between England and +Portugal.[466] + +[465] _Cal. S. P. D._, 1691-92, p. 97. + +[466] _Cal. T. P._, 1702-07, p. 94. + +At the end of the war, Cotton and Frankland contracted with Mr. Macky to +furnish five boats to carry the mails between England, France, and +Flanders for three years. In 1701, the contract was extended to five +years for £1400 a year. Macky was to provide boats and men but not +provisions and equipment. In case war broke out, the contract would +become void at once. War did break out the next year,[467] and during +the war the packet boats from Harwich to Holland were kept very busy. +They had been large boats, well manned and formidable enough to take +care of themselves in an emergency. They seem even to have become the +aggressors at times. William, himself, as was natural, felt a warm +interest in them. A stranger in a strange land, misunderstood and +personally unpopular, they were the link between him and his home. He +thought that speedier boats should be built and that when pursued they +should attempt to escape rather than stand up to their pursuers. The +government had four narrow, low boats built for purposes of speed. The +sailors complained that the new boats were so low in the water that they +were constantly being swept by the waves and they themselves were +drenched all the time. There is no doubt that William's move was in the +right direction, and the men were placated by an increase in their +wages. This could be done the more easily since the new boats were +smaller than the old and carried fewer men.[468] + +[467] _Ibid._, 1702-07, p. 145. + +[468] Joyce, pp. 75, 76. Mr. Vanderpoel, postmaster at the Brill, was +appointed by the king to take charge of all letters and despatches sent +by or to their Majesties by the Harwich boats (_Cal. S. P. D._, 1691-92, +p. 404; _Cal. T. P._, 1702-07, pp. 19, 33). + +At the time of the War of the Austrian Succession, the Dover packets +were supplied by a man named Pybus. He agreed to carry mails, +passengers, and expresses from Dover to Calais and Ostend. If he could +not reach the latter place by sea he was to land the mails and have them +forwarded overland. He was to receive as pay the fares of all +passengers, but so many officers and soldiers had to be transported free +that he was paid what the Treasury considered that he lost by them.[469] +A position in one of the packets was so dangerous in time of war that a +fund was provided for the widows and children of the killed and for the +support of the wounded. This was met by deducting 10_d._ a month from +the pay of each seaman.[470] + +[469] _Cal. T. B. & P._, 1742-45, p.509. + +[470] _Cal. T. P._, 1708-14, p. 3. + +In 1803, as a war measure, packets were established between Falmouth, +Gibraltar, and Malta.[471] It was understood that the regular service to +Portugal should be discontinued at the same time. In 1812 during +Wellington's campaign in Portugal and Spain, the Post Office announced +that sailing packets would be despatched to Corunna every +fortnight.[472] From Corunna they proceeded to Lisbon before returning +to Falmouth. There was some complaint from the mercantile interests on +account of the stop at Corunna, since the merchants were more interested +in the Lisbon markets than in keeping up communication with Wellington's +army.[473] + +[471] 43 Geo. III, c. 73. + +[472] London _Times_, 1812, Aug. 31, p. 2. + +[473] _Ibid._, 1813, Aug. 22, p. 2. + +By the end of 1813, Napoleon had lost control over Europe. The Dutch had +freed themselves from French domination. On November 26th a Dutch mail +was made up at the Post Office and despatched for Harwich. The regular +packet boats were reëstablished and were ordered to land the mails at +Scheveningen, a small fishing town three miles from the Hague.[474] +Following Napoleon's expulsion to Elba, postal communications with +France were resumed. Mails were despatched from Dover four times a week, +on Tuesday, Wednesday, Thursday, and Friday, leaving London at 11 P.M. +on Tuesday and Friday and at 7 P.M. on Wednesday and Thursday.[475] +Thirteen sailing vessels were stationed at Harwich in 1828, all of them +hired permanently. Nine sailed between Harwich and Helvoetsluys, four +between Harwich and Gothenburg.[476] + +[474] _Ibid._, 1813, Nov. 29, p. 3. + +[475] _Rep. Commrs._, 1829, xi, p. 232; _Acc. & P._, 1817, p. 11; London +_Times_, 1814, April 18, p. 3. + +[476] _Rep. Commrs._, 1830, xiv, app., no. 78. + +The London merchants in 1837 complained that no mails were made up in +Paris for London on Wednesday and Thursday. The mails from Spain, Italy, +and Switzerland arrived in Paris on Tuesday and Friday, and Tuesday's +mails were not despatched until Friday. An arrangement was asked for by +which a daily post might be established between Paris and London. They +pointed out that there was a daily post from Paris to Calais, a daily +packet service and a daily post from Dover to London.[477] English +letters for France arrived in Dover daily at 5 A.M., except on Wednesday +and Saturday, were despatched to Calais at once and left Calais at noon +for Boulogne and Paris. On post nights,[478] letters did not leave +London until midnight, arrived in Dover at 10 A.M., and were often not +in time for the Paris mail, which left Calais at noon.[479] The two +packets between Dover and Ostend carried the mails four times a +week.[480] By virtue of a treaty with Belgium, these packets conveyed +letters both ways and the Belgium Government paid £1000 a year as its +part of the expenses. The Dover-Calais boats on the other hand carried +letters only to Calais, and not from Calais to Dover.[481] Letters from +Belgium to Dover went first to London and this held true of any letters +from Belgium to England via Dover.[482] + +[477] London _Times_, 1830, May 21, p. 3. + +[478] Post nights were probably on Wednesday and Saturday nights. + +[479] London _Times_, 1837, Jan. 14, p. 7. + +[480] _Rep. Commrs._, 1836, xxviii, 6th rep., p. 5. + +[481] _Ibid._, 1836, xxviii, 6th rep., p. 5. + +[482] _Ibid._, 1836, xxviii, 6th rep., p. 7. + +It was provided in 1835 that, after the Postmaster-General had entered +into an agreement with any foreign state to collect and account for the +British postage on letters sent from the United Kingdom to any such +state, it should be optional for a person sending such a letter to pay +the whole amount of postage in advance or to pay the British postage +only, as had hitherto been the custom, or to pay neither. The entire +postage on letters from abroad might also be paid in one sum and the +part due the foreign state was then handed over by the English +Postmaster-General.[483] In the following year such a treaty was +concluded with France, the English colonies also being included in the +arrangement. It was agreed that each country should account to the other +according to the method of reckoning postage of the country to which the +payment was made, a settlement to be concluded every three months.[484] + +[483] 5 and 6 Wm. IV., c. 25. + +[484] London _Times_, 1836, June 20, p. 5. In accounting to France for +letters sent there postpaid, England agreed to consider as a single +letter any enclosure or enclosures weighing not more than a quarter of +an ounce, according to the French method. + +At the beginning of the eighteenth century William Dummer entered into a +contract to supply packet boats for use between England and the West +Indies. For this service Dummer provided five boats, each one of 150 +tons and carrying 50 men. Each was to make three round trips a year, +thus giving fifteen sailings every twelve months from both England and +the West Indies.[485] These boats were to make Falmouth their home port, +but they often kept on to Plymouth, probably because it was a better +place to dispose of their smuggled goods.[486] Poor Dummer was +exceedingly unfortunate with his West India boats. The first one to sail +was captured on her maiden trip. The receipts did not come up to his +expectations. He had supposed that to double the receipts he had only +to double the rates, but like other men before and after him he had to +learn the effect of higher rates on correspondence.[487] In 1706 he +wrote that it was a losing contract,[488] and in the same year the +Government released him from the agreement and paid him for two of his +lost packets.[489] From a total of fourteen boats provided for the +packet service, he had lost nine. The Postmasters-General recommended +that for the future the packets should leave and arrive at Bideford, +which was less exposed to the enemies' privateers than either Falmouth +or Plymouth.[490] + +[485] _Cal. T. P._, 1702-07, p. 64. + +[486] _Ibid._, p.57. + +[487] Joyce, pp. 79, 81. + +[488] _Cal. T. P._, 1702-07, p. 105. + +[489] _Ibid._, 1702-07, p. 29. + +[490] _Ibid._, 1708-14, p. 45. + +After Dummer's failure, no attempt was made by the Post Office to revive +the service until 1745. In that year the Postmasters-General reported to +the Treasury in favour of regular packets between Falmouth and some port +in the West Indies. The report was agreed to, and orders were given for +two new boats to be supplied and for the two boats between Lisbon and +Gibraltar to be transferred there.[491] The agent at Falmouth was +ordered to see that each boat sailed with its full complement of men, as +the captains were accustomed to discharge some of the crew just before +sailing and pocket their wages. He was also to make sure that each of +the boats sailing from Falmouth for Lisbon, the West Indies, or North +America was British built and navigated by British seamen. He must keep +a journal, in which should be entered the time that he received and +delivered mails and expresses, how the wind and tide served, when the +boats arrived and departed, and any delay in sailing which might occur. +The captains were ordered to make returns after each voyage of the +number of men on board. The crew while on shore should receive their +accustomed wages and "victuals" and, if any were discharged, a return +was to be made of such discharge, the money due them being turned over +to the pension fund. It had become customary for the captains not to pay +the men while they were on shore and to retain the money owing them. +Finally the agent was to see that the packet boats proceeded to the +Roads the day before the mail was expected from London.[492] Packets had +already been employed to convey mails to and from Madeira and +Brazil[493] and within the next few years others were hired to ply +between Falmouth, Buenos Ayres,[494] Colombia, Mexico, San Domingo, and +Cuba, and between the British West Indies, Colombia, and Mexico.[495] + +[491] _Cal. T. B. and P._, 1742-45, pp. 705, 707. + +[492] _Jo. H. C._, 1787, pp. 816, 817. + +[493] 48 Geo. III, c. 116. + +[494] 5 Geo. IV, c. 10. + +[495] 6 Geo. IV, c. 44. + +In 1815, the Postmaster-General was given permission by Act of +Parliament to establish sailing packets between the United Kingdom, the +Cape of Good Hope, Mauritius, and that part of the East Indies embraced +within the charter of the East India Company. Packet rates were also +charged for letters carried by war vessels and by vessels of the +company, but in the former case the consent of the Lords of the +Admiralty for the use of their ships had first to be obtained. Letters +to and from China must go by vessels of the company and no others. With +the consent of the Commissioners of the Treasury or any three of them, +the Postmaster-General might allow the regular sailing packets to import +and export all goods, which might legally be imported or exported, but +in the case of tea, only enough for the use of those on board should be +carried.[496] + +[496] 55 Geo. III, c. 153. + +When Cotton and Frankland were appointed Postmasters-General in 1691, +the following sailing packets were in commission.[497] + + {Flanders, 2 boats. + Between England and {Holland, 3 + {Ireland, 3 + Between Scotland and Ireland, 2 + At Deal for the Downs,[498] 2 + +In 1689, the King had ordered the boats between Dover and Calais to be +discontinued until further notice. This was done "on account of the late +discovery of treasonable designs against the Government" and the war +with France. His Majesty "preferred that all interchange of letters with +France should cease."[499] + +[497] Letters were sent to the colonies by private vessels. The method +used for sending letters to America was as follows. Masters of vessels +bound for America used to hang up a bag in the coffee-houses, in which +letters were placed. A fee of one penny was charged for a single letter +and 2_d._ for a double letter or parcel in excess of a single letter +(_Cal. T. P._, 1697-1702, p. 77). + +[498] Thos. DeLaune, _Present State of London_, 1681, p. 343. + +[499] _Cal. S. P. D._, 1689-90, p. 301. + +In 1744, the sailing packets of Great Britain and Ireland, excluding +those employed in the domestic service, were as follows: four boats +between Falmouth and Lisbon, four on the Harwich station, six between +Dover and Calais or Ostend, two between Gibraltar and Lisbon, and two on +the Minorca station. The use of sailing packets to Gibraltar and Minorca +was made necessary by the war. From twenty to twenty-six additional men +were added to each of the eighteen packets as a protection against the +enemy, and the total additional yearly charge was £7045.[500] This is +one of the items which made postal expenses run so high in time of war, +to say nothing of the packets captured by the enemy. The three boats +between Dover and Calais were sent to Harwich, Helvoetsluys, and Ostend +for the time being.[501] + +[500] _Cal. T. B. and P._, 1742-45, p. 518. + +[501] _Ibid._, 1742-45, p. 523. + +The practice of the Post Office until 1821 had been to contract for the +supply of packet boats, paying only a nominal sum for their hire and +allowing the contractors to have the receipts from passengers. In 1818 a +private company established steamboats between Holyhead and Dublin, and +the public preferred these to the sailing packets. The number of +passengers by the government packets fell off nearly one half. Something +had to be done at once, for, as the receipts from fares decreased, the +contractors clamoured for higher pay. The steamboat company offered to +carry the mails for £4 a trip and later for nothing, but the Post Office +determined to have steam packets of its own.[502] Two, built by Boulton +and Watt, under the inspection of the Navy Board, were placed on the +Holyhead station in 1821, and these, as well as those introduced later +on the other stations, were the property of the Crown.[503] + +[502] _Rep. Commrs._, 1830, xiv, p. 7. + +[503] _Parl. Papers_, 1822, vi, 417, pp. 117 f. + +The fares by the steam packets at Holyhead were fixed at the same rates +as those charged by the company's boats and these fares were somewhat +higher than those formerly charged by the sailing packets. For instance, +the fee for a cabin passenger had been one guinea, for a horse one +guinea, and for a coach three guineas. These were now raised to £1 +5_s._, £1 10_s._, and £3 5_s._ respectively. The new rates, which were +so fixed in order not to expose the company to undue competition, had +not been long enforced before the Select Committee on Irish +Communications reported against them, and the Post Office reduced them +to the old figures.[504] + +[504] Joyce, pp. 384-85. In a debate in the House on the Holyhead rates, +Parnell said that they limited the use of the steamboats to the rich +(_Parl. Deb._, 3d ser., x, coll. 684-85). + +In 1822 steam packets were placed on the Dover station, in 1824 they +were introduced at Milford, in 1826 at Liverpool and Portpatrick, and in +1827 at Weymouth.[505] At Liverpool also a private company had offered +to carry the mails but the offer was refused. This refusal, as well as +the refusal to accept the Holyhead Company's offer, was condemned in a +report of the Commissioners.[506] The new Liverpool packets ran from +Liverpool to Kingstown, the Holyhead packets from Holyhead to Kingstown +and Howth.[507] In 1828 the steam packets owned by the Crown numbered +eighteen. They were distributed as follows: four at Liverpool, two of +300, one of 301 and one of 327 tons, all of 140 horse power; six at +Holyhead, varying from 230 to 237 tons, all of 80 horse power; four at +Milford, varying from 189 to 237 tons, all of 80 horse power; two at +Portpatrick of 130 tons and 40 horse power; and two at Dover of 110 tons +and 50 horse power.[508] Two years later, three steam packets were added +to the Weymouth station.[509] In 1836, the Post Office had in use +twenty-six steam packets, one having been added at Liverpool, three at +Dover, and an extra one was kept for contingencies.[510] + +[505] _Acc. & P._, 1834, xlix, pp. 1, 156. + +[506] _Rep. Commrs._, 1830, pp. 22, 36, 40. + +[507] _Acc. & P._, 1826-27, xx, p. 6. + +[508] _Rep. Commrs._, 1830, xiv, app., no. 78. + +[509] _Ibid._, 1830, xiv, p. 72. + +[510] _Ibid._, 1836, xxviii, 6th rep., app., p. 28. + +With the exception of the Dover service for a few years, the steam +packets were always a financial loss to the Post Office. The total +disbursements for the Holyhead, Liverpool, Milford, and Portpatrick +stations from 1821 to 1829 were £681,648, the receipts for the same +period being only £250,999.[511] From 1832 to 1837 the disbursements for +all the steam packets were £396,669, receipts £180,167.[512] The Milford +boats were the least productive of any. From 1824 to 1836, the +expenditure for that station was £220,986, the receipts only £26,592. +The Commissioners had pointed out that not only was the practice of +building and owning its own boats a mistake on the part of the Post +Office, but they were very badly managed. For example, the stores for +the Holyhead station were obtained from the postmaster at Liverpool, who +invariably charged too much for them.[513] At Portpatrick the goods were +supplied and the accounts checked in a very irregular manner.[514] At +Dover the supplies were ordered by the mates, engineers, etc., as they +were needed and the bills paid by the Post Office. There was no control +over these officers, the accounts were not examined, and the bills were +not certified by the commanders. There was no proof that the goods were +even delivered. The agent, who forwarded the bills, was not a seaman nor +had he any knowledge of ships' stores.[515] At Weymouth, where there +were three steam packets for Jersey and Guernsey, conditions were +better. The agent was a practical seaman, the demands for supplies were +examined by him before being granted, and were signed by him, by the +commander, and by the engineers or whoever needed them. The +Commissioners also protested against sending the Weymouth boats so far +for repairs as Holyhead, which was the regular repair station of the +Post Office. Apart from the steam packets stationed at Holyhead, +Liverpool, Milford, Portpatrick, Weymouth, and Dover, all the other +packets employed by the Post Office were hired permanently or +temporarily.[516] + +[511] _Acc. & P._, 1834, xlix, p. 1; _Rep. Commrs._, 1831-32, xvii, pp. +358-60. + +[512] _Acc. & P._, xlvi, 281. + +[513] _Rep. Commrs._, 1836, xxviii, pp. 14-16. + +[514] _Ibid._, 1836, xxviii, 6th rep., p. 18. + +[515] _Ibid._, 1836, xxviii, 6th rep., p. 6. + +[516] _Ibid._, 1836, xxviii, 6th rep., p. 8. + +The Post Office was at no time entirely dependent upon its regular +sailing packets for the carriage of the mails. The merchant marine of +England had been increasing with her growing commerce, and provision was +made in the acts of 1657 and 1660 for the carriages of letters by +private vessels. By the latter of these acts the conveyance of letters +to foreign countries had been restricted to English ships under a +penalty of £100 for every offence. It was decided in 1671, on the +occasion of the wreck of one of the regular Irish packets, that it would +be better to use a Dutch-built ship on account of its being much more +seaworthy in the choppy swell of the Irish sea. Accordingly an +order-in-council was issued, allowing a vessel built in Holland to be +used, and providing for its naturalization.[517] By the act of 1660, +letters arriving in private vessels were to be given to the postmaster +at the port of arrival so that they might be forwarded to London to be +despatched to their destination after being charged with the postage +due. Masters of vessels were offered no inducement to deliver the +letters to the postmaster nor was any liability incurred by neglecting +to do so. The post farmers, however, agreed to pay a penny for every +letter delivered by a captain on his arrival. This was the origin of +ship letter money.[518] + +[517] _Cal. S. P. D._, 1671, p. 203. In 1793, owing to a scarcity of +English vessels and as a war measure, permission was given to send +English letters to Spain and Portugal by means of Spanish ships (33 Geo. +III, c. 60). + +[518] Joyce, p. 73. + +No attempt had ever been made to collect postage on letters conveyed by +private ships except for the distance which such letters might be +carried by the regular posts within the kingdom.[519] In 1799 an act was +passed under the following title: "An Act for the more sure conveyance +of ship letters and for granting to His Majesty certain rates of postage +thereon." The Postmasters-General were given authority by this act to +forward letters and packages by other vessels than the sailing packets. +On letters brought in by such vessels, 4_d._ was to be charged for a +single letter and so in proportion. This was to be in addition to the +inland postage and 2_d._ was to be paid to the master for every letter +handed over by him to the Post Office. The net revenue so arising was to +be paid into the Exchequer. No postage was charged on letters carried +out of the kingdom by private vessels[520] until 1832, when permission +was given to charge packet rates. It was forbidden to send letters by +these ships except through the Post Office unless such letters concerned +only the goods on board.[521] In 1835 that part of the act of 1711 +forbidding letters to be sent out of the kingdom except in British ships +was repealed.[522] + +[519] It is true that by the act of 1711, a penny was to be charged for +every ship letter; but this was to go to the master of the ship. + +[520] 39 Geo. III, c. 76. + +[521] 2 Wm. IV, c. 15. + +[522] 5 and 6 Wm. IV, c. 25. + +The sailing packets were ordinarily allowed to carry passengers and +freight, for which fixed rates were charged. In case of trouble with +any foreign power, the masters were generally forbidden to allow their +packets to be used as passenger boats.[523] During King William's war, +the Harwich-Helvoetsluys packets carried recruits free to the scene of +activities.[524] They had also been guilty of bringing dutiable goods +into the country and paying no duty on them. This made the customs +officials indignant, especially as the Post Office authorities would not +allow them to search the packets on their arrival. By an act passed in +1662, no ship, vessel, or boat ordinarily employed for the carriage of +letters was allowed to import or export any goods, unless permission had +been given by the customs officials, under a penalty of £100 to be paid +by the master of the offending packet boat.[525] It had been agreed +between Dummer and the Post Office that he should carry no more than +five tons of merchandise outward bound nor more than ten tons when +homeward bound. The Commissioners of the Customs in 1708 advised the +Lord High Treasurer that if he gave licences to the packet boats to +carry goods[526] it would be necessary to comply with the law and +subject the boats to searchers, rules, and penalties as the merchantmen +were. They proposed that the agreement made with Dummer be applied to +all the packets. They pointed out that if this were done, all friction +between the customs and Post Office might be avoided.[527] In 1732, the +difficulty assumed a new form over the question as to the carriage of +dutiable goods by mail. Diamonds had recently been discovered in Brazil +and they were exported to England via Spain. It had also become +customary to send fine laces by post. We, who have become used to +intolerant customs' regulations, can hardly appreciate the indignation +aroused by the desire of the customs' authorities to search the mails. +It was the rule at that time for the Controller of the Foreign Office to +lay a tax of 1 per cent upon packages which he thought had lace or +diamonds in them. The customs officials seized twenty-one parcels of +diamonds in a mail bag, coming from Lisbon in the packet _Hanover_. The +Postmasters-General were very indignant and wrote to the Treasury that +they "would not have it left to a customs' house officer to break open +the King's mail, which has never been done before."[528] Evidently the +customs officials had exceeded their authority and the matter was +compromised by the appointment of a sub-controller of the Foreign Post +Office to act under the authority of the Customs Commissioners and +receive the duties on diamonds and other jewels and precious stones +imported in the packet boats.[529] In a report of the +Postmasters-General somewhat earlier, we are informed of a payment of +£1087 made by them to the Receiver-General of the Customs. This amount +covered four fifths of the gross duty on diamonds and laces, which had +come by the sailing packets during four years, one fifth having been +deducted for postage.[530] + +[523] _Cal. S. P. D._, 1650, p. 540. + +[524] _Ibid._, 1691-92, pp. 29, 137. + +[525] 13 and 14 Chas. II, c. 11. + +[526] Goods were not supposed to be carried unless such a licence had +been obtained. Some Jews, coming from Calais on the packet boat, had +brought a few spectacles with them, on the sale of which they said that +their support depended. The spectacles were confiscated (_Cal. T. B. and +P._, 1739-41, p. 61). + +[527] _Cal. T. P._, 1708-14, p. 74. + +[528] _Cal. T. B. & P._, 1731-34, p. 223. + +[529] _Ibid._, 1731-34, p. 242. + +[530] _Ibid._, 1731-34, p. 234. + +By a section of the act of 1784, letters or packages from abroad +suspected of containing dutiable articles were to be taken by the +postmaster to a Justice of the Peace. He was to take an oath that he +suspected that dutiable goods were contained in the letter or packet. In +the presence of the justice he was then to cut a slit two inches long in +the parcel to permit examination of the contents. If his suspicions +seemed to be confirmed he might slit the cover entirely open and if +anything dutiable were found it must be destroyed. The letter was then +forwarded to the Commissioner of the Customs in order that proceedings +might be taken against those implicated. If nothing was found, the +letter was to be sent to the person to whom it was addressed, under the +magistrate's cover, with no extra charge for postage.[531] + +[531] 24 Geo. III, session 2, c. 37. + +In one respect, the packet stations in England were conducted on +divergent principles. The supplies for the Harwich packets were advanced +directly by the Government through the Postmaster-General. When the War +of the Austrian Succession broke out, a treasury warrant was issued for +the supply of military stores and eight additional men for each of the +Harwich boats.[532] At Falmouth, the agent supplied all necessaries. +Neither plan was entirely free from objection. When the agent acted as +victualler he naturally tried to make as much as possible out of his +contract, and there were frequent complaints from the men on the +Falmouth boats concerning the quality and quantity of the food. At +Harwich, the drawbacks of the other method, under which the Post Office +did its own victualling, were quite as marked. No bill for provisions +represented what they had actually cost. A percentage was habitually +added to the actual cost and this percentage went into the pockets of +those by whom the goods had been ordered.[533] + +[532] _Cal. T. B. & P._, 1742-45, p. 55. + +[533] Joyce, pp. 95 f. + +The postal abuses which came to light in 1787 were more flagrant in +connection with the packet service than in any other department of the +Post Office. The Secretary himself was not only a large owner in the +boats, but as agent he received 2-1/2 per cent of the gross total +expenditure. From 1770 to 1787, this had amounted to £1,038,133, from +which he had received over £25,000. Besides this, his salary amounted to +£1000 a year and there was an annuity of £100 attached to his office. He +had become too old to perform his duties, but instead of being +superannuated another person was appointed to assist him.[534] + +[534] _Fin. Rep._, 1797, no. 7, p. 5. + +The Sailors' Pension Fund was grossly mismanaged. Each sailor's monthly +contribution had been raised from 10_d._ to 2_s._ and then 3_s._ After +twenty years' service, the man who had kept up his payments was entitled +to receive £4 or £5 a year. The names of dead people were retained on +the list of pensioners, fictitious names were added, and there seems no +doubt that the agent retained the money ostensibly paid out in their +names.[535] The agent at Falmouth had a salary of £230 a year and £160 +in perquisites, £100 of which were paid to the former agent's widow. The +late agent had received £430 a year in perquisites in addition to the +regular £390 less £40 for a clerk and an assistant postmaster, making +£780 in all, certainly a comfortable salary for a packet agent at that +time. The £430 was made up by an involuntary contribution of five +guineas from each of the captains of the twenty-two packet boats and the +wages of one man from each boat. The latter sum was obtained by +dismissing the men, whose wages still continued to be paid--to the +agent. Smuggling had become by no means uncommon among the Falmouth +boats, the carriage of the mails being considered of secondary +importance. They often arrived when least expected, or they might not +arrive for days at a time, although the wind and weather were +favourable.[536] + +[535] _Jo. H. C._, 1787, p. 116. + +[536] _Jo. H. C._, 1787, pp. 815-16. + +Fares for passengers were not always collected, but a moderate payment +to the captains would ensure a passage as they were allowed to carry +their friends free and the payment readily secured the privilege +desired. The agents also profited by the sale of passes.[537] There were +more boats on the Falmouth station than necessary, and, although they +ranged in size from 150 to 300 tons, the same number of men were +employed on each. The Secretary of the Post Office, from whose report +these facts about the packets are derived, proposed that three or four +of the boats should be taken off, thus effecting a saving of £6000 or +£8000. In case it should be considered expedient to employ regular +packet boats to Quebec and Halifax, N. S., they might be placed on those +stations. No deductions were made for the hire of boats when they were +unemployed, either when being repaired or when under seizure for +smuggling.[538] + +[537] _Ibid._, 1787, pp. 815-16. Anthony Todd, Secretary of the Post +Office, writing to Charles Cox in Harwich said that "several persons +going from Helvoetsluys to Harwich, who are well able to pay full fare, +have given money for half, free and poor passes, and larger sums have +been taken for passes than are allowed by the Postmaster-General" (_Jo. +H. C._, 1787, p. 805). + +[538] _Ibid._, 1787, p. 205. + +The result of these exposures was a series of reforms started in 1793. +By 1797 the Post Office was able to report that orders had been issued +forbidding any official to own a sailing packet or have a share in any +of them. Orders were given to pay the sailors regularly throughout the +whole year. The 2-1/2 per cent on all expenditure, formerly paid to the +Secretary, was abolished. Finally all salaries were henceforth to be in +lieu of every emolument.[539] + +[539] _Fin. Rep._, 1797, no. 7, pp. 52-65. + +In 1793, the expenses for packet boats amounted to £45,666 a year. This +was reduced in the following year to £36,940, but from 1795 expenses +began to increase, owing to losses during the war and the necessity for +placing the boats on a war footing.[540] In time of peace, a Falmouth +packet of 179 tons carried twenty-one men, including officers, at a +total expenditure for men, interest, insurance, and wear and tear, of +£1681.[541] In time of war, she carried twenty-eight men, all of whom +were paid higher wages, and other expenses were also higher, bringing +the total expenses for each packet to £2112 a year.[542] For a packet of +seventy tons the expenses during peace and war were respectively £536 +and £862.[543] It is not surprising then that the cost for all the +packet boats had risen in 1796 to £77,599. The Falmouth boats were +responsible for £60,444 of this, the rest being divided amongst the +Dover, Harwich, Donaghadee, Milford, Weymouth, and Holyhead packets and +the West India schooners.[544] The salaries paid to the agents in 1796 +amounted to £3412. They were stationed at Lisbon, Falmouth, Yarmouth +(instead of Harwich and Dover), Weymouth, Jamaica, Halifax, N. S., and +Quebec. In Lisbon and the colonial towns, the agents acted also as +postmasters.[545] + +[540] _Ibid._, no. 7, p. 131. + +[541] _Fin. Rep._, no. 7, p. 119. + +[542] _Ibid._, no. 7, p. 118. + +[543] _Ibid._, no. 7, pp. 122-23. + +[544] _Ibid._, no. 7, p. 117. + +[545] _Ibid._, no. 7, p. 116. + +In 1827, all the packets sailing out of Falmouth were transferred to the +Admiralty, in spite of Freeling's protest. The question had been +discussed again and again during the war with France but why it was +decided upon at this particular time is not clear. At the time of +transfer, thirty packets were employed at Falmouth, carrying mails to +and from Lisbon, Brazil, Buenos Ayres, the Mediterranean, America, the +Leeward Isles, Jamaica, Colombia, and Mexico. In 1828, the number of +packets at Falmouth had increased to thirty-eight brigs of war and +sailing vessels and in 1833 to forty-one.[546] + +[546] _Rep. Commrs._, 1830, xiv, app., no. 78; _Acc. & P._, 1834, xlix, +p. 3; Joyce, pp. 398-99. + +The Admiralty had exceedingly bad luck with the Falmouth boats for the +first seven years. During that time seven of them were lost; four were +wrecked, one was supposed to have been burned, one was smashed to pieces +by icebergs, and one was captured by pirates off Rio Janeiro.[547] + +[547] _Acc. & P._, 1834, xlix, p. 49. Three of the boats wrecked were on +their way to or from Halifax, N. S. + +In 1837, the charge of all the packets and the powers and authorities +then existing in the Postmaster-General under any contract for the +conveyance of mails were transferred to the Admiralty by act of +Parliament.[548] The Post Office was still to retain the discretionary +power of regulating the time of departure of the packets and of +receiving the reports of the agents when the mail was delayed.[549] In +the same year, but by a later act, the Postmaster-General was authorized +to contract for the conveyance of letters by private ships between any +places whatever, but such ships must be British. The rates were to be +the same as the packet rates, but the owners, charterers, and consignees +of vessels inward bound were allowed to receive letters free to the +weight of six ounces, or twenty ounces in the case of vessels coming +from Ceylon, the East Indies, and the Cape of Good Hope.[550] For every +letter retained by the captain or any other person there was a penalty +of £10. The captain was also liable to a penalty for refusing to take +the letter bags, even when no contract had been signed.[551] + +[548] 7 Wm. IV and I Vict., c. 3. + +[549] _Acc. & P._, 1837-38, xlv, pp. 1, 2. + +[550] 7 Wm. IV and I Vict., c. 34. + +[551] 7 Wm. IV and I Vict., c. 36. + +The control of the packets by the Admiralty after 1837 failed to produce +the results anticipated. The power of authorizing contracts for the +conveyance of the mails by water was actually vested in the Lords of the +Treasury upon consultation with the Postmaster-General, the Colonial +Secretary, and the Lords of the Admiralty with reference to the postal, +colonial, or nautical questions involved, but as a matter of fact these +officials did not always work in harmony. The mails continued to be +carried by private vessels or war vessels not under contract, by packets +belonging to the Crown, and by vessels under contract. Before the use of +steam vessels the Government was able as a rule to make contracts for a +short period and at comparatively little cost. Between England and the +neighbouring countries (Ireland, France, and Belgium), government steam +packets were employed. For the longer voyages it was considered +advisable to induce commercial companies to build steam vessels by +offering large subsidies for long periods. In 1853, a Parliamentary +Committee reported in condemnation of the further use of +government-owned packets on account of their expense and also of the +payments to the owners of contract vessels in excess of the actual cost +of mail carriage. They pointed out, however, that exceptions might very +well be made when for political or social reasons it seemed necessary to +carry mails to places where commercial vessels did not go, or went very +irregularly, or where high speed was desirable.[552] This report, in so +far as it condemned the use of government-owned packets and the +excessive subsidies paid to contractors, repeated the findings of an +earlier committee published in 1849, which had in addition advised that +the rule should be observed of calling for tenders in the most public +way possible.[553] In 1852, the only service performed by the government +packets was that between Dover, Calais, and Ostend. On the French +service the night mails between Dover and Calais were conveyed by +British packets and the day mails by French. Between Dover and Ostend +there was a daily service, thrice a week by British, four times by +Belgian packets. Of the six boats employed by the Admiralty, four were +kept fully manned and two were spare steamers. The receipts did not +equal the gross expenses.[554] Again in 1860, the year in which the +control of the packets was transferred to the Post Office, we find a +third Parliamentary committee repeating the recommendations of its +predecessors so far as the subsidy question was concerned. Nothing was +said about the government steamers, for in the meantime the principle of +packet ownership had been abandoned.[555] + +[552] _Rep. Com._, 1860, xiv; _Acc. & P._, 1852-53, xcv, 1660, pp. 1-7. + +[553] _Rep. Com._, 1849, xii, p. iii. + +[554] _Acc. & P._, 1852-53, xcv, 1660, p. 37. + +[555] _Rep. Com._, 1860, xiv, p. 17; 23 Vict., c. 46; _Parl. Deb._, 3d +ser., clxi, col. 830; cxciv, col. 1281; cxcvii, col. 1818. + +A general review of the packet services existing at the middle of the +nineteenth century affords a very good example of the relative +importance of these different systems of communication and of the +principles on which the payment of subsidies was based. The inland +packet service of the United Kingdom included, among others, the lines +between Holyhead and Kingstown, Liverpool and the Isle of Man, Aberdeen +and Lerwick, Southampton and the Channel Isles. This formed a necessary +part of the inland postal service, and no attempt was made to meet +expenses by levying a sea-transit postage. In the case of the Isle of +Man the postage collected covered the cost of the packets and of the +land establishment of the Post Office in the island. The expenses of the +Shetland packets by themselves exceeded the postage collected, and the +Orkney postal expenses were also greater than the revenue. + +The second class consisted of the packets plying between England and the +colonies or between the colonies themselves, and included the lines to +India, Australia, the Cape, the West Indies, and British North America. +This class was and is by far the most important. Three-fourths of the +whole annual subsidies paid by the Government for the packet service +were paid to three great companies, the Peninsular and Oriental, the +Royal Mail, and the Cunard Company. The first of these connected England +with India and the Orient, the second with the West Indian colonies, and +the third with the North American Provinces. The great cost involved in +subsidizing these companies was excused on the ground of absolute +necessity for a regular and rapid mail service between the mother +country and her colonies. Of the lines furnishing communications with +foreign countries, several were connected with and subsidiary to the +colonial service, as the continuation of the Cunard line to the United +States. The service to China was the most remunerative part of the +system undertaken by the Peninsular and Oriental boats, and the same may +be said of the foreign service of the Royal Mail Company. From a +commercial point of view the Continental packets were perhaps the most +important of all.[556] + +[556] _Acc. & P._, 1852-53, xcv, 1660, pp. 37-43. + +The first contract with an individual steamship company was made in 1840 +with the famous Cunard Company providing for the conveyance of mails +between Great Britain, the United States, and Canada. In accordance with +the recommendations of various committees, attempts were made later to +place the Atlantic packet service upon a firmer financial basis so far +as the loss to the Post Office was concerned. In 1868, the contract with +the Cunard Company, which had been renewed at various times under +somewhat different conditions, came to an end. The Conservative +Government which was just going out arranged for two services a week +with the Cunard Company for £70,000, and one a week with the Inman +Company for £35,000. There was considerable opposition to the agreement +among the Liberal majority of the new Parliament, but it could not of +course be repudiated. This contract came to an end in 1876, and a +circular was addressed to the various steamship companies informing them +that the government would hereafter send the American mails by the most +efficient ships, payment to be made at the rate of 2_s._ 4_d._ a pound +for letters and 2_d._ a pound for other mail matter, those being the +rates fixed by the Postal Union Treaty and adopted by the American +Government. The Inman and White Star Companies refused at first to have +anything to do with the new system of payment, but eventually they fell +into line. The system was in operation for a year at a cost of £28,000 +in place of the old charge of £105,000. The Cunard, Inman, and White +Star Companies then demanded double the previous rates on the ground +that they were conducting the service at a loss, and an agreement with +the Government was concluded for the payment of 4_s._ a pound for +letters and 4_d._ for newspapers, etc. At the same time the old +monopolistic conditions were virtually reëstablished, for rival +steamship lines were excluded from the agreement.[557] + +[557] _Parl. Deb._, 3d ser., ccxxxviii, coll., 1633-36. + +In 1886, the agreement with the Cunard, Inman, and White Star Lines came +to an end. The Cunard and White Star Companies then made an offer +precluding the use of the fast boats of other lines, but this was +declined. Eventually an agreement was reached at a reduced cost, which +gave the Post Office the right to send letters so directed by any other +ships than those of the White Star or Cunard Companies. The amounts to +be paid were measured by the actual weight of mail matter carried.[558] +The payments to the Peninsular and Oriental Company were based at first +entirely upon mileage covered, and reductions were made if the packets +fell below a minimum speed agreed upon. This method was later changed to +a payment based upon the amount of mail carried, and the subsidy was +substantially reduced.[559] + +[558] 3_s._ a lb. for letters; 1_s._ 8_d._ when carried by other lines +(_Rep. Com._, 1860, xiv, p. 5; 1868-69, vi, pp. iii-v; _Rep. P. G._, +1887, pp. 4-5; _Acc. & P._, 1887, xlix, 34, pp. 3-4; _Parl. Deb._, 4th +ser., cxxii, coll. 385-401). + +[559] _Acc. & P._, 1852-53, xcv, 1660, p. 59; 1887, xlix, 34, p. 7; +_Rep. P. G._, 1907, pp. 5-6. + +A general review of the packet service in 1907 shows us that most of +the contracts for the home packets are terminable on six months' notice, +a few only on twelve months' notice. The Holyhead and Kingstown service +is exceptional, not being terminable until 1917, or on twelve months' +notice after 31st March, 1916. This is by far the most important of any +of the home systems and costs £100,000, to be reduced to £80,000 in +1917. The contract for the conveyance of mails between Dover and Calais +is terminable on twelve months' notice and cost £25,000 for the postal +year 1906-07. The payments for the use of the other boats between the +United Kingdom and Europe are comparatively small, amounting in 1906-07 +to £3780 only, and all these contracts are terminable on six months' +notice. The contracts for the conveyance of the mails to the two +Americas are as a rule terminable on six or twelve months' notice, but +an exception has been made in the case of the Cunard Company with whom +and under peculiar circumstances a twenty years' agreement was made in +1902. In 1906-07 the cost of the conveyance of the mails between the +United Kingdom and North and South America was £198,488. The African +contracts are all terminable on three, six, or twelve months' notice, +and amounted in 1906-07 to £32,988. The carriage of the mails to India, +Australasia, and China for the year ending 31st March, 1907, cost +£402,162, but this has since been diminished by a reduction in the +subsidies to the Peninsular and Oriental Company and the Canadian +Pacific Railway Company.[560] + +[560] _Rep. P. G._, 1907, pp. 5-6, 52-53. + +The total expenditure for packet boats increased enormously after 1840, +and this increase in cost kept down the net revenue of the Post Office +for many years after the introduction of penny postage. In 1830, the +packet expenses amounted only to £108,305, in 1846, to £723,604, and in +1860, to £869,952. They reached the maximum point of £1,056,798 in 1869, +and from that time until 1890, when they were £665,375, there has been +on the whole a gradual diminution. During the year ending 31st March, +1892, they reached the sum of £701,081, for the postal year 1900-01 they +were £764,804, and during the year 1905-06 they had diminished to +£687,109.[561] + +[561] _Rep. Commrs._, 1830, xiv, app., p. 376; 1847, lxii, pp. 5-6; +_Rep. P. G._, 1868, p. 28; 1875, p. 39; 1901, app., p. 82; 1907, p. 95. + + + + +CHAPTER VIII + +RATES AND FINANCE + + +After de Quester had been appointed Foreign Postmaster-General, he +published, in 1626, an incomplete set of rates from and to various +places on the continent. His charges for "packets," and by packets he +meant letters or parcels carried by a special messenger, were as +follows:-- + + To the Hague £7. + To Brussels or Paris £10. + To Vienna £60. + +The ordinary rates were:-- + + To or from any of the above places 30_s._ + To or from any part of Germany 6_s._ + From Venice for a single letter 9_d._[562] + From Venice for any letter over a single letter 2_s._ 8_d._ + From Leghorn and Florence for a single letter 1_s._ + From Leghorn and Florence over a single letter 3_s._an ounce.[563] + +This system of rates, although crude, marks a distinct era in postal +progress. It forms the foundation of the plan which was perfected a few +years later by Witherings. De Quester also published a statement of the +days of departure of the regular posts with foreign letters.[564] In the +trial between Stanhope and de Quester over the question of who should be +Foreign Postmaster-General, it came out in the evidence that Stanhope +had been accustomed to receive 8_d._ for every letter to Hamburg, +Amsterdam, and Antwerp.[565] This charge was rather in the nature of a +perquisite than a legal rate and serves partly to explain why Stanhope +was so anxious to retain the monopoly of the foreign post. + +[562] The rate from Venice had been _16d._ By a single letter is meant +one piece of paper. + +[563] _Cal. S. P. D._, 1625-26, p. 523. + +[564] _Ibid._, 1628-29, p. 538. + +[565] _Rep. Com._, 1844, xiv, app., p. 48 (25). + +Witherings' rates for domestic postage, as fixed by Royal Proclamation +in 1635, were as follows for a single letter:-- + + _d._ + Under 80 miles 2 + Between 80 and 140 miles 4 + Over 140 miles 6 + On the Borders and in Scotland 8 + In Ireland 9 + +If there were more than one sheet of paper, postage must be paid +according to the above rate for every separate sheet or enclosure. For +instance, a letter or packet composed of two sheets was called a double +letter and paid 4_d._ for any distance under 80 miles. A letter of three +sheets was called a triple letter and paid 6_d._ if conveyed under 80 +miles, and so in proportion.[566] In 1638, the rules concerning the +imposition of rates were changed slightly. The rates themselves remained +the same for single and double letters. Letters above double letters +were to be charged according to weight as follows:-- + + Under 80 miles 6_d._ an ounce. + From 80 to 140 miles 9_d._ + Above 140 miles 12_d._ + For Ireland 6_d._ if over two ounces.[567] + +This expedient must have been adopted from the difficulty in discovering +the number of enclosures when there were more than two. It is impossible +to say how long these rates continued, probably not later than +Witherings' régime. During Prideaux' management the maximum postage on a +single letter was 6_d._, reduced later to 3_d._[568] + +[566] _Rep. Com._, 1844, xiv, app., p. 57 (36). + +[567] _Rep. Com._, 1844, xiv, app., p. 58 (37). + +[568] Joyce, p. 29. + +The Council of State gave orders in 1652 for the imposition of the +following rates for a single letter:-- + + _d._ + Within 100 miles from London 2 + To remoter parts of England and Wales 3 + To Scotland 4 + To Ireland 6[569] + +Whether these rates were actually collected is questionable. The +postage which the farmers of the Posts were allowed to collect in the +following year was fixed by the Council of State for single letters as +follows:-- + + _d._ + Under 80 miles from London 2 + Above 80 miles from London 3 + To Scotland 4 + To Ireland 6 + +These rates are in effect lower than those of Witherings, for he had +inserted a 3_d._ rate for letters delivered between 80 and 140 miles +from London, had charged 4_d._ for all letters going farther than 140 +miles, and had charged 8_d._ and 9_d._ for letters to Scotland and +Ireland respectively. They were a little higher than those of 1652, for +by them 2_d._ had carried a letter 100 miles.[570] + +[569] _Cal. S. P. D._, 1651-52, p. 507. + +[570] _Cal. S. P. D._, 1652-53, p. 449. + +In 1657, the first act of Parliament was passed, fixing rates for +letters and establishing the system for England, Ireland, and Scotland. +The domestic rates were:-- + + _For a_ _Double_ _Per_ + _single letter_ _letter_ _ounce_ + + {Within 80 miles from London 2_d._. 4_d._ 8_d._ + In England {Above 80 miles from London 3 6 12 + To or from Scotland 4 8 18 + To or from Ireland 6 12 24 + In Ireland {Within 40 miles from Dublin 2 4 8 + {Above 40 miles from Dublin 4 8 12 + +The foreign rates were:-- + + _For a_ _Double_ _Per_ + _single letter_ _letter_ _ounce_ + To Leghorn, Genoa, Florence, Lyons, + Marseilles, Aleppo, Constantinople 12_d._ 24_d._ 45_d._ + To St. Malo, Morlaix, Nieuhaven 6 12 18 + To Bordeaux, Rochelle, Nantes, + Bayonne, Cadiz, Madrid 9 18 24 + To Hamburg, Frankfort, and Cologne 8 16 24 + To Dantzic, Leipsic, Lubeck, + Stockholm, Copenhagen, Elsinore, + Konigsburg 12 24 48[571] + +[571] Scobell, _Collect._, pt. ii, pp. 511-13. Inland letters containing +more than two enclosures but weighing less than an ounce were charged +according to the number of enclosures. + +These rates are considerably lower than those of Witherings and are +essentially the same as those of 1653, except that the postage is fixed +for letters to and from the continent. No provision is made for letters +to and from any other part of the world but Europe. Since the government +had not established any postal communication with Asia, Africa, or the +Americas, it would have been unfair to demand postage on letters +conveyed by merchant vessels to and from those places.[572] + +[572] Scobell, _Collect._, pt. ii, pp. 511-13. + +The act of 1660 is generally referred to as bringing the Post Office +under Parliamentary control and as the basis of the modern system. This +is probably due to the fact that the act of 1657 was passed by a +Commonwealth Parliament and signed by Cromwell. Whether its authors +lacked the power to give it validity, they did not lack the brains to +pass an excellent act, and although the Royalists saw fit, after the +Restoration, to dub it the pretended act of 1657, they could not improve +it and had the sense to leave it largely untouched. The first act had +imposed rates from or to any place to or from London as a centre. It had +been taken for granted that all letters passed to, from, or through the +capital, and to all intents and purposes this was so. It was possible, +however, for letters, technically called bye-letters, to stop short of +London, and it was to provide for these that postage was to be reckoned +from any place where a letter might be posted. + +Scotland was no longer a part of England after the Restoration, so that +by the act of 1660 rates were given to and from Berwick and for single +letters were a penny less than they had been to Scotland under the +earlier act. From Berwick the rate, within a radius of forty miles, was +2_d._ for a single letter, and over forty miles, 4_d._ As far as foreign +postage was concerned, letters to the northern coast towns of Italy paid +3_d._ less than the old rate for a single letter. Other rates remained +the same. Alternative routes were sometimes offered. For instance, +letters might be sent directly to northern Italy or they might go via +Lyons, but in the latter case they cost 3_d._ more. Again, there were +many more continental towns to which letters might be sent and from +which they might be received. Letters for Germany via Hamburg had to be +postpaid as far as that city. The same was true of letters to southern +France via Paris and of letters to northern Italy via Lyons. The highest +rate paid for a single letter was 1_s._ to northern Italy, Turkey, and +central and northern Germany. Merchants' accounts not exceeding one +sheet of paper, bills of exchange, invoices and bills of lading, were to +pay nothing over the charge of the letter in which they might be +enclosed. The same rule was to hold for the covers of letters sent to +Turkey via Marseilles. All inland letters were to be paid for at the +place where they were delivered unless the sender wished to pay in +advance.[573] + +[573] 12 Chas. II, c. 35. + +When the Scotch was separated from the English Post Office in 1695, +rates were imposed by the Parliament of Scotland as follows: + + _For a single letter_ + To Berwick 2_s._[574] + Within 50 miles from Edinburgh 2 + From 50 to 100 miles from Edinburgh 3 + Above 100 miles from Edinburgh 4 + +Packages of papers were to pass as triple letters.[575] In 1701, when +the Scotch Post was let out to farm, the English Postmasters-General +advised that the farmers should be obliged to pay at Berwick the postage +on English and foreign letters for Scotland, and an order in accordance +with this advice was signed by the King. It was the custom to change the +farmers every three years, which may have produced a larger revenue but +was certainly not calculated to increase the efficiency of the office. +The English Postmasters-General had great difficulty in collecting at +Berwick the postage due them, and it is doubtful whether a large part +was ever paid. The frequent changes in the farmers must have been an +excellent means of allowing them to escape their debts to the +English.[576] + +[574] One shilling Scotch was equal to one penny English. + +[575] Wm. III, 1st parl., 5th session (Scotland), c. 31. + +[576] _Cal. T. P._, 1697-1702, 48; 1702-1707, 101. + +It has been customary to point to the postage rates of 1660 as lower +than any before the nineteenth century. This is true in a general way, +but one limitation to the statement is generally overlooked. Before 1696 +all posts ran to or from London, and it was not until well on in the +eighteenth century that the system of cross posts was introduced. +Bristol and Exeter are less than eighty miles apart, but a letter from +Bristol to Exeter went to London first and from there to Exeter, +travelling about 300 miles to reach a town eighty miles distant. Now by +the act of 1660, the rate for distances above 80 miles was 3_d._ Thus +the letter paid 3_d._ from Bristol to London and 3_d._ more from London +to Exeter, 6_d._ in all. If there had been a direct post from Bristol to +Exeter, and there was not until 1698, the postage would have been 2_d._ +only. The possibility of such an anomaly as this must be kept in mind in +considering the low rates of the seventeenth century. + +In James the Second's reign, a Post Office had been established in +Jamaica, and rates of postage had been settled not only in the island +itself but between it and the mother country. This was a new departure, +since at that time there were no packet boats to the West Indies. The +rate between England and Jamaica was 6_d._ for a single letter, 1_s._ +for a double letter, and 2_s._ an ounce. As the Crown was not at the +expense of maintaining means of transport, this was a pure tax.[577] In +1704, the postage on a single letter from the West Indies was raised to +7-1/2_d._, for a double letter 15_d._, but Dummer's packets were then in +operation.[578] + +[577] Joyce, p. 78. + +[578] _Cal. T. P._, 1702-07, 46. + + + _Single letter_ _Double letter_ _Per ounce_ + Rates to the islands were 9_d._ 18_d._ 32_d._ + In 1705 increased to 15 30 72 + Rates from the islands in 1705 18 36 72 + --Stow's _London_, bk. v, p.400. + +In 1698, a system of posts had been established in the American colonies +between the largest towns on the Atlantic coast. All that is known about +the rates is that the charge for the conveyance of a letter between +Boston and New York was 1_s._ and the post went weekly between those +places.[579] Hamilton, the deputy manager, proposed that letters from +England should be sent in sealed bags entrusted to the masters of ships. +The bags were to be handed over to the postmaster of the port where the +ship first touched and the captain was to receive a penny for each +letter. He advised that the following rates should be adopted:-- + +Not exceeding 80 miles from New York 6_d._ +From 80 to 150 miles from New York 9 +To and from Boston and New York, 300 miles 12 + Jersey, 370 miles 18 + Philadelphia, 390 miles 20 + Annapolis, 550 miles 36 + Jamestown, 680 miles 42 + New York and Annapolis, 250 miles 24 + Jamestown, 380 miles +(with many dangerous places to cross by ferry) 30 + +These rates were said to be too high and were not adopted, "it being +found that cheap postage greatly encourages letter writing, as is shown +by the reduction in England from 6_d._ to 3_d._"[580] + +[579] Joyce, p. 111. + +[580] Joyce, p. 113; _Cal. T. P._, 1697-1702, 77. + +The preamble to the act of 1711 offered as an explanation of an increase +in rates the necessity for money for the war and the prevention of +private competition in carrying letters. It is plain that higher rates +will, up to a certain point, increase proceeds, though not +proportionately, but how increased rates can decrease competition is +more difficult to explain. Witherings had found that the cheaper he made +postage, the less fear was there from interlopers. It is possible that +the framers of the bill had intended to use part of the increase in +revenue for the support of searchers, but no such provision is contained +in the act itself.[581] On the ground that a large revenue was +necessary, no fault can be found with the increase. It is probably true +that in course of time lower rates would have increased the product more +than higher, but war and its demands wait for no man. The people who +could write and who needed to write were in a small minority then, and +their number could not for a long time be influenced by lower rates. +What was needed at once was money and the only way to raise it by means +of the Post Office was the one adopted. + +[581] Joyce, p. 128. + +The rates for single letters within England and between England and +Edinburgh were increased by a penny for a single letter; for double +letters and parcels in proportion. To Dublin the charge remained the +same, and the rates within Ireland were not changed. In the act of 1660, +the postage on letters delivered in Scotland had been reckoned from +Berwick. Edinburgh was now made the centre and the rates were as +follows:-- + + _For a single letter_ _Per ounce_ +From Edinburgh within Scotland _d._ _d._ + Not exceeding 50 miles 2 8 + Above 50 and not exceeding 80 miles 3 12 + Above 80 miles 4 16[582] + +[582] Double letters were charged twice as much as single letters. + +The rates within Scotland were lower than those within England and +Ireland. Scotland had a 2_d._ rate for distances not exceeding fifty +miles. England had no rate under 3_d._, except for the Penny Post. +Ireland, too, had a 2_d._ rate for distances not exceeding forty miles, +but for distances from forty to eighty miles and over, the rate for +Irish letters was 4_d._, while in England the rate was only 3_d._ for +distances not exceeding eighty miles. The distances which letters +travelled within Scotland were shorter than in England and Ireland. As a +rule the different rates for the three countries varied with their +wealth and consequent ability to pay, the least being required from +poverty-stricken Scotland. The new rates as compared with the old were +for a single letter:[583]-- + + _For England_ + 1660 1711 + Not exceeding 80 miles 2_d._ 3_d._ + Above 80 miles 3 4 + Between London and Edinburgh 5 6 + Between London and Dublin 6 6 + + _Within Ireland_ + + Not exceeding 40 miles from Dublin 2_d._ 2_d._ + Above 40 miles from Dublin 4 4 + + _Within Scotland (Scotch Act, 1695)_ + + Not exceeding 50 miles from Edinburgh 2_d._ 2_d._ + From 50 to 80 miles from Edinburgh 3 + From 50 to 100 miles from Edinburgh 3 + Above 80 miles from Edinburgh 4 + Above 100 miles from Edinburgh 4 + +[583] When the rates for single letters only are given it is understood +that double and triple letters paid two and three times as much +respectively. Letters weighing an ounce or more paid a single letter +rate for each quarter of an ounce. + +The act of 1660 imposed rates on letters in Scotland from Berwick as a +centre. By that act rates had been fixed for distances not exceeding 40 +miles and for distances over forty miles from Berwick, being 2_d._ and +4_d._ for single letters for the respective distances, so that by the +act of 1711, the Scotch rates were lower than they had been in 1660 and +slightly higher than those of 1695. When forty miles was made the lowest +distance according to which rates were levied, it was thought and +intended that 2_d._, the rate for that distance, would pay for a single +letter from Berwick to Edinburgh. As a matter of fact, the distance +between the two places was fifty miles, so that the Scotch Act had +estimated it better. + +In the rates as given above, an exception is made in the case of letters +directed on board ship or brought by it. For such letters one penny was +charged in addition to the rates already given. This extra penny was +charged because the postmaster in the place where the ship first touched +was required to pay the master of the vessel one penny for every letter +received. Foreign letters collected or delivered at any place between +London and the port of departure or arrival of the ship for which they +were destined or by which they had come, must pay the same rate as if +they had left or arrived in London. + +As far as foreign post rates were concerned they were all from 1_d._ to +3_d._ higher than they had been by the act of 1660. The lowest foreign +rate for a single letter, 10_d._, was paid between London and France, +and London and the Spanish Netherlands. To Germany and Northwestern +Europe, through the Spanish Netherlands, the rate was 12_d._, to Italy +or Sicily the same way 12_d._, postpaid to Antwerp, or 15_d._ via Lyons. +The same rates held for letters passing through the United Provinces. To +Spain or Portugal via the Spanish Netherlands or the United Provinces or +France, postpaid to Bayonne, the rate was 18_d._ for a single letter, +and the same price held when letters were conveyed directly by sailing +packets. + +By the same act of 1711 rates were for the first time established +between England and her colonies and within the colonies themselves. The +postage for a single letter from London to any of the West India Islands +was 18_d._, to New York 12_d._, and the same from those places to +London. Between the West Indies and New York the rate was 4_d._ In the +colonies on the mainland, the chief letter offices were at New York, +Perth Amboy, New London, Philadelphia, Bridlington, Newport, Portsmouth, +Boston, Annapolis, Salem, Ipswich, Piscataway, Williamstown, and +Charleston. The postage was 4_d._ to and from any of these places to a +distance not exceeding sixty miles and 6_d._ for any distance between +sixty and 100 miles. Between New York, Perth Amboy, and Bridlington, the +rate was 6_d._; between New York, New London, and Philadelphia 9_d._; +between New York, Newport, Portsmouth, and Boston 12_d._; between New +York, Salem, Ipswich, Piscataway, and Williamstown 15_d._; between New +York and Charleston 18_d._; the Post Office was to pay nothing for +crossing ferries. + +There had always been trouble in collecting the rates on bye and cross +post letters. These letters did not pass through London and hence the +officials at the General Post Office had no check on the money due. By a +clause in the act, the postmasters were ordered under a penalty to +account for the receipts from all these letters. The postage on letters +which did not pass to, through, or from London was fixed according to +the inland charges, varying with the distances travelled. Finally, the +postage on all inland letters was to be paid on delivery unless the +sender wished to pay in advance, or in the case of the Penny Post, or +unless such letters should be directed on board any ship or vessel or to +any person in the army. + +From the receipts from postage, £700 a week was to be paid into the +Exchequer for the purpose of carrying on the war. The Accountant-General +was to keep account of all money raised, the receipts themselves going +directly to the Receiver-General and being paid into the Exchequer by +him. One third of the surplus over and above the weekly payment of £700 +and £111,461 (the amount of the gross receipts of the duties arising by +virtue of the act of 1660) were to be disposed of by Parliament. In +making this provision, Joyce thinks that the Chancellor of the Exchequer +confused gross and net product.[584] As a matter of fact there was no +such surplus as was anticipated by the Chancellor, but it does not +follow that he made the mistake of which he was accused by Cornwallis +and Craggs, an accusation in which Joyce evidently concurs. He erred +simply in supposing that expenses would remain the same.[585] + +[584] Joyce, p. 145. + +[585] 9 Anne, c. 11. + +The act of 1711 in prescribing the rate of postage for the carriage of +"every single letter or piece of paper" enacted that a "double letter +should pay twice that rate." The merchants contended that a double +letter was composed of two sheets of paper if they weighed less than an +ounce and their reasoning was logical. They argued from this that a +letter enclosing a pattern or patterns, if it weighed less than one +ounce, should pay only as a single letter. Actions were brought against +the postmasters by the merchants for charging more than they considered +was warranted and the merchants won every case. The lawyers also +threatened legal proceedings for the charge of writs when enclosed in +letters. The Postmasters-General hastened to Parliament for relief. The +merchants heard of this, and petitions were sent to the House of Commons +from "clothiers, dealers in cloth, silk, and other manufactured goods," +asking that when samples were enclosed in a single letter the rate +should remain the same provided that such letter and sample did not +exceed half an ounce in weight.[586] Their efforts were fruitless. The +following provisions were inserted in a tobacco bill then before +Parliament and passed in 1753: "that every writ etc. enclosed in a +letter was to pay as a distinct letter and that a letter with one or +more patterns enclosed and not exceeding one ounce in weight was to pay +as a double letter."[587] As a matter of fact all the rates collected +after 1743 by virtue of the act of 1711 were illegal, for the act itself +had died a natural death in the former year by that clause which +provided for the revival of the rates of 1660 at the end of thirty-two +years. + +[586] _Jo. H. C._, 1745-50, pp. 751-2. + +[587] 26 Geo. III, c. 13, secs. 7, 8. + +A postal act was passed in 1765, slightly changing the home, colonial, +and foreign rates. The cession of territory in North America had made +necessary a more comprehensive scheme of postage rates there. The +conclusion of the Seven Years' War had made it possible to offer a +slight reduction in postage. In Great Britain the following rates were +published for short distances for a single letter:-- + +For Great Britain--not exceeding one post stage 1_d._ +For England alone--over one and not exceeding two stages 2_d._ + +The rates for all other distances remained unchanged. A stage, as a +rule, varied from ten to twelve miles in length, so that every post town +in England could now boast a modified form of penny postage, with the +exception in most cases of delivery facilities. + +The changes in colonial rates were generally in the shape of +substituting general for special rules. The rate from any part of the +British American Dominions to any other part was fixed at 4_d._ for a +single letter when conveyed by sea. The act of 1711 had given the +postage from and to specially named places. This method had become +inapplicable with the growth in population among the old and the +increase in new possessions. The rate for a single letter from any chief +post office in the British American Dominions to a distance not +exceeding sixty miles, or for any distance not exceeding sixty miles +from any post office from which letters did not pass through a chief +post office, was placed at 4_d._, from sixty to 100 miles 6_d._, from +100 to 200 miles 8_d._, for each additional hundred miles 2_d._ The +effect of this act was to continue the same rates for inland postage in +British America, while rates were provided for distances over 100 miles. +The postage between England and the American colonies remained at 12_d._ +for a single letter. In the case of the West Indies, there was a +decrease of 6_d._ A clause of the act provided that the postage on +letters sent out of England might be demanded in advance.[588] + +[588] 5 Geo. III, c. 25. The principle of payment in advance was not +popular. A man in England writing to his brother in Virginia in 1764 +says, "Very often of late I have been so foolish, I should say +unfortunate previously to pay for the letters coming to you.... To my +great concern I have been since assured that such letters never go +forward but are immediately thrown aside and neglected. I believe I +wrote to you three or four times this last winter by this method and am +since informed of this their fate. You may form a great guess of the +truth of it by or by not receiving them" (_Notes and Queries_, 4th ser., +xii, p. 125). + +Postage rates were increased steadily from 1784 for twenty-eight years, +culminating in the year 1812 with the highest rates that England has +ever seen. Every available means to raise the revenue necessary to +maintain her supremacy was resorted to, and the Post Office was +compelled to bear its share of the burden. In 1784 another penny was +added to the rates for single letters and additional rates for double +and triple letters in proportion.[589] Three years later an act was +passed, fixing the postage for the conveyance of a single letter by +sailing packet from Milford Haven to Waterford at 6_d._ over and above +all other rates. It was provided by the same act that the rates between +London and Ireland via Milford should not exceed the rates via +Holyhead.[590] + +[589] 24 Geo. III, sess. 2, c. 37. + +[590] 27 Geo. III, c. 9. In 1767 a rate of 2_d._ for a single letter was +established between Whitehaven (Cumberland) and the Port of Douglas +(Isle of Man) (7 Geo. III, c. 50). + +In 1796 the rates for letters conveyed within England and Wales, +Berwick, to and from Portugal, and to and from the British possessions +in America, as established by the acts of 1711, 1765, and 1784, were +repealed and the following substituted for a single letter:-- + + _Within England, Wales and Berwick._ + _d._ + Not exceeding 15 miles from place where letter is posted 3 + From 15 to 30 miles, etc. 4 + 30 60 5 + 60 100 6 + 100 150 7 + Over 150 miles, etc. 8 + + _Within Scotland._ + + In addition to rates in force 1 + +The old system of reckoning by stages was thus abolished, probably on +account of the uncertainty as to the length of any particular stage and +the variations and changes which were being constantly made. This change +was made for England and Wales only, and the old system of reckoning by +stages was still retained in Scotland. Letters from and to the colonies +had formerly paid no postage over the regular shilling rate for a single +letter and proportionately for other letters. Now they were to pay the +full inland rate in addition. A single letter from the West Indies would +now pay the shilling packet rate plus the rate from Falmouth to London, +1_s._ 8_d._ in all. The same rates and the same rule held for letters to +and from Portugal. A single letter from Lisbon had formerly paid 1_s._ +6_d._ on delivery in London. It would now pay 1_s._ 8_d._ + +This act was not to affect letters to and from non-commissioned +officers, privates, and seamen while in active service, who were allowed +to send and receive letters for one penny each, payable in advance. The +revenue arising from the new and the unrepealed rates was to be paid to +the Receiver-General and be by him carried to the Consolidated Fund. The +increase from the additional postage was estimated at £40,000 a year and +was to be used to pay the interest on loans contracted the preceding +year.[591] + +[591] 37 Geo. III, c. 18. + +When sailing packets were established between Weymouth and the islands +of Jersey and Guernsey, the packet rates and the rates between the +islands themselves were fixed at 2_d._ for a single letter. Permission +was also given to establish postal routes in the islands, and to charge +the same postage for the conveyance of letters as in England. The +surplus was to go to the General Office and all postal laws then in +force in England were to be deemed applicable to the two islands.[592] + +[592] 33 Geo. III, c. 60. + +By the same act which gave the Postmasters-General authority to forward +letters by vessels other than the regular sailing packets, rates were +fixed for the carriage of such letters. For every single letter brought +into the kingdom by these vessels, 4_d._ was to be charged. The +Postmasters-General might order such rates to be payable in advance or +on delivery. This was in addition to the inland postage, and for every +letter handed over to the Post Office, the captain was to receive 2_d._ +The revenue arising from this act was payable to the Exchequer.[593] + +[593] 39 Geo. III, c. 76. + +In 1801 the Post Office was called upon again to make a further +contribution to the Exchequer to help meet the interest on new loans. +The following were the new rates for a single letter:-- + + _Within Great Britain by the General Post_ + _d._ + Not exceeding 15 measured miles 3 + Above 15 but not exceeding 30 measured miles 4 + 30 50 5 + 50 80 6 + 80 120 7 + 120 170 8 + 170 230 9 + 230 300 10 + _d._ + For every 100 miles above 300 miles an additional rate of 1 + Where the distance above 300 miles did not amount to 100 miles + an additional rate of 1 + Where the distance above 300 miles exceeded 100 miles and for + every excess of distance over 100 miles an additional rate of 1 + +By the act of 1796 a uniform rate of 8_d._ for a single letter had been +paid for distances over 150 miles. The new act not only imposed extra +rates for all distances over 150 miles but it decreased the distances +above 30 miles for which the old postage would have paid. For instance, +a 6_d._ rate had carried a single letter 100 miles, a 7_d._ rate 150 +miles. They now carried only 80 and 120 miles respectively. + +On letters to and from places abroad, "not being within His Majesty's +Dominions," an additional rate of 4_d._ for a single letter was +imposed.[594] In London, where a penny had been charged for the +conveyance of letters by the Penny Post, 2_d._ was now charged. An +additional rate of 2_d._ for a single letter was imposed upon letters +passing between Great Britain and Ireland via Holyhead or Milford. The +Postmasters-General were given authority to convey letters to and from +places which were not post towns for such sums for extra service as +might be agreed upon. Merchants' accounts and bills of exchange which, +when sent out of the kingdom or conveyed into it, had not formerly been +charged postage over the letters in which they were enclosed, were now +to be rated as letters.[595] + +[594] When the temporary peace of Amiens was concluded in 1802, the +rates for single letters from London to France were reduced to 10d., +from London to the Batavian Republic to 12_d._ (42 Geo. II, c. 101). + +[595] 41 Geo. III, c. 7. + +In 1803, the following rates were imposed within Ireland for a single +letter:-- + + _d. (Irish)_[596] + Not exceeding 15 Irish miles 2 + From 15 to 30 Irish miles 3 + 30 50 4 + 50 80 5 + Exceeding 80 Irish miles 6 + +The postage on letters arriving in Ireland for the distance travelled +outside Ireland was ordered to be collected by the Irish +Postmaster-General and forwarded to London. An additional penny was +imposed upon Dublin Penny Post letters crossing the circular road +around Dublin.[597] + +[596] The Irish penny was of the same value as the English penny. + +[597] 43 Geo. III, c. 28. + +In 1805, for the third time within ten years, the Exchequer fell back +upon the Post Office for an increase of revenue estimated at +£230,000.[598] There were added to the rates as already +prescribed--1_d._ for a single letter, 2_d._ for a double letter, 3_d._ +for a triple letter, and 4_d._ for a letter weighing as much as one +ounce, for all letters conveyed by the Post in Great Britain or between +Great Britain and Ireland. The postage on a single letter from London to +Brighton was thus raised from 6_d._ to 7_d._, from London to Liverpool +from 9_d._ to 10_d._, and from London to Edinburgh from 12_d._ to 13_d._ +Twopenny Post letters paid 3_d._ if sent beyond the General Post +Delivery limits, while newspapers paid 1_d._ On every letter passing +between Great Britain and a foreign country 2_d._ more was to be paid. +An additional penny was charged for every single letter between Great +Britain and the British American Dominions via Portugal, and between +Great Britain, the Isle of Man and Jersey and Guernsey.[599] In the same +year the Irish rates were also increased by the imposition of an +additional penny upon each single letter with corresponding changes in +the postage on double and triple letters. The Dublin Penny Post was left +untouched, its boundaries being defined as contained within a circle of +four miles radius, with the General Post Office building as the centre. +Every letter from any ship within Irish waters was charged a penny in +addition to the increased rates.[600] + +[598] _Parl. Deb._, 1st ser., iii, col. 550. + +[599] 45 Geo. III, c. 11. + +[600] 45 Geo. III, c. 21. + +Still the demand was for more money to help replenish an exhausted +treasury. An additional penny was added for the conveyance of a single +letter more than twenty miles beyond the place where the letter was +posted within Great Britain and between Great Britain and Ireland. For +the conveyance of a single letter between Great Britain and any of the +colonies or to any foreign country an additional 2_d._ was required. +These additional rates did not apply to letters to and from Jersey or +Guernsey, or to and from any non-commissioned officer, soldier, or +sailor.[601] Samples weighing no more than one ounce were to pay 2_d._ +if enclosed in a letter, if not enclosed, 1_d._ As this is the highest +point to which postage rates in England have ever attained, it may be +interesting to give the rates resulting from this act in tabular form as +far as the postage for inland single letters was concerned.[602] + + _d._ + Not exceeding 15 miles 4 + Above 15 but not exceeding 20 miles 5 + 20 30 6 + 30 50 7 + 50 80 8 + 80 120 9 + 120 170 10 + 170 230 11 + 230 300 12 + 300 400 13 + 400 500 14 + 500 600 15 + 600 700 16 + 700 miles 17 + +[601] Single letters written by or to non-commissioned officers, +privates, and seamen must be on their own business, and if sent by them +must bear their own signatures and the signature of their superior +officer with the name of their regiment or ship (46 Geo. III, c. 92). + +[602] 52 Geo. III, c. 88. + +In 1806, the rate for a single letter between Falmouth and Gibraltar was +fixed at 21_d._, between Falmouth and Malta 25_d._, between Gibraltar +and Malta 6_d._ (46 Geo. III, c. 73). + +In 1808, the rate for a single letter between Falmouth and Madeira was +fixed at 18_d._, between Falmouth and Brazil 29_d._ (48 Geo. III, c. +116). + +In 1810, an additional penny (Irish) was added to the rates then in +force in Ireland, with the exception of the penny rate on the Dublin +Penny Post Letters.[603] Three years later the rates and distances for +Ireland were changed again. As compared with the old rates they were as +follows, both tables being in Irish miles and Irish currency and for +single letters only:-- + + +[603] 50 Geo. III, c. 74. + + 1810 _d._ 1813 _d._ + Not exceeding 15 miles 4 Not exceeding 10 miles 2 + From 15 to 30 miles 5 From 10 to 20 miles 3 + 30 50 6 20 30 4 + 50 80 7 30 40 5 + Exceeding 80 miles 8 40 50 6 + 50 60 7 + 60 80 8 + 80 100 9 + Over 100 miles 10 + +The rates of 1813 were lower for distances not exceeding forty miles, +higher for distances over eighty miles. On the whole there was little +change, but the later rates were probably more easily borne as they were +lower for short distances.[604] The next year the rates and distances +for Ireland were changed again, the result being an increase both for +short and for long distances. The results are shown in the following +table in Irish miles and Irish currency and for a single letter:[605]-- + + Not exceeding 7 miles 2_d._ + Over 7 and not exceeding 15 miles 3 + 15 25 4 + 25 35 5 + 35 45 6 + 45 55 7 + 55 65 8 + 65 95 9 + 95 125 10 + 125 150 11 + 150 200 12 + 200 250 13 + 250 300 14 + For every 100 miles over 300 miles 1 + +[604] 53 Geo. III, c. 58. + +[605] 54 Geo. III, c. 119. + +In 1813 an additional half-penny was demanded on all Scotch letters +"because the mail coaches now paid toll in that country." So at least a +correspondent to the _Times_ says (London _Times_, 1813, June 21, p. 3). + +In 1814 the postage on a single letter brought into the kingdom by +ships other than the regular packets was raised from 4_d._ to 6_d._ in +addition to the regular inland rates. The rate for letters sent out of +the kingdom by these vessels was fixed at one third the regular packet +rates.[606] An exception was made in the case of letters carried by war +vessels or by vessels of the East India Company to and from the Cape of +Good Hope, Mauritius, and that part of the East Indies embraced in the +charter of the company. The rates by these vessels were to be the same +as the regular packet rates, 42_d._ for a single letter between those +places and England, and 21_d._ for a single letter between the places +themselves. Newspapers were charged 3_d._ an ounce between England, the +Cape, Mauritius, and the East Indies. The rate for a single letter +conveyed in private vessels not employed by the Post Office to carry +mails was 14_d._ from England to the Cape or the East Indies, and 8_d._ +from the Cape or the East Indies to England. The company was allowed to +collect rates on letters within its own territory in India, but the +Postmasters-General of England might at any time establish post offices +in any such territory. The company was to be paid for the use of its +ships in conveying letters.[607] + +[606] 54 Geo. III, c. 169. Enacted for Ireland the following year (55 +Geo. III, c. 103). + +[607] 55 Geo. III, c. 153. This act, although repealed for Great Britain +by 59 Geo. III, c. 111, still remained in force in Ireland (5 and 6 Wm. +IV, c. 25). + +By the Ship Letter Act of 1814, no letters were to be sent by private +ships except such as had been brought to the Post Office to be charged. +The directors of the East India Company had protested against this +section of the act. It is true that they were allowed to send and +receive letters by the ships of their own company, but in India there +was a small army of officials in their service whose letters had +hitherto gone free. For that matter it had been the custom for the +company to carry for nothing all letters and papers which were placed in +the letter box at the East India House.[608] Petitions were presented +against an attempt on the part of the Post Office to charge postage on +letters to and from India when conveyed by private vessels.[609] The +company refused to allow its vessels to be used as packet boats or even +to carry letters at all. It was in consequence of all this opposition +that the act of 1815 was passed, giving more favourable treatment to +letters to and from India. By this act no person sending a letter to +India was compelled to have it charged at the Post Office and the +masters were compelled to carry letters if the Postmasters-General +ordered them. The company now withdrew all opposition and even refused +to accept any payment for the use of their vessels in conveying +letters.[610] Notwithstanding the favourable exception made in the case +of letters to and from the East Indies, there was still discontent over +the high rates charged by the Post Office for the conveyance of letters +by the regular packet boats and by private vessels, when carrying +letters entrusted to the Post Office.[611] In 1819 the sea postage on +any letter or package not exceeding three ounces in weight from Ceylon, +Mauritius, the Cape, and the East Indies was placed at 4_d._ If it +exceeded three ounces in weight, it was charged 12_d._ an ounce. The sea +postage on letters and packages to Ceylon, etc., not exceeding three +ounces in weight, was placed at 2_d._ If the weight was more than three +ounces, the charge was 12_d._ an ounce. The postage on letters and +packages from England was payable in advance. Newspapers were charged a +penny an ounce.[612] + +[608] London _Times_, 1814, Oct. 8, p. 3; 1815, Jan. 19, p. 3. + +[609] _Parl. Deb._, 1st ser., xxx, col. 766; xxxi, col. 220. + +[610] Joyce, p. 363. + +[611] The _Calcutta Monthly_ complained that the new rates had rendered +correspondence less frequent. "The so-called packet boats are often two +or three months slower than private vessels" (London _Times_, 1818, Oct. +30, p. 3). + +[612] 59 Geo. III, c. 111; London _Times_, 1820, Jan. 24, p. 3. + +By an act passed in 1827 it was provided that henceforth all rates for +letters conveyed within Ireland should be collected in British currency. +The rates themselves and the distances remained the same as had been +provided by the act of 1814. The postage collected on letters between +the two kingdoms was henceforth to be retained in the country where it +was collected. The rates for letters passing between the two kingdoms +were assimilated with the rates prescribed for Great Britain by the act +of 1812. In addition to the land rates, 2d. was required for the sea +passage to and from Holyhead and Milford and to this 2_d._ more was +added for the use of the Conway and Menai Bridges.[613] Between +Portpatrick and Donaghadee the postage was 4_d._ for a single letter, +between Liverpool and any Irish port 8_d._, but no letter sent via +Liverpool paid a higher rate than if sent via Holyhead.[614] An +additional halfpenny was also demanded on every single letter passing +between Milford Haven and Waterford, to pay for improvements.[615] + +[613] 7 and 8 Geo. IV, c. 21. The postage between Liverpool and Dublin +for a single letter was 13_d._, made up as follows:-- + + Inland postage to Holyhead 9_d._ + For the Conway Bridge 1_d._ + " " Menai " 1_d._ + Sea postage 2_d._ + ----- + 13_d._ + +In 1820, the sea rate between Portpatrick and Donaghadee had been raised +by 2_d._ for a single letter, between Liverpool and the Port of Douglas +by 4_d._ (1 Geo. IV, c. 89; 3 Geo. IV, c. 105). + +[614] 7 and 8 Geo. IV, c. 21; 1 and 2 Geo. IV, c. 35, secs. 19-20; 6 +Geo. IV, c. 28. + +[615] 6 and 7 Wm. IV, c. 5. + +In 1836, England and France signed a postal treaty by which the rates on +letters between the United Kingdom and France or between any other +country and the United Kingdom through France were materially +reduced.[616] On such letters the method of reckoning postage differed +from the English rule and was as follows: One sheet of paper not +exceeding an ounce in weight and every letter not exceeding one quarter +of an ounce were single letters. Every letter with one enclosure only +and not exceeding an ounce in weight was a double letter. Every letter +containing more than one enclosure and not exceeding half an ounce was a +double letter. If it exceeded half an ounce but not an ounce in weight, +it was a triple letter. If it exceeded an ounce, it paid as four single +letters and for every quarter of an ounce above one ounce it paid an +additional single letter rate.[617] The sender of a letter from Great +Britain to France had the option of prepaying the whole postage, British +and foreign, or the British alone, or neither.[618] + +[616] _Acc. & P._, 1837, l. 106. Rates on foreign letters before, and +after the French treaty:-- + +_Between England and_ _Before_ _After_ + +France 14_d._ 10_d._ +Italy } +Turkey } 23 19 +Ionian Isles } +Spain 26 19 + by packet 26 26 +Portugal via France 26 19 + by packet 30 30 +Germany via France 20 14 +Switzerland 20 14 +Holland 16 16 +Belgium 16 16 +Russia } +Prussia } +Norway } 20 20 +Sweden } + +_Between England and_ _Before_ _After_ + +Denmark } +Germany } 20_d._ 20_d._ +Gibraltar 34 34 +Malta } +Ionian Isles } +Greece } 38 38 +Egypt } +Brazil 42 42 +Buenos Ayres 42 41 +Madeira 31 31 +Mexico } +Havana } 36 27 +Colombia } +San Domingo 26 27 +United States } +and foreign } 26 26 +West Indies } + +[617] This followed to a certain extent the French system of charging +postage, which depended more upon weight and less upon the number of +enclosures than the English method. + +[618] 7 Wm. IV and 1 Vict., c. 34. + +In 1837, an act of Parliament was passed, consolidating previous acts +for the regulation of postage rates within Great Britain and Ireland, +between Great Britain and Ireland, and between the United Kingdom and +the colonies and foreign countries. The rates within Great Britain +remained the same as those established by the act of 1812, including the +additional half penny on letters conveyed by mail coaches in Scotland. +In Ireland the rates existing since 1814 still held and between Great +Britain and Ireland the rates established by 7 and 8 Geo. IV, c. 21. + +The rates for letters between the United Kingdom and foreign countries +through France and those conveyed directly between the United Kingdom +and France remained the same as had been agreed upon by the Treaty of +1836. Some of the more important of the other rates were as follows:-- + +To Italy, Sicily, Venetian Lombardy, Malta, the Ionian Islands, Greece, +Turkey, the Levant, the Archipelago, Syria, and Egypt through Belgium, +Holland, or Germany, 20_d._ for a single letter. Between the United +Kingdom and Portugal, 19_d._ for a single letter. + + _Single letter_ +To or from Gibraltar 23_d._ +To or from Malta, the Ionian Islands, Greece, Syria, and Egypt 27_d._ +Between Gibraltar (not having been first conveyed there from +the United Kingdom) and Malta, the Ionian Islands, Greece, +Syria, or Egypt[619] 8_d._ +Between the United Kingdom and Madeira 20_d._ +Between the United Kingdom and the West Indies, Colombia, +and Mexico 25_d._ +Between the United Kingdom and Brazil 31_d._ +Between the United Kingdom and Buenos Ayres 29_d._ +Between the United Kingdom and San Domingo 15_d._ +Between the British West Indies and Colombia or Mexico 12_d._ + +[619] In 1838, it was enacted that the postage on a single letter (not +from the United Kingdom or going there) between any two Mediterranean +ports or from a Mediterranean port to the East Indies should be 6_d._ +via the Red Sea or Persian Gulf. The Gibraltar rate remained the same (1 +and 2 Vict., c. 97). + +Letters between the United Kingdom and Germany, Belgium, Holland, +Switzerland, Spain, Sweden, and Norway were charged in addition the same +postage as if they had been sent from or to London. Letters from and to +France paid no additional postage. All letters to and from +non-commissioned officers, privates and seamen while in actual service +were still carried for one penny each, payable in advance, but letters +sent by them from Ceylon, the East Indies, Mauritius, and the Cape were +charged an additional 2_d._ payable by the receiver.[620] + +[620] 7 Wm. IV and 1 Vict., c. 34. + +After the transference of the packet boats to the Admiralty in 1837, the +Postmaster-General was authorized to charge regular packet rates for the +conveyance of letters by such ships as he had contracted with for such +conveyance. He might also forward letters by any ships and collect the +following rates for each single letter:-- + + When the letter was posted in the place from which + the ship sailed except when sailing between Great + Britain and Ireland 8_d._ + If posted anywhere else in the United Kingdom 12_d._ + Between Great Britain and Ireland in addition to + inland rates 8_d._ + For a single letter coming into the United Kingdom + except from Ceylon, the East Indies, Mauritius, and + the Cape in addition to inland rates 8_d._ + For letters from Ceylon, the East Indies, Mauritius, + and the Cape in addition to inland rates-- + If not exceeding 3 ounces in weight 4_d._ + If exceeding 3 ounces in weight 12_d._ an oz. + For letters delivered to the Post Office to be sent + to Ceylon, the East Indies, Mauritius, and the Cape + in addition to all inland rates-- + If not exceeding 3 ounces in weight 2_d._ + If exceeding 3 ounces in weight 12_d._ an oz.[621] + +[621] 7 Wm. IV and I Vict., c. 34. + +The end of high postage rates was now at hand. In 1839, the Treasury was +empowered to change the rating according to the weight of the letter or +package,[622] and they proceeded to do so in the case of letters from +one country to another passing through the United Kingdom, between any +two colonies, between any South American ports, and between such ports +and Madeira and the Canaries.[623] Parliament followed up the good work +in 1840 by enacting that in future all letters, packages, etc. should be +charged by weight alone, according to the following scheme:-- + +On every letter or package, etc.-- +Not exceeding 1/2 ounce in weight, one rate of postage. +Exceeding 1/2 ounce but not exceeding 1 ounce, 2 rates of postage. + 1 " " " " 2 ounces, 4 " " " + 2 ounces " " " 3 " 6 " " " + 3 " " " " 4 " 8 " " " + +For every ounce above four ounces, two additional rates of postage, and +for every fraction of an ounce above four ounces as for one additional +ounce. No letter or package exceeding one pound in weight was to be sent +through the Post Office except petitions and addresses to the Queen, or +to either House of Parliament, or in such cases as the Treasury Lords +might order by warrant.[624] + + +[622] 2 and 3 Vict., c. 52. + +[623] _Acc. & P._, 1841, xxvi, 53, pp. 1-7. + +[624] Additional exceptions were made later in the case of 1. Reissuable +country bank notes delivered at the General Post Office in London. 2. +Deeds, legal proceedings and papers. 3. Letters to and from places +beyond the seas. 4. Letters to and from any government office or +department (or to and from any person having the franking privilege by +virtue of his office). _Acc. & P._ 1841, xxvi, 53, p. 4. + +On all letters not exceeding a half-ounce in weight transmitted by the +Post between places in the United Kingdom (not being letters sent to or +from places beyond the seas, or posted in any post town to be delivered +within that town) there was charged a uniform rate of one penny. For all +letters exceeding a half-ounce in weight, additional rates were charged +according to the foregoing scheme, each additional rate for letters +exceeding one ounce in weight being fixed at 2_d._[625] + +[625] Double rates were charged when the postage was paid on delivery. + +The rates for colonial letters were also adjusted according to weight as +follows: Between any place in the United Kingdom and any port in the +colonies and India (except when passing through France) for a letter not +exceeding half an ounce in weight, 1_s._ Between any of the colonies +through the United Kingdom, 2_s._ If such letters exceeded half an ounce +in weight, they were charged additional rates according to the table +already given, the rate for a letter not exceeding half an ounce being +taken as the basis. + +The rates for letters to and from foreign countries were much the same +as they had been before the passage of this act, except that instead of +the initial charge being made for a single letter, it was now reckoned +for a letter not exceeding half an ounce in weight. The rates for +letters to and from France were graded according to the distance they +were carried in England, the lowest rate for a letter not more than half +an ounce in weight being 3_d._ to Dover or the port of arrival, the +highest rate being 10_d._ to any place distant more than fifty miles +from Dover.[626] + +[626] 3 and 4 Vict., c. 96. + +The franking privilege may reasonably be considered in connection with +the history of postal rates, nor should its effect in reducing the +revenue of the Post Office be neglected. The Council of State gave +orders in 1652 that all public packets, letters of members of +Parliament, of the Council, of officers in the public service, and of +any persons acting in a public capacity should be carried free. This is +the first record that we have concerning the free carriage of members' +letters, a privilege which later gave so much trouble and was so much +abused.[627] The next year the Post Office farmers agreed to carry free +all letters to and from members of Parliament provided that letters +written by such members as were not known by their seals should be +endorsed, "These are for the service of the Commonwealth," and signed by +the members themselves or their clerks.[628] Nothing was said in the act +of 1660 about the conveyance of the letters of members of Parliament and +they were carried free only by act of grace. The House of Commons had +passed a clause of the bill providing for the free conveyance of the +letters of members of their own House. This had exasperated the Lords, +who, since they could not amend the clause so as to extend the privilege +to themselves, had dropped it.[629] In 1693, the attention of Cotton and +Frankland was called to the manner in which franking was being abused. +Men claimed the right to frank letters to whom the Postmasters-General +denied it, and members of Parliament were accused of bad faith in the +exercise of their privilege. The custom had arisen of enclosing private +letters in the packet of official letters. A warrant was issued in 1693 +to the effect that in future no letters were to go free except those on +the King's affairs, and the only persons to send or receive them free +were the two principal Secretaries of State, the Secretary for Scotland, +the Secretary in Holland, the Earl of Portland, and members of +Parliament, the latter only during the session, and for forty days +before and after, and for inland letters alone. Each member was to write +his name in a book with his seal so that no one might be able to +counterfeit his signature.[630] + +[627] _Cal. S. P. D._, 1651-52, p. 507. + +[628] _Cal. S. P. D._, 1652-53, p. 449. + +[629] _Parliamentary History of England_, iv (1660-88), col. 163. + +[630] _Cal. T. P._, 1557-1696, p. 281. + +We learn from Hicks' letters that it was customary for clerks in the +Post Office at London to send gazettes to their correspondents in the +country free of charge. These gazettes or news letters were supplied by +the Treasury and, as 2_d._ or 3_d._ apiece was paid for them by the +recipients, the privilege was greatly esteemed.[631] The Deputy +Postmaster-General wished to abolish the privilege, but Hicks himself, +who was one of the favoured officials, was quite indignant at the +suggestion.[632] The principle was bad, but as the receipts for gazettes +formed a necessary part of the clerks' salaries, Hicks cannot be blamed +for protesting against abolition without compensation. James II +expressed a desire that the practice should be discontinued, but when it +was shown to him that the salaries of the clerks must be raised if his +wishes were obeyed, his proposition was promptly withdrawn.[633] + +[631] _Cal. T. B. & P._, 1731-34, pp. 208, 210, 218, 268. + +[632] _Cal. S. P. D._, 1667, p. 248. + +[633] _Cal. S. P. D._, 1666-67, p.386. + +The abuses of the privilege of franking were very pronounced during the +eighteenth century. The system of patronage which the members of +Parliament then exercised made them reluctant to offend any of their +constituents, who might entrench upon their peculiar privileges. +Members' names were forged to letters and they made no complaint. +Letters from the country were sent to them to be re-addressed under +their own signatures. The Postmasters-General admonished them more than +once, but, as a rule, the members disclaimed all knowledge of abuses. +Men were so bold as to order letters to be sent under a member's name to +coffee-houses, where they presented themselves and demanded the letters +so addressed. In 1715, on receiving renewed complaints from the +Postmasters-General, it was ordered by the House that henceforth no +member should frank a letter unless the address were written entirely in +his own hand. This was expected to prevent members from franking letters +sent to them by friends. It was also ordered that no letter addressed to +a member should pass free unless such member was actually residing at +the place to which the letter was addressed. In the third place, no +member was to frank a newspaper unless it was entirely in print. This +was to prevent the franking of long written communications passing as +newspapers, for the members of Parliament in sending and receiving +letters free were restricted to such as did not exceed two ounces in +weight, but they were not so restricted in the case of newspapers.[634] +According to the Surveyor's report, the loss from the ministers' franks +in 1717 was £8270 and from the members' franks £17,470.[635] The loss +from franking was proportionately much greater in Ireland than in +England. In 1718 the Irish Parliament sat only three months, in 1719 +nine months, and in Ireland as in England, members of Parliament +received and sent their letters free only during the session and forty +days before and after it. The following is part of the report submitted +by the Postmasters-General to the Lords of the Treasury for these two +years:-- + + 1718 1719 + Gross Produce from Letters £14,592 £19,522 + Charge of Management and Members' Letters 11,526 18,768 + Net Produce from Letters[636] 3,066 754 + +Under the charges of management is included the charge for carrying +members' letters as reckoned proportionately to the charge for the +letters which paid, together with the actual charge for the pay letters. +The net produce during the three months' session was £3006, during the +nine months' session only £753. In 1734 the old orders about the maximum +weight of two ounces and the requirement for the whole superscription to +be in the member's own writing were repeated in a royal proclamation. In +addition it was ordered that any letters sent under cover to any member +of Parliament or high official of state, to be forwarded by him, should +be sent to the General Post Office to be taxed.[637] It could hardly be +expected that this order would be obeyed, for there was no method of +enforcing it. + +[634] _Jo. H. C._, 1714-18, p. 303. + +[635] _Cal. T. P._, 1714-19, p. 287. + +[636] _Cal. T. P._, 1720-28, p. 77. + +[637] _Jo. H. C._, 1732-37, p. 393. + +In 1735, the House of Commons instituted an enquiry into the whole +question of franking and summoned various Post Office officials before +them to give evidence. An estimate was laid before them of the amount +lost each year by carrying franked letters. This estimate was obtained +by weighing the franked letters at intervals during the session of +Parliament, and comparing their weight with the weight of the letters +which paid postage. As the total revenue from the latter was known, the +amount which was lost on the former was guessed. The House expressed +very little confidence in the estimated amounts, and certainly it was a +rough way of attaining the object aimed at, but perhaps they were +prejudiced from the strength of the case against them.[638] Expressed in +yearly averages, the amounts by which the revenue was reduced by +franking were:-- + + 1716-19 £17,460 + 1720-24 23,726 + 1725-29 32,364 + 1730-33 36,864 + +[638] _Ibid._, 1732-37. + +The system of ascertaining forged franks and of discovering enclosures +was as follows: a Supervisor of the Franks charged all letters, franked +by a member's name, coming from any place, when he knew that the member +was not there. Very often by holding them in front of a candle, he could +see enclosures inside directed to other people. If he was in doubt he +generally charged the letter, for if it should pay, all well and good, +and if he had made a mistake, the amount was refunded to the member. The +Supervisor had noticed that the number of franked letters had increased +with every session of Parliament, and some of the ex-members also +attempted to frank letters. The evidence of the Supervisor, especially +his description of the manner in which he attempted to discover +enclosures, was exceedingly distasteful to the House. The members +themselves were to blame for many of the abuses attendant upon the +system, and yet they contended that they were the unwilling victims of +others. A resolution was adopted that it was an infringement upon the +privileges of the knights, citizens, and burgesses chosen to represent +the people of Great Britain in Parliament, for any postmaster, his +deputies or agents to open or look into any letter addressed to or +signed by a member of Parliament, unless empowered so to do by a warrant +issued by one of the Secretaries of State. In addition no postmaster or +his deputies should delay or detain any letter directed to or by any +member unless there should be good reason to suppose that the frank was +a counterfeit.[639] + +[639] _Jo. H. C._, 1732-37, p. 476. + +The restrictions adopted to curtail the abuse of the franking privilege +had but little effect. A regular business sprang up for selling +counterfeit franks. The House of Lords ordered one person accused of +selling them to come before the bar of the House for examination, but he +failed to present himself.[640] Another confessed before the Upper House +that he had counterfeited one of the Lords' names on certain covers of +letters showed to him and had then sold them. He expressed sorrow for +the offence, which necessity had driven him to commit. He was sent to +Newgate.[641] The abuses of the franking system were so patent[642] +that Allen was told that he might withdraw from his contract to farm the +bye and cross post letters on three months' notice being given.[643] + +[640] _Jo. H. L._, 1736-41, p. 259. + +[641] _Ibid._, p. 529. + +[642] One man in five months counterfeited 14,400 franks of members of +Parliament. Counterfeits of names of 27 members were shown. A regular +trade in buying and selling them had sprung up (_Jo. H. C._, 1761-64, p. +998). Several Lords certified that their names had been counterfeited. +Lord Dacre's name had been counterfeited 504 times (_Jo. H. L._, +1760-64, p. 534). + +[643] _Cal. T. B. & P._, 1739-41, p. 450. + +The revenue from the Post Office was surrendered by the Crown at the +beginning of George the Third's reign in exchange for a Civil List from +the Aggregate Fund as it was then called.[644] While the Post Office +remained in the hands of the King, it was only by special grant on his +part that the members of Parliament had been allowed to send and receive +letters free. Accordingly in 1763, an act was passed for the purpose of +giving parliamentary sanction to the privilege. This act repeated the +principal points in the King's proclamation and in the Parliament's +previous resolutions on the subject. All letters or packets sent to or +by the King, the ministers and the higher Post Office officials were to +go free. The ministers might appoint others to frank their letters, +whose names must be forwarded to the Postmaster-General. Those sending +letters free must sign their names on the outside and themselves write +the address. No letters to or from any member of Parliament should go +free unless they were sent during the session or within forty days +before or after, and the whole superscription must be in the member's +own hand or directed to him at his usual place of residence or at the +House. All letters in excess of two ounces in weight must pay postage. +Printed votes, proceedings in Parliament, and newspapers should go free +when sent to a member or signed on the outside by him, provided they +were sent without covers or with covers open at the ends. The privileges +of franking votes, proceedings in Parliament, and newspapers, were +continued to the clerks in the Post Office and in the Secretaries of +State's offices. The Postmasters-General and their deputies were given +authority to search newspapers which had no covers or covers open at the +ends and to charge them if there were writing or enclosures in them. +Finally, any person who counterfeited a member's name on any letter or +package for the purpose of avoiding the payment of postage, was guilty +of felony and liable to transportation for seven years.[645] + +[644] Joyce, p. 189. + +[645] 4 Geo. III, c. 24. + +The year following the passing of this act, the House of Commons called +for returns relating to the franking system. Besides the members of +Parliament, the ministers, and the Post Office officials, to whom the +franking privilege had been granted by the King's warrant and by the +late act, almost all who were in any way connected with the Government +claimed the right to send or receive letters free, even to the Deputy +Serjeant-at-Arms. The amount which newspapers would have paid if there +had been no franking privilege was first given for the week ending March +13, 1764. + + _Members'_ _States'_ _Post Office Clerks'_ + £465 £310 £1055 + +These amounts were obtained by weighing the newspapers and, as this was +the manner in which they would have been rated, the results may be +considered as fairly correct. The idea being to estimate the loss from +members' and states' franks only, the franking by Post Office clerks +does not enter into the following calculation. It was judged from the +figures given above that the Post Office carried free every year enough +newspapers franked by members and state officials to produce £40,000 if +they had been taxed at the ordinary rates.[646] An attempt to arrive at +the same result in another way was also made. The sum total which would +have been paid on all members' and ministers' letters, newspapers, and +parcels arriving at or departing from London in 1763 was £140,000. Of +this amount £85,000 would have been paid on all mail leaving London, and +£55,000 on all mail arriving in London. The difference in favour of the +outgoing mail was judged to be due to the newspapers, all of which were +printed in London and sent to the country. This would give a loss of +£30,000 on newspapers, and £110,000 on letters.[647] + +[646] _Jo. H. C._, 1761-64, pp. 1000-1001. + +[647] _Ibid._, p. 999. + +Returns were also submitted, showing the gross amount of the inland +postage for Great Britain and Ireland, including the amount which the +franked letters and papers would have paid if they had all been charged, +the actual gross product and the difference between the two. This +difference would, of course, be the estimated charge on all the free +matter. These figures are given from 1715 to 1763. Roughly speaking, in +fifty years franked letters and papers increased 700 per cent while pay +letters increased only 50 per cent. In 1715 one fifth as many free +letters and newspapers as those which paid went through the mail. In +1763 there were eleven twelfths as many free letters and papers.[648] It +will be seen that the assumption is that the postage which this free +matter might have paid represented the loss suffered by the Post Office. +Now this is not so, because it did not cost the Post Office so much to +convey letters and papers as the ordinary rates would have paid them. In +the second place the Postal authorities considered the £140,000 as so +much actually lost, whereas if charges had been enforced on the free +matter, a much smaller amount would have been sent. This is entirely +apart from the rough and ready manner in which the figures were +obtained. Enough was shown, however, to prove that the franking system +was a burden to the country and an imposition upon the Post Office. + +[648] _Jo. H. C._, p. 999. + +In Ireland, Parliament met as a rule only during the even years or if it +met every year, the sessions in the odd years were very short. For the +five even years from 1753 to 1762, the expenses averaged for each year +£3306 over the receipts, while during the five odd years, the receipts +were greater than the expenditures by a yearly average of £2249. These +general results held good for every individual odd or even year for the +period for which returns were given.[649] + +[649] _Ibid._, 1761-64, p. 1001. + +Attempts continued to be made by members of the House of Commons to +diminish the abuses arising from franking. There had been some +misunderstanding as to whether they were entitled to have ship's letters +delivered free to them. Of course they were exempt from the inland +postage on such letters, but for every letter brought into the country +by vessels other than packets, the master was paid one penny and this +penny was collected from the person to whom the letter was delivered. +The members finally agreed to pay the extra penny.[650] + +[650] _Ibid._, 1780-82, p. 537. + +Acts were now introduced to enable the Commander-in-Chief, the +Adjutant-General, and the Controller of Accounts of the Royal forces to +receive and send letters free. Both bills passed.[651] It is some +consolation that the Lord Chancellor and Judges failed to obtain the +franking privilege although a bill was introduced in the Commons in +their behalf.[652] + +[651] 22 Geo. III, c. 70; 23 Geo. III, c. 69. + +[652] _Jo. H. C._, 1790-91, p. 468. + +It was enacted in 1784 that a member must write on his free letters not +only his name and address but also the name of the post town from which +they were to be sent and the day of the month and the year when they +were posted.[653] The object of this restriction could be easily evaded +by enclosing postdated letters to their constituents but, after the +passage of this resolution, a considerable decrease resulted in the +number of free letters to and from members.[654] When the Irish was +separated from the English Post Office, the privilege of franking +newspapers to Ireland was taken away and a rate of one penny a newspaper +was imposed, payable in advance. This meant a loss to the clerks in the +Secretaries' offices but this was made good to them by an addition of +£1000 a year to their salaries.[655] + +[653] _Ibid._, 1784-85, p. 383. The Lords also agreed to this resolution +(ibid., p.411; 24 Geo. III, sess. 2, c. 37). + +[654] For the years 1783 and 1784, the number of free letters arriving +in London, exclusive of the state's letters, averaged over 800,000 a +year and those sent from London averaged over 1,000,000. In 1785, they +had fallen to 514,000 and 713,000 respectively (_Parl. Papers_, 1812-13, +_Rep. Com._, ii, 222, p. 95). + +[655] 24 Geo. III, c. 6; _Jo. H. C._, 1795-96, p. 588. + +In 1795, the members of Parliament made another attempt to limit their +own as well as the free writing proclivities of others. The maximum +weight of a free letter to or from a member was lowered from two ounces +to one. No letter directed by a member should go free unless the member +so directing it should be within twenty miles of the place where it was +posted either on the day on which it was posted or the day before. No +member should send more than ten or receive more than fifteen free +letters a day. Votes and proceedings in Parliament when addressed to or +by members of Parliament were exempted from the provisions of this +Act.[656] + +[656] 35 Geo. III, c. 53. After 1786 the number of franked letters had +gradually increased until checked by this act. In 1795 the number of +franked letters delivered in London was 1,045,000, the number sent from +London 1,195,000. In 1796, the inward and outward free letters amounted +to 737,000 and 787,000 respectively. In 1797 the numbers were 696,000 +and 721,000. These restricting acts of 1784 and 1795 had a more +important effect than Joyce leads us to suppose (_Parl. Papers_, +1812-13, _Rep. Com._, ii, 222, p. 95). + +The restrictions upon the franking privilege enjoyed by members of +Parliament were re-enacted in 1802 with some additions. The number of +free letters which a member might receive and send in one day having +been limited to twenty-five, it was decided that these twenty-five so +excepted from the payment of postage should be those on which the +charges were the highest, provided that none of them exceeded an ounce +in weight. The high officials of state, the clerks of Parliament, +certain clerks of the Commons and Lords, the Treasurer and Paymaster of +the Navy, the Lord Chancellor, certain officials in Ireland, and two +persons appointed by the Postmaster-General of Ireland were allowed to +send letters free.[657] The members and clerks of both Houses were +allowed to send newspapers free provided that they were enclosed in +covers open at both ends. The same rule held for votes and proceedings +in Parliament.[658] The same franking privileges were extended to Irish +officials.[659] + +[657] Those officials in the General Post Office who had no franking +privilege were reimbursed the amount of postage paid by them on inland +single letters (_Rep. Commrs._, 1837, xxxiv, 8th rep., app., no. 2). + +[658] 42 Geo. III, c. 63. + +[659] 43 Geo. III, c. 28. + +From 1806 to 1819 there was a large extension of the franking privilege +to various officials. During that time sixteen statutes and parts of +statutes were enacted in behalf of various persons from the Lord High +Chancellor to the Controller of the Barrack's Department and the +Commissioners of the parliamentary grant for building churches. Sir +Robert Buxton, a member of Parliament, thought that it would be well for +his fellow members to give up their privilege in order to help the +finances of the country. Windham disagreed on the ground that it kept up +communications between a member and his constituents and encouraged +literary correspondence which would otherwise decline. Pitt justified +it, in that it enabled members to carry on the important business of +their constituents and did not result in much loss to the state.[660] + +[660] _Parl. Deb._, 1st ser., iii, col. 570. The following are a few of +the statutes enacted which extended franking: 46 Geo. III, c. 61; 50 +Geo. III, c. 65, sec. 19; c. 66; 51 Geo. III, c. 16, sec. 17; 52 Geo. +III, c. 132, sec. 16; c. 146, sec. 11; 53 Geo. III, c. 13; 54 Geo. III, +c. 169; 55 Geo. III, c. 1, sec. 10; c. 60, secs. 41-42; 56 Geo. III, c. +98, sec. 24. + +It had always been customary to charge letter rates for the conveyance +of newspapers to foreign countries and to the colonies. Members of +Parliament, however, had the privilege of franking newspapers within the +United Kingdom, the clerks of the Foreign Office franked them to foreign +countries, and the Secretary of the Post Office franked them to the +colonies. In 1825 it was enacted that members need no longer sign their +names to newspapers franked by them, or give notice of the names of the +places to which they intended to send them.[661] This virtually provided +for the free transmission of newspapers within the United Kingdom. At +the same time it was provided that the rate for newspapers, votes and +parliamentary proceedings should be 1-1/2_d._ each to the colonies, +payable in advance. Newspapers from the colonies were charged 3_d._ +each, payable on delivery. Such newspapers must be posted on the day of +publication, must contain no writing, and must be enclosed in covers +open at both ends.[662] Two years later the charge for votes and +parliamentary proceedings to and from the colonies was fixed at +1-1/2_d._ an ounce. Newspapers brought from the colonies by private +vessels were to be charged 3_d._ each, the same as the packet rate,[663] +but in 1835 colonial newspapers by private vessels were allowed to come +in for a penny each, and the same rate was charged for English +newspapers sent to the colonies by private vessels. By the same act the +postage on newspapers passing between the United Kingdom and any foreign +country which charged no inland rate for their conveyance was fixed at a +penny each. If an inland rate was charged, the postage was to be 2_d._ +for each newspaper plus the foreign rate.[664] + +[661] 6 Geo. IV, c. 68, sec. 10. + +[662] 6 Geo. IV, c. 68; London _Times_, 1825, June 11, p. 3; July 29, p. +2. + +[663] 7 and 8 Geo. IV, c. 21. + +[664] 5 and 6 Wm. IV, c. 25. Before the passage of this act newspapers +passed free by the packets and posts to and from Hamburg, Bremen, and +Cuxhaven (London _Times_, 1834, Oct. 30, p. 2). + +During the following year, all the regulations concerning the conveyance +of newspapers, votes, and proceedings in Parliament etc. were embodied +in one act. Within the United Kingdom all newspapers which had paid the +stamp duty were to go free except those which were sent through the +Twopenny Post and delivered by it, not having passed by the General +Post, and except those posted and delivered within the same town. In +both of these cases one penny was charged. To and from the colonies no +rate was demanded when newspapers were sent by the regular packets. If +sent by private vessels one penny was payable, which went to the master. +The rate to and from foreign countries was fixed at 2_d._ for each +paper, but if a foreign state agreed to charge no postage on English +newspapers, no postage should be charged on the newspapers of such +foreign state, when brought to England by the packet boats. If brought +by private vessels, a penny was payable for each paper, to go to the +master. All newspapers, in order to receive the advantage of these low +rates or to go free, had to be posted within seven days after +publication and to contain no writing except the name and address of the +person to whom they were to be sent. In addition the newspaper must have +no cover or one open at both ends.[665] + +[665] 6 and 7 Wm. IV, c. 25. + +The following additions and changes in the regulations for the carriage +of newspapers were made in 1837. One penny was to be paid for their +conveyance by private vessels between different parts of the United +Kingdom. Between the colonies and foreign countries through the United +Kingdom, newspapers should go free if conveyed by the packets and should +pay a penny each if conveyed by private vessels. Parliamentary +proceedings conveyed between the colonies and the United Kingdom, if +sent by packet boats and not exceeding one ounce in weight, were charged +1-1/2_d._ each. When in excess of one ounce they paid 1-1/2_d._ for each +additional ounce. Pamphlets, magazines and other periodical publications +for the colonies, if not exceeding six ounces in weight, paid 12_d._ +when carried by the packets. For every additional ounce, 3_d._ was +charged. Bankers' re-issuable notes were carried at one quarter the +regular postage.[666] Patterns, with no writing enclosed and not +exceeding one ounce in weight, paid a single letter rate.[667] Any +newspaper which had been posted in violation of any regulation for the +conveyance of newspapers was charged three times the regular letter +postage.[668] + +[666] In Great Britain re-issuable notes of country banks paid in London +were conveyed by the post to the issuing bank at one quarter the regular +rates for letters, but parcels of notes had to exceed six ounces in +weight and contain no other matter (5 Geo. IV, c. 20). + +[667] 7 Wm. IV and 1 Vict., c. 34. + +[668] 7 Wm. IV. and 1 Vict., c. 36. + +Franking and the privilege of sending and receiving letters free from +postage did not at any time extend to letters liable to foreign postage +except in the case of public despatches to and from the Secretaries of +State and British Ambassadors.[669] The owners, charterers and +consignees of vessels inward bound were allowed to receive letters free +from sea postage to the maximum of six ounces for each man, but in the +case of ships coming from the East Indies, Ceylon, Mauritius, and the +Cape, the maximum was twenty ounces.[670] Within the kingdom, writs for +the election of members of the House of Commons and for those Scotch and +Irish peers who were elected, were allowed to go free.[671] All persons +who were allowed to frank letters within the Kingdom were grouped in ten +classes. Members of Parliament were placed in the first class and their +letters were subject to the old restrictions as to number,[672] +superscription, name of post town, date, and place of residence. They +might also receive petitions free, provided that each did not exceed six +ounces in weight. They might send free printed votes and proceedings in +Parliament. + +[669] 5 and 6 Wm. IV, c. 25. + +[670] 7 Wm. IV and 1 Vict., c. 34. Maximum increased to thirty ounces by +7 Wm. IV and 1 Vict., c. 25. + +[671] 53 Geo. III, c. 89; 7 Wm. IV and 1 Vict., c. 32. + +[672] Wallace, the postal reformer, declared that other members had been +in the habit of receiving more than fifteen free letters in a day and +that, too, with Freeling's consent (_Parl. Deb._, 3d series, xxiv, col. +1001). + +Officials of both Houses of Parliament were in the second class. They +were subject to the same restrictions as the first class, except that +the number of their letters was not limited and each letter might weigh +two ounces. + +The third class was composed of members of the Treasury Department and +the Postmaster-General and his secretaries. Their franking privilege was +unlimited as to the weight and number of letters nor were they required +to insert the name of the post town or the date. + +The fourth class, composed of heads of departments, might send and +receive letters with no limit as to number or weight. + +The fifth class, the Lord Chancellor of Ireland and the Irish +Surveyors, had unlimited franking rights within Ireland. All the letters +of these five classes were subject to the following restrictions with +the exception of the third class. The whole superscription of the +letters sent must be in the hand of the privileged person, with his name +and the name of the post town from which the letters were sent together +with the date, and on that date or the day before, the writer must be +within twenty miles of the place where the letters were posted. + +The other five classes were made up of subordinate members of +departments, clerks, secretaries etc. when writing or receiving letters +on official business. Every such letter had to be superscribed with the +name of the office and the seal and name of the writer.[673] + +[673] 7 Wm. IV. and 1 Vict., c. 35. + +It appeared from a report of a committee appointed to investigate postal +affairs that the total number of franks had increased from 3,039,000 in +1810 to 4,142,000 in 1820; 4,792,000 in 1830 and 5,270,000 in 1837. Of +these, members of the two Houses were responsible for 2,028,000; +2,726,000; 2,814,000 and 3,084,000 at the above dates respectively.[674] +In concluding their report the Committee recommended the abolition of +Parliamentary franking.[675] This advice was followed and improved upon +two years later when franking and the privilege of sending or receiving +letters free were abolished, except in the case of petitions to the +Queen or Parliament not exceeding 32 ounces in weight.[676] + +[674] _Rep. Com._, 1837-38, xx, 2d rep., app., p. 109. + +[675] _Ibid._, xx, 3d rep., p. 62. + +[676] 3 and 4 Vict., c. 96. Recent attempts by certain members of +Parliament to revive the franking privilege have fortunately been +unsuccessful (_Parl. Deb._, 4th ser., lxxxi, col. 1407; civ, col. 360). + +No further reduction in inland postage rates was adopted until the net +revenue of the Post Office had pretty well recovered from the blow +received by the adoption of penny postage.[677] Such reduction was +finally granted in 1865, applying only to letters weighing more than one +ounce each, the increases in weight being graduated by half ounces with +a penny for each additional half ounce instead of 2_d._ for each +additional ounce as before. Corresponding reductions were made at the +same time in the book post and the pattern and sample post, and were +made applicable to correspondence with British North America and the +British possessions in Europe.[678] In 1870, when the impressed +newspaper stamp was finally abolished, the rate on prepaid newspapers +was reduced to a halfpenny each whether sent singly or in packages, but +no package was to be charged higher than the book post rate. Unpaid +newspapers were charged a penny for each two ounces or fraction thereof. +The book post rate was reduced at the same time to a halfpenny for each +two ounces or fraction thereof. The rate for patterns and samples, which +had formerly been 2_d._ for the initial four ounces, was altered to the +existing book post rate with a maximum of twelve ounces only. In 1871 +the inland letter rate was fixed at a penny for the initial ounce, a +halfpenny for the next ounce and for each additional two ounces, and the +sample and pattern post was incorporated with the inland letter post. A +separate sample and pattern post was reëstablished in 1887, only to be +incorporated for a second time with the letter post ten years +later.[679] An additional charge for re-directed letters was made when +the re-direction necessitated a change from the original delivery, but +the charge was such only as they would be liable to if prepaid. An +exception was made in the case of letters re-directed to sailors or +soldiers, no additional charge being then made, provided that the rate +was not a foreign one. This privilege was later extended to commissioned +officers and the exemption extended to foreign rates as well.[680] In +1891 all charges for the re-direction of letters were abolished, +followed three years later by a like abolition in the case of all other +postal matter, and in 1900 the charge for notice of removal and +re-direction after the first year was reduced from £1 1_s._ to 1_s._ for +the second and third and 5_s._ for subsequent years.[681] + +[677] But in 1861 the registration fee was reduced from 6_d._ to 4_d._ +and a double fee charged for compulsory registration (_Rep. P. G._, +1862, pp. 9-10). + +[678] _Rep. P. G._, 1866, p. 12. + +[679] _Ibid._, 1870, pp. 3-5; 1897, p. 5; 1896, p. 2; 1898, pp. 1-2. + +[680] 3 and 4 Vict., c. 96; 10 and 11 Vict., c. 85; 23 and 24 Vict., c. +65. + +[681] _Rep. P. G._, 1892, p. 8; 1894, p.2; 1895, p. 4; 1901, p. 4. + +With an increase in the number of valuable articles carried by post and +better arrangements for their safe keeping, it was found possible to +reduce the registration fee from 11_d._ to 6_d._, then to 4_d._ and +eventually to 2_d._ At the time of the first reduction, a rule was +issued for the compulsory registration by the Post Office of all letters +unquestionably containing coin, for the sake of letter carriers and +others rather than the protection of the public. The Post Office did not +at the time of the first reduction hold itself responsible for the full +value of the contents of a lost registered letter but was accustomed to +remunerate the sender where the contents were proved, were of moderate +amount, and the fault clearly lay with the Post Office. In 1878 it +agreed to make good up to £2 the value of the contents of any registered +letter which it lost, stipulating in the case of money that it had been +sent securely and in one of its own envelopes. Compulsory registration +by the Post Office was also extended to include uncrossed cheques and +postal orders to which the name of the payee had not been appended.[682] + +[682] _Rep._ P. G., 1862, pp. 9-10; 1879, p. 13; 1897, p. 5. + +An inland parcel post was not established in England until 1883. An +initial rate of 3_d._ was imposed for the first pound, increasing by +increments of 3_d._ to 1_s._ for the seventh pound. Later the maximum +weight was increased to 11 pounds, the maximum charge to 1_s._ 6_d._ In +1905 a further reduction followed on parcels weighing more than four +pounds.[683] + +[683] _Ibid._, 1896, p. 3; 1882, p. 3; 1906, p. 1. + +The use of postcards was first permitted in England in 1870, a charge of +a halfpenny a dozen being made in addition to the stamp. In 1875 this +additional charge was increased to a penny a dozen for thin cards, 2_d._ +for stout cards. In 1899 these prices were reduced to a penny for ten +stout cards, a halfpenny for ten thin ones, and the latter began rapidly +to displace the former. Private post cards were first allowed to pass +through the post in 1894 for a halfpenny each, and two years later the +charge on unpaid inland post cards was reduced from 2_d._ to a +penny.[684] At the same time that the use of post cards was allowed, a +half penny post was introduced for certain classes of formal printed +documents.[685] + +[684] _Ibid._, 1896, p. 2; 1889, p. 2; 1897, p. 5; 1895, p. 18. + +[685] _Ibid._, 1903, p. 5. + +In 1884 the scale of postage applicable to inland letters between two +and twelve ounces in weight was continued without limit. The resulting +rates were as follows: for the first ounce, one penny; for two ounces, +1-1/2_d._; for all greater weights, a halfpenny for every two ounces +plus an initial penny. On the occasion of the sixtieth anniversary of +the late Queen's accession to the throne, further decreases were +announced in the postage on inland letters. The weight carried by the +initial penny was extended from one to four ounces, the postage for +heavier letters increasing as before at the rate of a halfpenny for each +additional two ounces.[686] + +[686] _Rep. P. G._, 1885, p. 14; 1898, pp. 1-2. + +The decrease in postage for inland matter was accompanied by lower rates +for colonial and foreign letters. Although the proposal of the Marquis +of Clanricarde to establish a definite shilling[687] rate for all +colonial letters was not immediately adopted, it was not long before +even lower rates were accepted. The Marquis' plan was communicated to +the Treasury Lords in 1850 purely on Imperial grounds, "to strengthen +the ties between the colonies and the mother country." Rates other than +those on letters were even then far from excessive. Newspapers, for +instance, often passed free or they were charged a penny each either in +England or the colony, but not in both. Parliamentary proceedings paid +but one penny, sometimes 2_d._ per quarter-pound, books 6_d._ per +half-pound. A few years later a 6_d._ letter rate was adopted for all +parts of the Empire except India, the Cape, Mauritius, and Van Diemen's +Land. In 1857 the 6_d._ rate per half-ounce was extended to all the +colonies and in 1868 to the United States. In the following year this +rate was lowered to 3_d._ for letters to the United States, Canada and +Prince Edward Island.[688] In 1890 this rate in the case of most of the +colonies, and some foreign countries, was still further reduced to +2-1/2_d._, partly no doubt on account of the crusade which Mr. Heaton +had undertaken for penny postage within the Empire.[689] In 1898 his +penny aspirations were realized for all the important colonies with the +exception of the Australasian and South African, and in 1905 these too +fell into line and were joined by Egypt and the Soudan.[690] In 1907, +the experiment was tried of charging the comparatively nominal sum of +one penny a pound on British newspapers, magazines, and trade journals +for Canada, duly registered for the purpose, when sent by direct +Canadian packet. This rate is less than the cost but the loss is +diminished by the fact that the Dominion Government relieves the British +Post Office of the whole cost of ocean transit by the Canadian +subsidized lines.[691] + +[687] Even at this time (1850) the shilling rate was the rule. + +[688] _Acc. & P._, 1852-53, xcv., 204, pp. 2-3; _Rep. P. G._, 1855, pp. +36-37; 1858, p. 20; _Rep. Com._, 1868-69, vi, p. iv; _Rep. P. G._, 1871, +app., p. 29; 1870, pp. 6-7. + +[689] _Ibid._, 1891, p. 6; app., p. 39. + +[690] _Ibid._, 1899, p. 7; 1906, p. 1. + +[691] _Rep. P. G._, 1907, pp. 4-5. + +In 1863 arrangements were made with the principal European countries for +a marked reduction in letter postage rates. With France a rate of 8_d._ +or 10_d._ for a quarter of an ounce, according to the country in which +the postage was paid, had existed. This was reduced to 4_d._ payable in +either country. With Italy and Spain the existing rates of 1_s._ 1_d._ +and 10_d._ respectively for a quarter of an ounce were reduced to 6_d._ +The Belgian sixpenny half-ounce rate was made 4_d._, and with the German +Postal Union the rate was reduced from 8_d._ to 6_d._ for a half-ounce +letter. In general these were prepaid rates.[692] The first Postal Union +meeting at Berne in 1874 reduced still further the old rates and +simplified the rules for the settlement of postal payments between the +subscribing nations. A uniform rate for prepaid letters of 2-1/2_d._ the +half ounce was agreed to, 5_d._ for an unpaid letter. Post cards were +charged at half the rate of a prepaid letter, newspapers a penny for +four ounces, printed papers (other than newspapers), books, legal and +commercial documents, and samples of merchandise a penny for two +ounces.[693] In 1891 the uniform letter rate existing among those +countries in Europe which were members of the Postal Union was extended, +so far as the United Kingdom was concerned, to all parts of the globe. +On the first of October, 1907, a further reduction was made when the +unit of weight for outward foreign and colonial letters was raised from +half an ounce to an ounce, and the charge on foreign letters for each +unit after the first was reduced from 2-1/2_d._ to 1-1/2_d._[694] + +[692] _Ibid._, 1864, p. 21; 1859, pp. 19-20. + +[693] _Ibid._, 1875, p. 13. + +[694] _Ibid._, 1892, p. 8; 1906, pp. 1-2. + +Shortly after acquiring the money order business from the managing +proprietors, the Post Office reduced the rates of commission to 3_d._ +for orders not exceeding £2 in value, and 6_d._ for orders above £2 but +not over £5, the latter sum being at that time the maximum. In 1862 the +issue of orders for larger sums was allowed at the following rates: +9_d._ when not in excess of £7, and 12_d._ between £7 and £10. On the +first day of May, 1871, a further reduction was made and the following +scale of charges announced: for sums under 10_s._, a penny; between +10_s._ and £1, 2_d._; between £1 and £2, 3_d._, and an additional penny +for each additional pound to the £10 limit. It was found, however, that +the low rate of a penny for small orders did not pay, and a decision was +reached to raise the rate for these small orders and provide a cheaper +means for their remittance by post. In pursuance of this policy the rate +for orders under 10_s._ was increased to 2_d._, for orders between +10_s._ and £1 to 3_d._, and in 1881 the following rates were announced +for postal notes: a halfpenny for notes of the value of 1_s._ and 1_s._ +6_d._; a penny for notes of the value of 2_s._ 6_d._, 5_s._ and 7_s._, +6_d._ and 2_d._ for notes costing 10_s._, 12_s._ 6_d._, 15_s._, 17_s._ +6_d._, and 20_s._ In 1884 a new series of postal orders was issued, the +12_s._ 6_d._ and 17_s._ 6_d._ notes being dropped and new notes issued +of the value of 2_s._, 3_s._, 3_s._ 6_d._, 4_s._, 4_s._ 6_d._, 10_s._ +6_d._ for a penny each and the rate on the 15_s._ and 20_s._ notes was +reduced to 1-1/2_d._ In 1903 still others were introduced with the +result that a postal order may now be obtained for every complete 6_d._ +from 6_d._ to 20_s._ and for 21_s._ and broken sums to the value of +5_d._ may be made up by affixing postage stamps. Finally, in 1905, the +poundage on postal notes for 2_s._ and 2_s._ 6_d._ was reduced from +1_d._ to a halfpenny, and on postal orders for 11_s._ to 15_s._ +inclusive from 1-1/2_d._ to 1_d._ In 1886 the money order rates were +reduced as follows:-- + _d._ + On sums not exceeding £1 2 + £2 3 + £4 4 + £7 5 + £10 6 + +These rates were in their turn altered as follows on February 1, 1897:-- + _d._ + For an order not exceeding £3 3 + Over £3 but not exceeding £10 4 + +Upon the representation of the Friendly Societies, which send a good +many small orders, these rates were changed in May of the same year to +the following:-- + _d._ + + For an order not exceeding £1 2 + exceeding £1 but not over £3 3 + exceeding £3 but not over £10 4 + +And finally in 1903 the maximum amount of a money order was raised from +£10 to £40 and the following rates established:[695]-- + _d._ + For sums not exceeding £1 2 + For sums above £1 but not exceeding £3 3 + £3 £10 4 + £10 £20 6 + £20 £30 8 + £30 £40 10 + +In addition to the reductions in rates which have been outlined above, +other changes have been made which have resulted in certain cases in a +saving to the transmitter of a money order. The charge for correcting or +altering the name of the remitter or payee of an inland order has been +reduced to the fixed sum of a penny. The fee payable for stopping +payment of an inland order was fixed at 4_d._, and this was made to +cover the issue of a new order if the request was made at the time of +stopping payment. A penny stamp need no longer be affixed to a money +order when payment is deferred and payment may be deferred for any +period not exceeding ten days.[696] + +[695] _Rep. P. G._, 1896, pp. 26-32; 1897, pp. 10-11; 1904, pp. 11-12; +1906, p. 1. + +[696] _Ibid._, 1897, pp. 10-11. + +The issue of telegraph money orders, commenced in 1889 as an experiment, +was in 1892 extended to all money order offices which were also +telegraph offices. The limit imposed was £10, the rates being + _d._ + On orders not exceeding £1 4 + £2 6 + £4 8 + £7 10 + £10 12 + +There was an additional charge of at least 9_d._ for the official +telegram, authorizing payment, which was sent in duplicate. When several +orders were sent at the same time and the total amount did not exceed +£50, only one official telegram was sent and paid for. The above rates +were lowered in 1897 to 4_d._ for sums not in excess of £3, and 6_d._ +for sums from £3 to £10 with a minimum charge of 6_d._ for the official +telegram of advice.[697] At the present time inland telegraph money +orders may be issued for the same amounts as ordinary inland money +orders and at the same rates, plus a fee of 2_d._ and the cost of the +official telegram. + +[697] _Rep. P. G._, 1896, pp. 30-32. + +During the Crimean War, the Army Post Office was authorized to issue +money orders at inland rates and the system was extended to Gibraltar +and Malta. In 1858 a proposition advanced by Canada for the interchange +of money orders was favourably received by the Home Government, and in +the following year provision was made for their issue between the United +Kingdom and Canada at four times the inland rates, to a limit of £5. In +1862 the system was extended to all the colonies, the rates being the +same as those already agreed upon with Canada except in the case of +Gibraltar and Malta where they were three times the inland rates, and +the maximum was increased to £10. In 1868 a money order convention was +concluded with Switzerland, the rates being the same as those for inland +orders, and in 1869 a similar agreement was made with Belgium, but in +1871 the rates for both countries were increased to three times the +inland rates upon the same terms as those prevailing with other parts of +Europe. In 1880 colonial rates were reduced to the same level, and in +1883 the following changes were adopted: + _d._ + On orders not exceeding £2 6 + £5 12 + £7 18 + £10 24 + +These were superseded in 1896 by the following rates:-- + _d._ + On orders not exceeding £2 6 + £6 12 + £10 18 + +By 1903 most foreign countries and some of the colonies had agreed to a +further reduction of rates and to a £40 limit. In 1905 the poundage on +foreign money orders not exceeding £1 in value was diminished from 4_d._ +to 3_d._[698] + +[698] _Rep. P. G._, 1896, pp. 28-30; 1897, pp. 10-11; 1904, p. 11; 1906, +p. 1. + +There is no record of the yearly expenses of the Government for the +maintenance of the posts until the accession of James I.[699] There are +many instances of the issue of warrants for the payment of the posts but +it is not known how long a period they were intended to cover.[700] +There was no systematic financial method in dealing with this phase of +the postal question. The postmen remained unpaid for years at a time. +After sufficient clamour, part of the arrears would be met, but it is +impossible to say how much of the sum paid was for current expenses and +how much for old debts.[701] It might be supposed from the fact that +they received fixed daily wages that some idea might be obtained of the +cost of management. But their wages often remained unpaid and the number +of postmen varied, as new routes were manned or old routes discontinued, +so that any figures for the period before the seventeenth century would +be mere guesses. + +[699] _Rep. Com._, 1844, xiv, app., p. 48 (25). + +[700] _L. & P. Hen. VIII_, ii, pp. 1444-51-53-57-58-60-62-63-66-72; _A. +P. C._, 1547-50, pp. 111, 278, 307, 319, 413; 1552-54, pp. 74, 137, 402. + +[701] _Cal. S. P. D._, 1623-25, pp. 55, 285; 1628-29, p. 184; 1629-31, +pp. 379, 440. + +Until 1626[702] our knowledge of the finances of the Post Office is +concerned with expenses only, for there was no product, gross or net, +for the state. In 1603, the cost of the posts was £4150 a year.[703] +This was the year of James the First's accession, and to this is +probably due the fact that payment was made for an entire year. Then +there comes a break of several years' duration. In 1621, arrears for the +half year ending March 31, 1619, were paid. They amounted to £917. For +the next two years the yearly expenses averaged £2984. The total +expenses for the financial year ending in March, 1621, were £3404. All +the posts to Berwick received 92_s._ a day, to Dover 17_s._ 6_d._, to +Holyhead 36_s._ 8_d._ and £130 a year for a sailing packet, to Plymouth +25_s._ a day. The wages for each postmaster varied from 1_s._ 8_d._ to +4_s._ 4_d._ a day. In addition there was an expenditure of £50 for +extraordinary posts and 5_s._ a day to the paymaster.[704] In 1625, the +ordinary expenses were about £4300 a year.[705] It is disappointing not +to be able to make any more definite statements concerning the financial +operations of the Post Office before 1635, but the unbusinesslike system +under which it was conducted must take the blame. + +[702] The proceeds from de Quester's rates, which went into effect from +this year, may possibly have gone to the Post Office. After Witherings' +rates were announced in 1635, they certainly did. + +[703] _Cal. S. P. D._, 1603-10, p. 9. + +[704] _Rep. Com._, 1844, xiv, app., p. 43 (21). + +[705] Hist. MSS. Com., _Rep._, 12, app., pt. 4, p. 472. + +Our ideas of the financial operations of the Post Office from 1635 to +1711 are somewhat clearer than during the preceding period. We know that +Witherings' aim was to make the system self-supporting. It had probably +not entered into his head that it might ever be anything more. After the +sequestration of the position of Postmaster-General to Burlamachi, he +was called upon to render an account of the financial proceedings of the +Post Office during the short period that he was in charge.[706] He +reported that from August 4, 1640, to December 25, 1641, the receipts +had been £8363 and the expenditure £4867. £1400 of the balance had been +paid to the Secretary of State and "of the remaining £2000, those that +keep the office are to be considered for their pains and attendance." +This is rather vague but the report shows that the Post Office was +self-supporting only six years after Witherings' reforms had been +adopted.[707] Prideaux reported at an early period in his régime that, +with the exception of the Dover road and the Holyhead packet, the posts +paid for themselves.[708] After the Post Office was farmed, there can be +no doubt as to the total net revenue, but it is impossible to say how +much the farmer made over and above the amount of his farm or how large +his expenses were. Manley paid the state £10,000 a year and is said to +have made £14,000 during the six years that he farmed the Posts.[709] In +1659 the rent was raised to £14,000[710] a year, and in 1660 there was a +further advance to £21,500.[711] Of this £21,500 the Duke of York +received £16,117 and the rest was spent largely in paying pensions and +for a few minor expenses such as the payment of the Court +Postmaster.[712] By the act of 1663, the net Post Office revenue was +settled upon the Duke of York and his male heirs, with the exception of +about £5000 a year, that being the amount of the pension charges on the +revenue.[713] Certain deductions were made from the sum total of rent +due, on account of the loss to the farmer from the activity of the +interlopers, and the deficit was ordered to be made up from some other +branch of the royal revenue.[714] + +[706] _Cal. T. P._, 1697-1702, p. 289. + +[707] _Cal. S. P. D._, 1641-43, p. 213. + +[708] _Jo. H. C._, 1648-51, p. 385. + +[709] _Cal. S. P. D._, 1653-54, p. 365. + +[710] Hist. MSS. Com., _Rep._, 15, app., pt. 1, p. 97. + +[711] _Rep. Com._, 1844, xiv, app., p. 76 (53). + +[712] _Cal. S. P. D._, 1661-62, pp. 122, 245. + +[713] 15 Chas. II, c. 14. + +[714] _Cal. S. P. D._, 1663-64, p. 598. + +After James II took his involuntary departure from England, his +pecuniary interest in the Post Office ceased. In 1690, an act of +Parliament was passed, making the receipts from the Post Office payable +into the Exchequer. They were to be used among other things to pay the +interest on £250,000 borrowed to carry on the war.[715] From 1690 to +1710, the gross receipts rose from about £70,000 to £90,000 a year, no +consideration being taken of the ups and downs caused by the French +wars.[716] Complaint was made by the Lords that a large part of the +postal revenue was wasted in paying pensions.[717] The Duchess of +Cleveland received £4700 a year and William's Dutch General, the Duke of +Schomberg, £4000 a year. Poor William Dockwra, the only one of the lot +who had ever done anything for the Post Office, was at the end of the +list with only £500 a year, terminable in 1697.[718] The sum total of +money payable in pensions from the post revenue in 1695 was £21,200. The +packet boats at the same time cost £13,000, and but £10,000 was spent +for salaries and wages. The net revenue in 1694 was £59,972, the gross +being about £88,000.[719] + +[715] Hist. MSS. Com., _Rep._, 13, app., pt. 5, p. 81. + +[716] Hist. MSS. Com., _Rep._, 13, app., pt. 5, p. 362. + +[717] Hist. MSS. Com., _Rep._, 13, app., pt. 5, p. 406. + +[718] Hist. MSS. Com., _House of Lords_, i, pp. 84-87. + +[719] _Rep. Com._, 1844, xiv, app., p. 93 (66). + +During the eighteenth century the postal revenue still continued to be +burdened with the pensions of favourites, deserving and undeserving. +Queen Anne asked Parliament to settle £5000 a year upon the Duke of +Marlborough and his heirs. The House of Commons replied that they very +much regretted that they could not do so for the Post Office was +already paying too much in pensions. Probably the real reason for their +refusal was the fact that the Duke and the war party were becoming +unpopular. However, the Queen granted him the pension for her own life +as she had a legal right to do. In 1713, the total amount of pensions +payable from the postal revenue was £22,120. Before the act of 1711 was +passed, the Scotch Office had paid £210 to each of the Universities of +Edinburgh and Glasgow. This continued to be granted after the two +Offices were united.[720] + +[720] _Cal. T. P._, 1708-14, p. 20. + +Our knowledge of the financial operations of the Post Office during the +eighteenth century is much more extensive than during the seventeenth, +owing to the reports made by the Post Office officials to the +Parliamentary committees, appointed to enquire into abuses. The reports +are all signed by the Accountant-General or his deputy, and are +therefore as trustworthy as anything which can be obtained. They show +that during the first half of the century, or more explicitly from 1717 +to 1754, there was a very small annual increase in gross product, with +an actual decrease in net product, and of course an increase in +expenditure. In round numbers the average yearly gross product for the +years 1725-29 was £179,000, the net product for the same period being +£98,000 and the expenses of management £81,000. For the five years from +1750 to 1754, the average annual gross product was £207,000, net product +£97,000, and expenses £110,000. It is not surprising that there was no +increase worthy of the name in the gross product, for the period under +consideration was a time of stagnation, an intermediate stage just +before the dawn of the industrial revolution. The actual decrease in net +product or, what amounts to the same thing, the increase in expenses of +management, is due largely to the abuse of the franking privilege, the +large amounts received in fees and emoluments, the extraordinary way in +which the packet service was mismanaged, and the losses and increased +expense due to war. Enough has been said about all but the last of these +causes. The Post Office suffered most during war from increased expenses +and direct losses in connection with the sailing packets. The placing of +these upon a war footing involved considerable increased cost. In the +second place, extra boats were used for political purposes in addition +to those regularly employed, and it was customary for the Post Office to +make good to the owners all damages inflicted by the enemy. From 1725 to +1739, the expenses of the Post Office averaged £80,000 or £90,000 a +year. Then came the War of the Austrian Succession, when the expenses +averaged £105,000 per year from 1745 to 1749. The five following years +being a period of peace, the average annual expenses were £110,000, +while the Seven Years' War brought them up to £147,000. It may be +thought that expenses should become normal again when war has ceased, +but it has generally proved to be the rule that although peace brings a +decrease, yet the expenditure does not fall quite so low as before the +war. + +From 1755 to the end of the century there is a marked rise both in gross +and net receipts and a comparative diminution in expenses. The gross +average annual product from 1755 to 1759 was £228,000, from 1790 to 1794 +it was £602,000. For the five years from 1755 to 1759 the average yearly +net product was £81,000, from 1790 to 1794 it was £375,000, while +expenses had risen for the same periods only from £147,000 to £227,000. +The following table shows the average yearly increase or decrease in +gross product, expenses, and net products for the six five-year periods +from 1765 to 1794. The increases or decreases are given in the form of +percentages, each five-year period being compared with the preceding +period.[721] + + _Gross product_ _Expenses_ _Net product_ + 1765-69 17% increase 22% decrease 76% increase + 1770-74 11 " 27 increase unchanged + 1775-79 12 " 30 " " + 1780-84 19 " 37 " " + 1785-89[722] 21 " 21 decrease 90% increase + 1790-94 24 " 14 increase 30% " + +[721] For the gross product, net product, and expenses for each year, +see Appendix, pp. 243, 244, 245, Tables I, II. + +[722] Rates were increased in 1784. + +The net product from both the Scotch and Irish Posts was remitted to +England. These receipts did not amount to much as compared with those +from the English Post. Earl Temple, Lord Lieutenant of Ireland, in +writing to Grenville in 1784, said that the Irish post "had never paid +£8000 a year clear of expenses."[723] In 1796, the gross product was +£26,949 and the expenses of management £8718. Of the net product, £6651 +were retained, being placed to the credit of Great Britain for returned +and missent letters and for the £4000 which the Irish Post was entitled +to receive in lieu of the receipts from the Holyhead packet boats. The +remaining £11,579 were sent to the general Post Office. The Scotch Posts +did considerably better. The gross product in 1796 was £69,338, the +expenses of management £14,346, for returned letters £1206, and the net +product sent to the General Office was £54,265. + +[723] Hist. MSS. Com., _Dropmore_, i, p. 179. + +The time had long since passed when the London-Dover road was the most +important in the kingdom and when the receipts from foreign exceeded +those from inland letters. As late as 1653, when contracts were called +for from those wishing to farm the posts, the amount offered in one +instance was almost as great for the foreign as for the inland post. The +average annual gross product from the foreign post for the period +1785-89 was £61,431, the expenses £32,169 and the net product £29,262. +For the period from 1790 to 1794 there was a small increase to £65,497 +for gross product, £34,277 for expenses, and £31,200 for net +product.[724] + +[724] _Parl. Papers_, 1812-13, _Rep. Com._, ii, 222, p. 93. + +The receipts from the London Penny Post were never an important factor +in postal finance but it had always paid for itself and given a +reasonable surplus. Its importance was due more to its social value in +affording a cheaper letter rate and a speedier postal service than the +General Post. The average yearly gross product from 1785-94 was £10,508, +expenses £5177, and net product £5331. After Johnson had improved it so +much, it produced a yearly average gross product from 1795 to 1797 of +£26,283. Expenses averaged £18,960 and net product £7323. + +In the seventeenth century the receipts from bye and cross post letters +amounted to very little. So little was expected from them that no +provision was made for checking the postage on them. It was taken for +granted that all letters would pass to, from, or through London. In 1720 +they brought in only £3700. Allen had done much to increase the +revenue, but it was not until the last part of the eighteenth century +that the increase was at all marked. From 1780 to 1784, the average +annual gross product was £77,911, expenses £12,346 and net product +£65,565. From 1785 to 1789, these had increased respectively to +£104,817, £11,589, and £93,228, and from 1790 to 1794 to £140,974, +£15,030, and £125,944. The small expense for these letters is explained +by the fact that the separate department for bye and cross post letters +was debited with only a portion of the total cost, the larger part being +carried by the general establishment.[725] + +[725] _Parl. Papers_, 1812-13, _Rep. Com._, ii, 222, p. 91. + +The financial history of the Post Office from the beginning of the +nineteenth century to 1838 is a rather depressing record.[726] From 1805 +until 1820 both the gross and net receipts had increased steadily +although not rapidly, but for the remainder of the period the revenue +was practically stationary. During the five-year periods, 1820-24 and +1830-34, there had been a decrease in gross receipts, and during the +latter of these periods the net receipts had been kept a little ahead of +the five-year period 1815-19 only by a decrease in expenditure. + +[726] See Appendix, p. 246, Table III; p. 247, Table IV. + +The annual gross receipts from Scotland had increased from £117,108 +during the period 1800-04 to £204,481 during the period 1830-34, the +annual net receipts for the same periods being £98,156 and £149,752. The +relatively large increase in expenses from £18,952 to £54,729 had been +due largely to the payment of mail coach tolls after 1814, amounting to +something under £20,000 a year.[727] Ireland started with a smaller +gross revenue, £92,745 a year during the period 1800-04, but a larger +annual expenditure £64,368,[728] and comparatively small net receipts of +£28,377. Gross receipts, expenses, and net receipts had increased slowly +throughout the first thirty-four years of the nineteenth century with +the exception of the period 1820-24. For the five years from 1830 to +1834 inclusive they amounted to £244,098, £108,898, and £135,200 +respectively.[729] + +[727] See Appendix, p. 248, Table V. + +[728] Ireland had paid for mail coach tolls from the first and this +partly explains the relatively high expenditure. + +[729] See Appendix, p. 248, Table V. + +The increases in rates in 1801, 1805, and 1812 had not produced the +desired and expected results. The increase in 1801 had been estimated to +produce £150,000 but results showed that this estimate was too large by +£35,000. In 1805, the additional penny had resulted in an increase of +only £136,000, inclusive of any natural increase of revenue, although it +had been estimated to produce £230,000. The third increase in rates in +1812 proved even less productive. The Chancellor of the Exchequer said +that he expected it to produce £200,000. As a matter of fact the revenue +increased only £77,892 in amount. The fact of the matter was that rates +were already so high that an increase only led to greater efforts to +evade the payment of postage. As a system of taxation the Post Office +had become rigid. It could yield no more with postage as high as it had +been forced by the acts of 1801 and 1805. But, considered primarily as a +taxing medium, and it had been considered as such for 200 years, it +could hardly be called a failure. We flatter ourselves that our idea of +the Post Office is broader in its scope and more utilitarian in its +object but we have the good fortune to live several generations after +1840. What England demanded was revenue and still more revenue, and a +postal system which could produce £70 net for every £100 collected had +some excuse for its existence. + +Rowland Hill has pointed out that from 1815 to 1835 the population had +increased from 19,552,000 to 25,605,000 while the net revenue from the +Post Office had remained practically stationary. He said nothing, +however, about the industrial depression of the country during that +period nor of the political and economic crisis through which England +was passing. He referred to the great increase in the postal revenue of +the United States during the same period; on the one hand, a nation with +immense natural resources and a population doubling itself every +generation, and on the other hand, a people inhabiting two small +islands, making heroic efforts to recover from a most burdensome war. + +With the introduction of penny postage the gross revenue of the Post +Office fell from £2,390,763 in 1840 to £1,359,466 in 1841, and did not +fully recover from the decreased postage rates for twelve years. The +cost of management, on the other hand, increased only from £756,999 in +1840 to £858,677 in 1841. But the financial loss is shown most plainly +in the falling off in net revenue from £1,633,764 to £500,789. If we +exclude packet expenses, and such was the practice until 1858, the net +revenue did not again reach the maximum figure of high postage days +until 1862. Including packet expenses we find that the net revenue did +not fully recover until the early seventies. The average yearly gross +revenue for the period from 1841-45 was £1,658,214, expenditure +£1,001,405, and the net revenue £656,809. These all increased steadily +and on the whole proportionately until 1860, the average yearly figures +for the preceding five years being £3,135,587, £1,785,911, and +£1,349,676. In 1858 the packet expenses are included under cost of +management and their enormous increase from the beginning of the century +sadly depleted the net revenue. It seems more advisable, however, not to +include them until 1860 when the packets passed from the control of the +Admiralty to that of the Post Office. The average gross revenue for the +years 1861 to 1865 was £4,016,750, expenditure (including packets) +£3,013,389, and net revenue £1,003,341. During the next quarter of a +century these increased to £6,326,141, £4,019,423, and £2,306,718 +respectively, exclusive of telegraph receipts and expenditures. For the +five years ending 31st March, 1906, the average gross revenue was +£15,926,905, expenditure £11,156,292, and net revenue £4,770,613.[730] + +[730] See Appendix, pp. 249, 250, 251, Table VI; p. 252, Table VII. + + + + +CHAPTER IX + +THE QUESTION OF MONOPOLY + + +The question of the state's monopoly and the opposing efforts of the +interlopers to break this monopoly resolves itself into a consideration +of the way in which private letters were carried, for the public letters +were entirely at the disposal of the state to be dealt with as it saw +fit. From the sixteenth century there were several ways in which private +letters might be conveyed. Within the kingdom they might be sent by the +common carriers, friends, special messengers, or the Royal Posts. +Letters sent abroad were carried by the Royal Posts, the Merchant +Adventurers' Posts, the Strangers' Posts, and the Merchants' Posts while +they lasted. The fact that private letters were conveyed by the Royal +Posts is generally expressed in rather indefinite terms or by references +to proclamations, but that they were actually so conveyed is entirely +beyond doubt.[731] In 1585 a certain Mr. Lewkenor informed Walsingham +that the post just landed had brought many letters directed to +merchants, besides those for the Court and Government. He asked whether +he might open those letters which were directed to suspected +merchants.[732] This reference is of course to letters coming from +abroad. The same holds true of inland letters, for in 1583 Randolph, the +Postmaster-General, wrote to Walsingham, enclosing the names of those +"who charge the posts with their private letters and commissions at a +penny the mile."[733] + +[731] G. Roberts, _Social History of the Southern Counties of England_, +1856, p. 508; Joyce, p. 4. + +[732] _Cal. S. P. D._, 1581-90, p. 131. + +[733] _Cal. S. P. D._, 1581-90, p. 228; 1598-1601, p. 427; _Rep. Com._, +1844, xiv, 601, p. 4. + +In 1591 the first proclamation affirming the government monopoly in the +foreign posts was issued. All persons except the Postmaster-General and +his deputies were forbidden "directly or indirectly to gather up, +receive, bring in or carry out of this realm any letters or packets," +the only exceptions being in the case of the despatches of the +principal Secretaries of State, of Ambassadors, and others sufficiently +authorized. An appendix to the same proclamation commanded all mayors, +bailiffs, sheriffs, justices, etc., and especially all searchers to be +on the watch for men coming into or going out of the realm with packets +or letters. In this last part of the proclamation we can see why it was +thought necessary to restrict the carriage of letters to and from +foreign countries to the Royal Posts. It was done that the Government +might be able to discover any treasonable or seditious correspondence. +This did not always remain the object of the state in restricting +competition but was succeeded later by other and different motives. In +order that there might be no doubt about the whole question, the +Postmaster-General received word from the Council to inform the London +merchants, foreigners as well as British subjects and all others whom it +might concern, that they should no longer employ any others to carry +their letters than those legally appointed in accordance with the terms +of the proclamation.[734] + +[734] _Rep. Com._, 1844, xiv, 601, p. 4; app., p. 36 (14). + +In 1602 the first order concerning the despatch of private letters +within the kingdom was issued to the Royal Posts. "The Posts for the +Queen's immediate service"[735] were allowed to carry only state +despatches, directed by members of the council, the Postmaster-General +and certain officials. Such despatches when sent by the regular posts +were to be forwarded immediately. The letters of all other persons +allowed to write by post must wait for the regular departure of the +postmen. In the orders to the posts issued in 1609, the first article +reads as follows: "No pacquets or letters shall be sent by the Posts or +bind any Post to ride therewith but those on Our special affairs."[736] +The first part of this is certainly strong but it is modified by the +succeeding clause "nor bind any Post to ride therewith." Evidently he +might if he wished, and he would probably hesitate longer over a state +packet for the conveyance of which he was never assured of anything than +over a private letter for which he was certain of his pay. + +[735] By "Posts for the Queen's immediate service" was probably meant +the special messengers attached to the Court. + +[736] _Cal. S. P. D._, 1547-65, pp. 215-77; _Rep. Com._, 1844, xiv, 601, +app., p. 42 (20). + +It was the custom after 1609 to follow the appointment of every new +Postmaster-General with a proclamation assigning him and his deputies +the sole privilege of carrying all letters and reading anathema upon all +interlopers.[737] Thus King James favoured Stanhope, his +Postmaster-General, with a grant of monopoly.[738] On de Quester's +appointment as Foreign Postmaster-General a proclamation was issued, +forbidding any but his agents from having anything to do with foreign +letters.[739] In spite of the improvements which he inaugurated, we find +him asking the King a few years later to renew his patent of monopoly +and his request was granted.[740] He was evidently suffering from +competition. But the Merchant Adventurers' Posts were not yet dead and +their Postmaster, Billingsley, abetted by the House of Commons,[741] +gave de Quester so much trouble that he was imprisoned by the Council's +order.[742] + +[737] Letters carried by a friend or special messenger or a common +carrier were excepted. + +[738] _Rep. Com._, 1844, xiv, 601, app., p. 42 (20). + +[739] _Ibid._, 1591-94, p. 401. + +[740] _Ibid._, 1627-28, pp. 511-22. + +[741] The House had already shown its interest in postal affairs by +summoning postmasters before the Committee of Grievances in 1624 (_Jo. +H. C._, 1547-1628, pp. 689-774). + +[742] _Cal. S. P. D._, 1628-29, p. 177. + +In the meantime the postmen on the London-Plymouth road had petitioned +the Council that they alone should carry the letters and despatches of +the merchants over their road. They said they had so improved the +service between London and Plymouth that letters were now despatched +between the two cities in three days and an answer might be received +within one week from the time of first writing. Their complaint was +against a certain Samuel Jude, who had undertaken the conveyance of the +London merchants' letters. Jude himself acknowledged this, but said that +he had never meddled with the "through" post by which he meant the +travellers' post.[743] + +[743] _Ibid._, 1625-49, p. 367; 1629-31, p. 200. + +So long as the Royal Posts did not give satisfaction, competition was +inevitable. Under Witherings they had improved so much that what +competition there was, received no support from the London merchants. In +1633 they addressed a petition to the King, praying that he would +protect Witherings from some strangers in London, who had set up posts +of their own. They pointed out how he, acting with some foreign +postmasters, had set up packet posts, travelling day and night. By means +of these, letters were conveyed between London and Antwerp in three +days, while the messengers needed from eight to fourteen days to travel +the same distance.[744] The common carriers were giving trouble in the +despatch of inland letters at the same time that competition in the +foreign posts was attracting attention.[745] It was their custom to send +their carts on ahead while they lingered to collect letters. After the +collection they hastened on, leaving their carts behind, and delivered +the letters on the way. It was provided that no carrier should stay +longer than eight hours in a place after his cart had left it, or arrive +in any place eight hours ahead of it.[746] As long as their speed was +governed by that of their lumbering carts over the wretched roads, no +fear was felt that their competition would prove troublesome. + +[744] _Cal. S. P. D._, 1633-34, p. 39. + +[745] _Ibid._, 1637-38, pp. 22, 171, 177, 183. + +[746] _Ibid._, 1637-38, p. 193; _Rep. Com._, 1844, xiv, 601, app., p. 58 +(37). + +With the growing strength of Parliament, more and more opposition was +made to the grants of monopoly and their enforcement. In 1642 the House +of Commons passed a resolution "affirming that the taking of the letters +from the several carriers and the several restraints and imprisonments +of Grover, Chapman, Cotton, and Mackerill are against the law." The +House proceeded to state that these several persons should have +reparation and damages from Coke, Windebank, and Witherings.[747] Four +years later a report was made by Justices Pheasant and Rolls on +Witherings' patent.[748] They held that the clause of restraint in the +grant to Witherings was void.[749] This decision was quite in accordance +with the views of Parliament when they opposed the King and all his +works. But after Parliament had obtained control of the Posts, "the +President and Governors of the Poor of the City of London" proposed to +the Common Council that the City should establish a postal system in +order to raise money for the relief of the poor in London. A committee +was appointed to inform Warwick, Prideaux, and Witherings of their +intention. At the same time an attempt to lay a petition before +Parliament on the question failed. Counsel's advice was sought and +obtained in favour of the undertaking and in 1650 the Committee received +orders to settle the stages. At the end of six weeks they had +established postal communications with Scotland and other places. +Complaint was made to Parliament, and the Commons passed a resolution +"that the office of Postmaster, inland and foreign, is and ought to be +in the sole power and disposal of the Parliament." The same year the +city posts were suppressed.[750] + +[747] _Jo. H. C._, 1640-42, p. 722. + +[748] These were the same judges who had decided in favour of Stanhope's +patent in Stanhope _v._ Witherings. + +[749] _Rep. Com._, 1844, xiv, 601, app., p. 67 (42). + +[750] Chas. Knight, _London_, 1842, iii, p. 276; R. R. Sharpe, _London +and the Kingdom_, 1894, pp. 322-23. + +Oxenbridge and his friends who had set up posts of their own gave +Prideaux and Manley the hardest fight that any Postmaster-General ever +had to encounter from interlopers. Joyce says that Oxenbridge had acted +as Prideaux' deputy.[751] If this is so, he was soon up in arms against +his superior. In accordance with the judicial decision that the clause +in Witherings' patent giving him a monopoly of the carriage of letters +was void, Oxenbridge, Blackwall, Thomson, and Malyn had undertaken the +private conveyance of letters and had set up posts of their own. +Prideaux had charged 6_d._ for each letter and had organized weekly +posts from and to London. Oxenbridge charged only 3_d._ and his posts +went from and to London three times a week. Prideaux then did the same +and set up posters announcing that the interlopers' posts would be +stopped. His agents assaulted Oxenbridge's servants and killed one of +them. He also stopped his rival's mails on Sundays but allowed his own +to proceed as on other days. In addition to his regular tri-weekly +mails, Oxenbridge provided packet boats for Ireland and intended to +settle stages between London and Yarmouth and the other places named by +the Council of State.[752] To proceed in Oxenbridge's own words: +"Suddenly contracts were called for. We offered £9100 a year through Ben +Andrews, £800 more than was offered by Manley, yet Colonel Rich allowed +Manley to take advantage of an offer made by Kendall then absent and not +privy to it for £10,000 a year. Consideration had been offered by +Council, but Manley had broken into our offices, taken letters, and had +forbidden us from having anything to do with the post." An order of the +Council of State, bearing the same date as the grant to Manley, was sent +to Oxenbridge and his friends, informing them that Manley had been given +the sole right to the inland and foreign letter offices.[753] This did +not end the controversy, for six months later we find Oxenbridge and +Thomson complaining that a monopoly in carrying letters had been given +to Manley. They claimed that all who wished should be allowed to carry +letters at the ordinary rates.[754] + +[751] Joyce, p. 29. + +[752] _Cal. S. P. D._, 1653-54, pp. 22-24, 372. See p. 33, note. + +[753] _Cal. S. P. D._, 1652-53, p. 456. + +[754] _Ibid._, 1653-54, p. 372. + +Of all the interlopers up to the middle of the seventeenth century, +Oxenbridge had proved himself by far the ablest. From the point of view +of the legal decision of 1646 and the position of Parliament before +1640, his position was unassailable. With the present policy of the Post +Office in view, his actions will probably be condemned by the majority. +But in 1650 conditions were entirely different. Before 1635 the state +had either tacitly allowed the carriage of private letters to the profit +of the postmen or had officially taken over such carriage; but in this +case it was largely for the purpose of keeping in touch with the plots +of the times. For 200 years after 1635 the idea was to make money from +the conveyance of private letters. The effects of Oxenbridge's efforts +were certainly beneficial if we are to believe his own story. Prideaux +had been forced to cut his rates in half in order to meet competition. +The credit for this must lie with the interloper rather than with the +monopolist. + +At the same time that Oxenbridge was giving so much trouble, letters +were being carried by private hands in Bury, Dover, and Norwich. The +offenders were summoned before the council for contempt and severely +reprimanded.[755] Petitions came from Thetford and Norwich complaining +that their messenger had been summoned to present himself before the +Council within twenty-four hours and had to travel 100 miles within that +time, an impossibility in the opinion of the petitioners.[756] As late +as 1635, Prideaux, the Attorney-General, gave his opinion that +Parliament's monopolistic resolution of that year affected only the +office of Postmaster-General and not the carrying of letters.[757] +Perhaps this was only a bit of spite on his part after Manley had +succeeded to his old position. + +[755] _Ibid._, 1653-54, p. 177. + +[756] _Ibid._, 1653-54, p. 25. + +[757] _Ibid._, 1652-53, pp. 109-110. + +The usual monopolistic powers, hitherto granted by proclamation, were +embodied in the first act of Parliament, establishing the postal system +for England, Ireland, and Scotland in 1657. The Postmaster-General was +given the sole power to take up, carry and convey all letters and +packets from and to all parts of the Commonwealth and to any place +beyond the seas where he might establish posts. He alone was to employ +foot posts, horse posts, and packet boats. Some exceptions were made to +these general rules. Letters were allowed to be conveyed by carriers so +long as they were carried in their carts or on their pack-horses. The +other exceptions were in the case of letters of advice sent by merchants +in their ships and proceeding no farther than the ships themselves, and +also in the case of a letter sent by a special messenger on the affairs +of the sender, and in the case of a letter sent by a friend. Penalties +were attached for disobedience to this part of the act, one half of the +fine to go to the informer.[758] The same provisions were enacted almost +word for word in the act of 1660, with the addition that letters might +be carried by any one between any place and the nearest post road for +delivery to the postman.[759] + +[758] Scobell, _Collect._, pt. ii, pp. 511-13. + +[759] 12 Ch. II, c. 35. + +After the restoration and for some months before the act of 1660 was +passed, Bishop had acted as farmer of the posts. In the absence of any +law on the subject, the King's proclamation granting a monopoly[760] to +Bishop was freely disregarded.[761] Competing posts to and from London +sprang up, lessening the receipts which he would otherwise have obtained +from the carriage of letters. It was calculated that during the three +months before these interlopers could be suppressed Bishop lost £500 +through them, and orders were given to allow him an abatement in his +rent to that amount.[762] + +[760] _Cal. S. P. D._, 1660-61, p. 475. + +[761] In 1659 a book was published by John Hill, entitled _A Penny +Post--A vindication of the Liberty of every Englishman in carrying +merchants' and other men's letters against any restraints of farmers of +such employments_ (_Notes and Queries_, 6th ser., xi, p. 37). + +[762] _Rep. Com._, 1844, xiv, 601, app., p. 82 (57). + +In 1663 a certain Thomas Ibson attempted to come to an agreement with +the postmasters on the Holyhead road. He wished to have the privilege +of horsing travellers and made an offer to the postmasters to take +charge of the post houses if they would allow him to proceed. He told +them that they should make an attempt to have their salaries restored to +their old value by Bishop, who had raised so much from them by fines and +lowering their salaries. The Postmaster-General told his deputies that +if they dared to treat with the "would-be" interloper he would dismiss +them, and the whole thing fell through.[763] At the same time a warrant +was issued by the Council to mayors and other officials to search for +and apprehend all persons carrying letters for hire, without licence +from the Postmaster-General.[764] Nevertheless interloping did not +cease, as is shown by the complaints from the postmasters.[765] + +[763] _Cal. S. P. D._, 1663-64, pp. 8, 18. + +[764] _Ibid._, 1663-64, p. 145. + +[765] _Ibid._, 1663-64, p. 402. + +In the proclamation following the appointment of O'Neale as +Postmaster-General in 1663, it was ordered that no one should dare to +detain or open a letter not addressed to himself unless under a warrant +from one of the Secretaries of State. An exception was made in the case +of letters carried by unauthorized persons. Such letters should be +seized and sent to the Privy Council. In later proclamations it was +provided that they might be sent also to one of the Secretaries of State +in order that the persons sending or conveying them might be +punished.[766] + +[766] _Rep. Com._, 1844, xiv, 601, app., p. 88 (61). + +After Lord Arlington's appointment as Postmaster-General, he addressed a +petition to the Duke of York complaining "that carriers, proprietors of +stage coaches and others take upon themselves to collect letters to an +incredible number and on some stages double what the post brings." On +account of this he pointed out to His Royal Highness that a considerable +part of his revenue was lost. This was quite true since the Post Office +had ceased to be farmed and the whole net revenue went to the Duke.[767] +This was followed the same year by a proclamation forbidding any one to +collect or carry letters without the authority of the +Postmasters-General. Carriers were forbidden to convey any letters which +were not on matters relating to goods in their carts. Shipmasters must +carry no letters beyond the first stage after their arrival in England +with the exception of the letters of merchants and owners. Searchers +were appointed to see that the proclamation was enforced.[768] It was +even proposed to suppress all hackney coaches, the principal reason +given being that they decreased the value of the Duke's monopoly by +carrying multitudes of letters.[769] + +[767] _Cal. S. P. D._, 1668-69, p. 285. + +[768] _Cal. S. P. D._, 1668-69, p. 376. + +[769] _Ibid._, 1672-73, p. 64. + +It is a curious and interesting fact that for a short time London had a +Half Penny Post, established in 1708 by a Mr. Povey in opposition to the +regular Penny Post. The idea was much the same as that of Dockwra's +although Povey seems to have been a far more belligerent individual than +his forerunner in the work. The Postmasters-General tried to come to +some compromise with him but he would not listen to them. Finally legal +action was brought against him, based on the monopoly granted by the act +of 1660. Povey lost the suit and his project fell through.[770] His was +the last attempt to organize a regular system of competing posts. During +the remainder of the eighteenth century, improvements in postal +communications disarmed much of the former opposition. Considerable +damage was received from the superior speed with which letters might be +sent by coaches but, after they were adopted by the Post Office, matters +naturally adjusted themselves. Private vessels continued to convey +letters which had not paid the rates prescribed in such cases by the act +of 1711, but this breach of the law was tolerated by the Post +Office.[771] + +[770] Knight, _London_, 1842, iii, p. 282; Joyce, pp. 121-23. + +[771] Joyce, p. 329. + +Before the nineteenth century, opposition to the government monopoly had +taken the form of competing systems of communication, started primarily +for the sake of making money and at the same time vindicating the +principle of competition. During the first forty years of the nineteenth +century there was no opposition to the Post Office as a monopoly. The +widespread dissatisfaction was due to the exorbitant rates of postage +and this dissatisfaction expressed itself in attempts to evade these +rates but, with the exception of individual messengers and carriers, +there was no competing system of postal communication established. +Opposition took the form of evasion of postage payments by legal and +illegal means. The various exceptions to the government monopoly +continued unchanged[772] until still further modified in 1837. The +additional modifications were in the case of commissions and returns, +affidavits, writs and legal proceedings, and letters sent out of the +United Kingdom by private vessels.[773] The penalty for infringing upon +the postal monopoly was placed at £5 for every offence or £100 a week if +the offence was continued.[774] + +[772] 9 Anne, c. 10; 42 Geo. III, c. 81; 46 Geo. III, c. 92; 53 Geo. +III, c. 58; 5 Geo. IV, c. 20. + +[773] 7 Wm. IV and 1 Vict., c. 33. + +[774] 7 Wm. IV and 1 Vict., c. 36. + +During the official postal year from July 1831 to July 1832, there were +133 successful prosecutions for illegally sending and conveying letters. +The fines collected amounted to £1635, the costs paid by defendants to +£1085. The prosecutions were generally for a few letters only and the +great majority of the cases were brought in Manchester. In the case of +forty-one additional actions, the Postmaster-General did not enforce the +penalties, certain explanations having been given.[775] Rowland Hill +thought that the conveyance of letters by private and unauthorized +people was very widespread and the Solicitor of the Post Office agreed +with him.[776] + +[775] _Acc. & P._, 1834, xlix, 19, pp. 2-7. + +[776] _Rep. Com._, 1837-38, xx, pt. 1, pp. 17, 23. + +The reports of the Committee appointed to enquire into the condition of +the Post Office and to hear the opinions of officials and the public +concerning the introduction of Penny Postage disclosed an amazing state +of affairs. The opinion that evasion of postage was more or less general +had been held by the public for some time as well as by a few of the +Post Office officials[777] but, after the evidence upon the question was +published, there was no longer any doubt that the views of the public +were correct. Some difficulty had been anticipated that men who had +violated the law of the land would prefer not to confess their misdeeds +before a Parliamentary Committee. They were accordingly assured that any +evidence given would not be used against them, and the names of some +were expressed by letters only, when the reports were published. + +[777] _Ibid._, 1837-38, xx, questions 234, 2883, 4692, 10870-74; rep. 1, +app., pp. 427, 431, 433; rep. 2, p. 32. + +The means by which postage rates were evaded may be conveniently grouped +under two main heads, legal and illegal. The most common methods of +evading postage in whole or in part by legal means were:-- + +By the use of Parliamentary and Official franks.[778] +By enclosing invoices and other communications in goods.[779] +By the use of codes and signals expressed by sending +particular newspapers or, when something in the nature +of news or reports was to be communicated to many, an +advertisement or report was printed in a newspaper and +the newspapers were sent.[780] +By means of a letter or package sent to a mercantile house +with many letters on one sheet of paper for other people. +These were delivered by messengers. Money was sometimes +sent in the same way.[781] + +[778] _Rep. Com._, 1837-38, xx, qs. 3452, 3754-56, 4330-33, 4152, 6059, +6204, 6971, 8051, 9122-30, 10481, 5486-92-95, 4934-45, 5536, 3953, +6174-87. By this means Dr. Dionysius Lardner sent and received the +greater part of an extensive literary correspondence (qs. 5487-96). + +[779] _Ibid._, 1837-38, xx, qs. 3206-07, 3368-69, 3516-45, 3872, 4080, +4116-17, 4906, 5434, 6895, 7740, 7742-50, 7242-48. + +[780] _Ibid._, 1837-38, xx, qs. 3923, 6683, 7419-23. + +[781] _Ibid._, qs. 3212-13, 3924-28, 3377-81, 3879-82, 4504, 6928, +7867-82, 5613-18, 4074, 4873-90, 3520, 7327. + +Many factors in Ireland had circulars printed, which went free, as +newspapers. Their correspondents were distinguished by numbers and +opposite the numbers were printed the communications for each particular +person.[782] + +[782] _Ibid._, rep. 1, 9, p. 427. + +The majority of letters which paid no postage or only partial postage +were sent illegally, most of them by carriers. "A. B." said that in 1836 +his mercantile house sent 2068 letters by post and 5861 by other means, +principally by carriers, for one penny each.[783] "C. D." testified that +carriers called once or twice a day at his house and that they received +from 100 to 150 letters a week from him. Sometimes the carriers +delivered the letters on foot, sometimes they went by coach.[784] "E. +F.'s" letters were carried by newsmen, who distributed the local +newspaper.[785] "G. H.," a carrier from Scotland, said that there were +six others working with him and that they delivered about 700 letters +and parcels a day, for which they received 1_d._ or 2_d._ each.[786] +Letters were also illegally conveyed:-- + +By "free-packets," containing the patterns and correspondence of +merchants, which the coachmen carried free except for the booking fee of +4_d._[787] + +In warehousemen's bales and parcels.[788] + +In weavers' bags, especially near Glasgow. These were bags containing +work for the weavers, sent by and returned to the manufacturers.[789] + +By "family-boxes." Students at college in Glasgow and Edinburgh were +accustomed to receive boxes of provisions, etc., from home. The +neighbours made use of them to carry letters.[790] + +By coachmen, guards, travellers and private individuals.[791] + +By vans, railways, stage-coaches, steamboats, and every conceivable +means.[792] + +By writing in newspapers, sometimes with invisible ink or by enclosing +accounts or letters in them.[793] + +[783] _Ibid._, qs. 2265, 2279. + +[784] _Ibid._, 1837-38, xx, qs. 2697, 2699, 2703. + +[785] _Ibid._, qs. 4229. + +[786] _Ibid._, qs. 5125-26. In Walsall not 1-50 part of the letters sent +to and from neighbouring places went by post (qs. 5681-5789). + +[787] _Rep. Com._, 1837-38, xx, qs. 4195-96, 4205. + +[788] _Ibid._, qs. 3550, 4065, 4194, 6947. + +[789] _Ibid._, qs. 5257-59. + +[790] _Ibid._, qs. 5265. + +[791] _Ibid._, qs. 6716, 10371. + +[792] _Ibid._, qs. 6514. + +[793] _Ibid._, qs. 497, 3008, 5525-26, 5329, 5186-88, 5983, 8962, +10,021; app. to part 2, p. 34. + +About half of the letters and parcels sent to the seaports for +transmission to foreign parts by private ships did not go through the +Post Office,[794] and this practice was more or less winked at by the +authorities.[795] The letters from Liverpool for the United States +numbered 122,000 a year, but only 69,000 of these passed through the +Post Office.[796] + +[794] _Ibid._, pt. 1, pp. 195-99, 204-30, 346, 351, 431. + +[795] _Ibid._, pt. 1, pp. 195-99. + +[796] _Ibid._, pt. 1, p. 364. + +Since the Post Office has adopted the policy of charging low uniform +rates of postage there has been no concerted attempt to infringe upon +its monopoly. The dissatisfied do not now attempt to establish competing +posts nor to evade the payment of the legal rates. Any pressure which +may be brought to remedy real or supposed grievances takes the form of +an attempt to influence the department itself. It is true that a private +messenger service was established for the delivery of letters, but the +promoters of that service seem to have been unaware of the fact that +they were acting in violation of the law, and a satisfactory agreement +with the department was soon concluded. As a matter of fact, it is a +question whether succeeding governments have not been too subservient +in granting the demands of certain sections of the people, notably in +connection with the telegraph and telephone systems and the question of +guarantees. The position of a government which has abandoned the +principle that any extension of services or change in postal policy +shall be based upon present or anticipated financial success must +necessarily be a difficult one. + + + + +CHAPTER X + +THE TELEGRAPH SYSTEM AS A BRANCH OF THE POSTAL DEPARTMENT + + +Previous to the acquisition of the telegraphs by the state, the +different telegraphic companies carried on their business in comparative +harmony, a harmony which was occasionally disturbed by the entrance into +the field of competition of new claimants for the confidence of the +public. By far the most important of these companies in 1855 were the +Electric and International, and the British and Irish Magnetic, +controlling between them about 8500 miles of line and having 600 +stations open to the public. During the succeeding ten years, by the +growth of the old companies and an increase in the number of the new, +the number of miles of line increased to 16,000, of telegraph stations +to 2040. The number of public messages sent in 1855 was a little more +than one million, in 1860 nearly two millions, and in 1865 over four +millions and a half. The rates for a message of twenty words varied from +1_s._ for a distance under fifty miles, plus 1_s._ for each additional +fifty miles, to 4_s._ for a distance over 150 miles and 5_s._ to Dublin, +including free delivery within half a mile from the telegraph +office.[797] + +In 1860 a competing company, the London District Telegraph Company, +started operations in the Metropolitan District, and offered a low rate +of 6_d._ a message. In the following year a far more dangerous rival, +the United Kingdom Telegraph Company, announced that henceforth it would +charge a uniform shilling rate irrespective of distance. Four years +later both of these companies fell into line, forced according to some +by the unfair tactics of their competitors, according to others by the +utter impossibility of making both ends meet, while charging a uniform +rate irrespective of distance. The tariff agreed to in 1865 was as +follows:--[797] _Acc. & P._, 1867-68, xli, 202, pp. 43, 73, 74. + + For a distance not exceeding 100 miles 1_s._ + from 100 to 200 miles 1_s._ 6_d._ + beyond 200 miles 2_s._ + Between Great Britain and Ireland from 3_s._ to 6_s._ + +In some cases these rates applied only to wires of a single company, +and, where a message was transmitted over the wires of two or more +companies, an additional charge was made. Special rates were offered for +press messages, the news being supplied by the agency of the +intelligence department of the telegraph companies.[798] + +[798] _Acc. & P._, 1867-68, xli, 202, pp. 87-88, 126; _Rep. Com._, +1867-68, xi, 435, pp. 31, 68. + +The earliest proposal for government ownership of the telegraphs seems +to have originated with Thomas Allan, the same Allan who was later +instrumental in establishing the United Kingdom Telegraph Company. In +1854 he submitted arguments to the government through Sir Rowland Hill +in favour of the change, arguments which met with the approval of Lord +Stanley, the President of the Board of Trade, and Mr. Ricardo, formerly +Chairman of the International Electric Telegraph Company, and ex-member +for Stoke. Two years later Mr. Barnes, an official in the Post Office +Department, submitted to my Lords a plan "for the establishment in +connection with the Post Office of a comprehensive scheme of electric +telegraphs throughout the kingdom." In 1866, Lord Stanley, as +Postmaster-General, in a letter to the Lords of the Treasury called +their attention to the fact that the question of the propriety of the +assumption by the government of the telegraphic systems of the Kingdom +had been revived in the previous year by the Edinburgh Chamber of +Commerce, and still more recently the proposition had been embodied in a +petition from the Association of Chambers of Commerce of the United +Kingdom. As he himself had for many years been in favour of such a +change and found his opinion shared by more than one important body of +public men, he directed Mr. Scudamore[799] to report whether, in his +opinion, the telegraphs could be successfully operated by the Post +Office, whether such operation would result in any advantages to the +public over the present system by means of private companies, and +whether it would entail upon the department any large expenditure beyond +the purchase of existing rights.[800] + +[799] Receiver and Accountant-General of the Post-Office. + +[800] _Rep. Com._, 1867-68, xi, 435, p. 108; _Acc. & P._, 1867-68, xli, +202, p. 7. + +The report presented by Mr. Scudamore was strongly in favour of the +control of the telegraphs by the Post Office, and is especially +interesting in furnishing an abstract of the evils which the people +considered that the companies were inflicting upon them. The most +important of these evils, real or imaginary, were as follows:-- + +Exorbitant charges and a resulting failure to expand on the part of the +system. + +Delay and inaccuracy in the transmission of messages. + +Failure to serve many important towns and communities. + +Inconvenient situation, in many places, of the telegraph office, it +being often at a considerable distance from the business centre of the +town, especially when in the railway station. + +Inconveniently short periods that offices are open in many places. + +Wasteful competition between the companies. + +The strongest argument against the existing condition was rather a +result of competition than private ownership. In the more populous +centres the companies very often had their telegraph offices at a very +short distance from each other, being so situated as to compete for the +public patronage, while other and more outlying portions of the town +were quite unserved. The latter were thus made to suffer in order that +favoured portions might enjoy the somewhat doubtful boon of competition. +In order to show the failure to extend telegraphic facilities, Mr. +Scudamore compiled a list of towns in England and Wales having an +individual population of two thousand or more. In his own words "So far +as telegraphic accommodation is concerned, while thirty per cent of the +whole number of places named ... are well served, forty per cent are +indifferently served, twelve per cent badly served, and eighteen per +cent, having an aggregate population of more than half a million +persons, not served at all." By combining the telegraphic business with +the postal service, there seemed every reason to suppose that its +advantages could be more widely extended, the hours of attendance +increased, charges reduced, and facilities given for the transmission of +money orders by telegraph. + +Mr. Scudamore proposed to open telegraph offices in all places which had +a population of 2000 and upwards and which already had money-order +offices. All other post offices were empowered to receive telegrams, +which were to be sent by post to the nearest telegraph office for +transmission. The charge was to be made uniform at 1_s._ for twenty +words and 6_d._ for each additional ten words, or part thereof. He +judged that the whole of the property and rights of the telegraph +companies might be purchased for a sum within £2,400,000, and £100,000 +more would have to be spent in the extension of the service. His +estimate for gross annual product was £676,000; annual charge, £81,250; +working expenses, £456,000; surplus, £138,750.[801] Finally, his reply +to Lord Stanley's question was in effect that the telegraph system might +be beneficially worked by the Post Office, that there would be +advantages thus obtained over any system of private ownership, and that +the Post Office would have to bear no expense not amply covered by the +revenue.[802] In fairness to Mr. Scudamore, it should be remembered that +his original low estimate of the probable cost of the telegraph +companies did not include Reuter's and other important companies. In +addition, the strict monopoly conferred in 1869, with the necessary +accompaniment of the purchase of all inland telegraph companies, +entirely upset his original estimates. Finally, the decision to include +the public telegraph business of the railways and the excessive price +paid to the railway and telegraph companies should not be forgotten in +contrasting the estimated price with that eventually paid for the +acquisition of the telegraph systems in the United Kingdom.[803] Mr. +Grimston, the Chairman of the Electric and International Telegraph +Company, contended that the extension of telegraphic facilities to any +considerable number of small towns and villages would involve a loss to +the state by greatly increasing working expenses, that village +postmasters and postmistresses were totally unable to work the +telegraphs, and that consolidation could be effected more advantageously +by the companies themselves.[804] + +[801] In another place his estimate for gross revenue was £608,000; +annual charge £105,000 on a purchase price of £3,000,000 with expenses +for improvement; working expenses £425,000, and surplus £77,750 (_Acc. & +P._, 1867-68, xli, 202, pp. 145-47). + +[802] _Ibid._, pp. 7-39. + +[803] _Parl. Deb._, 3d ser., ccxxviii, col. 215; cxcii, coll. 747-751. + +[804] _Acc. & P._, 1867-68, xli, 202, p. 131. + +In 1868, the Postmaster-General was given authority by act of Parliament +to purchase the undertakings of the telegraph companies and also the +interests of the railways in the conveyance of public messages, together +with a perpetual way-leave for telegraphic purposes over the properties +of the railway companies. Any telegraph company, with the authority of +two thirds of the votes of its shareholders, was empowered to sell to +the Postmaster-General all or any portion of its undertaking. When the +Postmaster-General had acquired the property of any telegraph company, +he must also, upon the request of any other company, purchase its +undertaking, this privilege being extended also to the railways so far +as telegraphs operated by them for transmitting public messages were +concerned. The price paid for the Electric and International, the +British and Irish Magnetic, and the United Kingdom Telegraph Companies +was fixed at twenty years' purchase of their net profits for the year +ending 30th June, 1868. In the case of the United Kingdom Telegraph +Company additional sums were to be paid for the Hughes type-printing +patent, for the estimated aggregate value of its ordinary share capital +as determined by its highest quotation on any day between the 1st and +25th days of June, 1868, for compensation for the loss of prospective +profits on its ordinary shares, and any sum that might be determined as +loss for its attempt to establish a uniform shilling rate. Every officer +or clerk of the companies who had been in receipt of a salary for not +less than five years or of remuneration amounting to not less than £50 a +year for not less than seven years, if he received no offer from the +Postmaster-General of an appointment in the telegraphic department of +the Post Office equal in the opinion of an arbitrator to his former +position, was entitled to receive an annuity equal to two thirds of his +annual emolument if he had been in service twenty years, such annuity to +be diminished by one twentieth for every year less than twenty. Those +entering the service of the Postmaster-General were entitled to count +their past continuous years of service with the companies as years in +the service of the Crown. + +For the most part all the telegraph apparatus belonging to the railway +companies and all belonging to the telegraph companies on the railway +lines necessary for the private business of the railways were handed +over to the railways by the Postmaster-General free of charge. He was +given the use, from telegraph stations not on the railway lines, of all +the wires of the telegraph companies on the lines employed exclusively +in the public telegraph business. The railways might affix wires to the +posts of the Postmaster-General on the line, and in like manner he might +require the railways to affix wires to their own posts for the use of +the Post Office or erect new posts and wires. Finally the railways were +required to act as agents of the Postmaster-General, if required, for +receiving and transmitting messages. The railways as a rule succeeded in +driving a very sharp bargain with the Government for the purchase of +their interests in the public telegraph business. The price paid was +twenty years' purchase of the net receipts from public telegrams +reckoned for the year ending 30th June, 1868, plus twenty times the +increase in net receipts for the three preceding years or for such +shorter period as the business of transmitting public telegrams had been +undertaken. In addition, compensation was made for the rents, etc., +payable to the railways by the telegraph companies, for the unexpired +period of their respective agreements, for the right of way obtained by +the Postmaster-General over the lands of the railways, for the loss of +power on the part of the railways to grant way-leaves, for the value of +the railways' reversionary interests (if any) in the transmission of +public messages on the expiration of the agreements with the telegraph +companies, and for any loss the railways might suffer in working their +telegraph business as a separate concern. Finally the Postmaster-General +was required to convey free of charge to any part of the United Kingdom +all messages of the railways relating to their own private +business.[805] The act empowering the Postmaster-General to purchase the +undertakings of the telegraph companies did not confer upon the Post +Office a monopoly in the transmission of telegrams, Mr. Scudamore +himself declaring that such a monopoly was neither desirable nor did the +Post Office wish it. The second act, however, declared that no +telegraphic messages, except those sent from or to any place outside of +the United Kingdom, should be transmitted by any telegraphic company for +gain unless the company was in existence on the 22d of June, 1869, and +was not for the time being acquired by the Postmaster-General, who +should be required to purchase its undertaking upon demand.[806] + +[805] 31 and 32 Vict., c. 110. + +[806] 32 and 33 Vict., c. 75. + +Mr. Scudamore's original estimate of the cost of acquisition of the +telegraphs fell far short of the final expenditure; although it must be +remembered that, when he proposed £2,500,000 as sufficient, he did not +anticipate items of expense which later vastly increased the cost. +Before the committee which reported in 1868 he advanced his original +estimate to £6,000,000, and in the following year to £6,750,000, of +which he considered about two thirds to be of the nature of good-will. +The telegraph companies when first approached asked for twenty-five +years' purchase of their prospective profits, and the Government offered +to buy at the highest price realized on the Stock Exchange up to the +25th of May, with an addition of from 10 to 15 per cent for compulsory +sale. The cost of the leading companies, based upon twenty years' +purchase of the net profits for the year ending 30th June, 1868, was as +follows: For the Electric and International, £2,933,826; for the British +and Irish Magnetic, £1,243,536; for Reuter's, £726,000; for the United +Kingdom Electric, £562,000; and for the Universal Private, £184,421,--a +total of £5,650,047. Separate bargains followed with many smaller +companies. The acts of 1868 and 1869 granted £8,000,000, for the purpose +of purchasing the undertakings of the companies and the interests of the +railways; £6,640,000 were spent in purchases, and £1,560,000 in renewals +and extensions between 1868 and 1872.[807] The claims for compensation +on the part of some of the railways were very excessive. The Lancashire +and Yorkshire Railway asked for £1,129,814, with interest, and £1 per +wire per mile a year for all wires erected upon its right of way by or +for the Post Office. By the terms of the award they obtained £169,197 +and 1_s._ per mile per wire. The Great Eastern Railway presented a claim +for £412,608, with interest, and £1 per mile per wire. Their claim was +reduced to £73,315 and an annual payment of £200 for way-leave. In all, +the capital sum of £10,880,571 was expended by the Government, +necessitating an annual interest payment of £326,417, charged, not on +the Post Office vote, but on the Consolidated Fund.[808] + +[807] _Rep. Com._, 1867-68, xi, 435, p. 162; 1868-69, vi, 348, p. 11; +1867-68, xi, 435, p. 217; 1873, xxxix, 316, pp. 762-64; 1873, vii, 290, +p. 95; _Parl. Deb._, 3d ser., cxcii, coll. 747-751, 1303-04. According +to figures furnished by Mr. Fowler in a speech in the House of Commons +in 1868, the value of the capital and the debentures of the Electric and +International at that time was £1,240,000 while the capital value of the +British and Irish Magnetic was £534,000; of Reuter's Company, £266,000; +of the United Kingdom Electric, £350,000, and of the London and +Provincial, £65,000 (_Parl. Deb._ 3d ser., cxcv, coll. 747-751). + +[808] _Rep. P. G._, 1876, p. 10; _ibid._, 1883, p. 9. + +When the Post Office acquired the telegraphs, a uniform rate was +introduced of 1_s._ for twenty words or part thereof and 3_d._ for each +additional five words or part thereof, exclusive of the names and +addresses of sender and receiver, which were transmitted free. Delivery +was free within a radius of one mile from the terminal telegraphic +office, or within the limit of the town postal delivery when it +contained a head office and the postal delivery extended more than a +mile from it. Beyond the above limits the charge did not exceed 6_d._ +per double mile or part thereof. When special delivery was not required +beyond the free delivery, the message was sent free by the next ordinary +postal delivery. The newspapers succeeded in having incorporated within +the act a clause prohibiting a higher charge for press messages than +1_s._ for every one hundred words transmitted between 6 P.M. and 9 A.M., +or 1_s._ for every seventy-five words between 9 A.M. and 6 P.M. when +sent to a single address, the charge for the transmission of the same +telegram to each additional address to be not greater than 2_d._[809] On +the day of transfer the Post Office was able to open about a thousand +postal telegraph offices and nineteen hundred offices at railway +stations where the railways dealt with the public messages as agents of +the Postmaster-General. On the 31st of March, 1872, the system comprised +more than five thousand offices (including nineteen hundred at railway +stations), twenty-two thousand miles of line, with an aggregate of +eighty-three thousand miles of wire, and more than six thousand +instruments. A decided increase in the number of messages was the +result. During the first year after the transfer there were nearly ten +millions of messages, the second year twelve millions, and the third +year fifteen millions, or more than double the number transmitted in +1869. The period from 1872 to the adoption of a sixpenny tariff in 1885 +was one of steady progress. The number of new offices opened was not +numerous, the increase having been only one thousand, but the +improvements in existing connections were marked and the number of +messages transmitted had increased to thirty-three millions. The new +tariff rate was 6_d._ for twelve words or less, with a halfpenny for +each additional word, but the old system of free addresses was +abolished. Under the old tariff each figure was charged at a single +rate. Under the new schedule five figures were counted as one word. A +large proportion of telegrams were brought within the minimum sixpenny +rate, while the average charge, which had been 1_s._ 1_d._ in 1885, was +reduced to 8_d._ in 1886. The number of messages increased from +thirty-three millions in 1884-85 to fifty millions in 1886-87. Four +cables between France and England and one between France and the Jersey +Isles were purchased by the governments of the two countries, two by the +Belgian and English governments, two between Holland and England, and +one between Germany and England, by the governments of the countries +interested.[810] + +[809] 31 and 32 Vict., c. 110. + +Following the adoption of a uniform sixpenny rate the department has +granted other facilities to the public, which, though popular enough, +have undoubtedly tended to place the working of the telegraphs upon a +less secure financial basis. In 1889, the issue of telegraphic money +orders was begun as an experiment, and in the same year was extended to +all head and branch post offices in the United Kingdom.[811] Two years +later the Post Office ceased to require the repayment of the capital +outlay on telegraph extensions made under guarantee, and the rural +sanitary authorities were empowered to defray the cost of such +extensions in places within their districts.[812] For the six preceding +years the average annual number of guaranteed telegraph offices was +seventy-seven, and during the next five years the average annual number +increased to 167. As part of the Jubilee concessions in 1897, the +guarantors were required to pay only one half of the deficiency, with +the result that during the following two years the average annual number +of guaranteed telegraphic offices increased to 290. At the same time the +free delivery limit was extended to three miles and a reduction was +granted in the porterage charges beyond that distance. Finally, in 1905, +the guarantee was reduced to one third of the loss incurred, the +delivery charge being fixed at 3_d._ a mile for the distance beyond the +three-mile limit, instead of the distance from the office of +delivery.[813] + +[810] _Rep. P. G._, 1895, app., pp. 33-35; 1889, p. 13. + +[811] _Ibid._, 1890, p. 7. + +[812] _Rep. P. G._, 1892, p. 20; 54 and 55 Vict., c. 46. + +[813] _Rep. P. G._, 1900, p. 15; 1898, p. 19; 1906, pp. 1, 15. + +In 1896, the main routes from London having become crowded, especially +by the telephone trunk lines, the principle of underground lines between +the most important centres was sanctioned by the department. London and +Birmingham were first connected, and the line was ultimately extended +through Stafford to Warrington, where it joined existing underground +wires between Manchester, Liverpool, and Chester. By 1905, underground +wires were laid as far north as Glasgow through Carlisle, to be extended +later to Edinburgh. At Manchester a junction was effected with a line +passing through Bradford to Leeds. During the same year underground +lines were completed from London to Chatham and from London westward +toward Bristol, with the intention of extending it into Cornwall in +order to secure communication with the Atlantic and Mediterranean +cables.[814] + +[814] _Ibid._, 1900, p. 15; 1902, p. 13; 1905, app., p. 99; 1906, p. 16. + +In 1875, England joined the other important European powers in a +telegraphic agreement which went into effect in January of the following +year. By this agreement each of the contracting parties agreed to devote +special wires to international service, government telegrams to have +precedence in transmission and to be forwarded in code if desired. +Private telegrams could also be sent in code between those countries +which allowed them, and the signatory powers agreed to pass them in +transit, but each country reserved to itself the privilege of stopping +any private telegram. For the purpose of making charges, any country +might be divided into not more than two zones, and each of the signatory +powers owed to the others an account of charges collected.[815] So far +as foreign telegrams were concerned, the use of manufactured expressions +in place of real words gave rise to considerable trouble in view of the +fact that such combinations were difficult to transmit. In 1879, the +languages which might be used for code words were reduced by common +consent to English, French, German, Italian, Spanish, Portuguese, Dutch, +and Latin. At the same time the use of proper names as code words was +prohibited. This did not remove the evil, as the roots of words in one +language with terminations in another were used. An official vocabulary +was compiled by the International Telegraph Bureau, to become obligatory +in 1898, but its publication in 1894 aroused considerable opposition, as +many of the words were dangerously alike, and in 1896 the decision of +the Paris Conference of 1890, by which the official vocabulary was to +become compulsory for European telegrams in 1898, was rescinded. It was +also decided that an enlarged vocabulary should be published by the +International Bureau, but, owing to the action of the English delegates, +the official vocabulary was not made compulsory at the meeting of the +International Telegraph Conference in 1903, although artificial words +were allowed if pronounceable in accordance with the usages of any one +of the eight languages from which the ordinary code words might be +selected. It was also decided to admit letter cipher at the rate of five +letters to a word, and several countries agreed to lower their charges +for the transmission of extra-European telegrams, the English delegates +contending that the rates for such telegrams should be made the same as +the rates for European telegrams.[816] In 1878, negotiations with the +German and Netherland Telegraph Administrations resulted in a charge of +4_d._ a word being fixed as the rate between the United Kingdom and +Germany and 3_d._ a word between the United Kingdom and the Netherlands. + +[815] _Acc. & P._, 1876, lxxxiv [c. 1418], pp. 116-119. + +[816] _Rep. P. G._, 1904, pp. 15-22. + +In 1885, the following reductions in rates were announced:-- + + To Russia from 9_d._ to 6-1/2_d._ a word. + Spain 6_d._ 4-1/2_d._ + Italy 5_d._ 4-1/2_d._ + India 4_s._7_d._ 4_s._ + +to be followed six years later by still greater reductions:-- + + To Austria from 4-1/2_d._ to 3_d._ a word. + Hungary 4-1/2_d._ 3_d._ + Italy 4-1/2_d._ 3_d._ + Russia 6-1/2_d._ 5-1/2_d._ + Portugal 5-1/2_d._ 4-1/2_d._ + Sweden 5_d._ 4_d._ + Spain 4-1/2_d._ 4_d._ + Canary Isles 1_s._7-1/2_d._ 10_d._ + +the minimum charge for a telegram being 10_d._ in all cases. The +transmission of foreign money orders by telegraph was inaugurated in +1898 by the opening of an exchange with Germany and its extension +shortly afterward to the other important European countries.[817] + +[817] _Rep. P. G._, 1897, pp. 40-42; 1879, p. 21; 1886, p. 10; 1892, p. +19; 1900, p. 10. + +In 1892, an attempt was made, curiously suggestive of Marconi's +discovery, to transmit telegraph messages without a direct wire. The +experiment was conducted between the island of Flat Holm in the Bristol +Channel and the mainland, a distance of three miles. A wire was erected +on the mainland parallel with one on the island, and, by means of strong +vibratory currents sent through the former, signals were transmitted and +messages exchanged. Three years later and before the practical value of +the Flat Holm experiment had been substantiated, Mr. Marconi arrived in +England to submit his plans to the Post Office. A private wire from +Poldhu to Falmouth was provided for him on the usual rental terms, and +it was announced that the Post Office would act as his agent for +collecting messages to be transmitted by wireless telegraphy when he had +proved the feasibility of his project. At the international congress on +wireless telegraphy held in Berlin in 1903 it was recommended that shore +stations equipped with wireless apparatus should be bound to exchange +messages with ships at sea without regard to the system of wireless +telegraphy employed by the latter, that the rate of charge for the shore +station should be subject to the approval of the state where it was +situated, the rate of the ship to the approval of the state whose flag +it carried, and that the working of wireless stations should be +regulated so as to interfere with other stations as little as possible. +In order to enable the Government to carry out the decision of the +congress and to place wireless telegraphy under its control for +strategic purposes, an act was passed in 1904 making it illegal to +instal or work wireless telegraphic apparatus in the United Kingdom or +on board a British ship in territorial waters without the licence of the +Postmaster-General. The act was to be operative for two years only, but +before its expiration, was extended until the 31st of December, 1909, +before which it might again be renewed. Arrangements were also made for +the collection and delivery of the telegrams of the Marconi Company by +the post offices throughout the country. The company charges its usual +rate, 6_d._. a word, and the Post Office in addition charges the +ordinary inland rate.[818] The international agreement providing for +compulsory communication between shore stations and ships was signed in +1906 in spite of the protests of the Marconi Company, Sir Edward +Sassoon, and others, who contended that the agreement was unfair to the +company and a mistake on the part of the Kingdom, "which was thus giving +up advantages obtained by the possession of the best system of wireless +telegraphy in the world." The majority of the countries represented were +also in favour of compulsory communication between ship and ship, but +this was successfully negatived by Great Britain and Japan. In 1908, Mr. +Buxton was able to announce in the House that the relations between the +Post Office and the Marconi Company "are now of the most friendly kind," +and that they have accepted and adopted the principle of +intercommunication. In the preceding year two experimental stations were +started by the Government which will enable the department to extend +its operations quite independently of the companies.[819] + +[818] _Rep. P. G._, 1893, pp. 19-22; 1903, pp. 15-18; 1905, pp. 16-18; 4 +Edw. VII, c. 24; 6 Edw. VII, c. 13. + +[819] _Parl. Deb._, 4th ser., clxxix, coll. 841-858; cxcii, col. 1116, +London _Times_, 1906, Nov. 5, p. 5; 1907, July 1, p. 14. + +From a financial point of view, government ownership and control of the +telegraphs in the United Kingdom has not been a success. In addition, +the Telegraph Department, for some time previous to 1874, had been +drawing upon the balance in the possession of the Post Office, a balance +which was required to be invested for other purposes and whose +expenditure for the use of the telegraphs had not been authorized by +Parliament. Mr. Goldsmid, in introducing a motion for the appointment of +a committee of enquiry, alluded to this error on the part of the +department, to the excessive price paid for the telegraphs, and +complained that the telegraph system was not being operated on a paying +basis. His motion was withdrawn, but an agreement was reached with the +department by the appointment of a committee, with Mr. Playfair as +chairman, "to inquire into the organization and financial system of the +Telegraph Department of the Post Office." The committee in their report +commented unfavourably upon the unnecessarily large force, the cumbrous +organization, and the far from economical management of some of the +divisions of the department, advised that an attempt be made to remedy +these faults, and that press messages be charged a minimum rate of 1_s._ +each, and not at the rate of 1_s._ for each seventy-five or one hundred +words obtained by adding together separate messages requiring separate +transmission. This suggestion with reference to press messages was +adopted, promises were made at the same time to diminish the force, and +a scheme was submitted for the reorganization of the department.[820] + +[820] _Parl. Deb._, 3d ser., ccxxviii, coll. 172 f.; _Rep. Com._, 1876, +xiii, 357, pp. i-xiii, 147, 240. + +The number of telegrams for the year ending 31st March, 1887, the year +following the sixpenny reduction, was 50,243,639; for the year 1891-92 +it had increased to 69,685,480. In 1896-97 the number was 79,423,556 and +in 1899-1900 the total was 90,415,123. During the next three years there +was a reduction, followed in 1902-03 by an increase to 92,471,000. +Since 1902-03 the number has again fallen off, the figures for 1906-07 +being only 89,493,000.[821] It is rather difficult to make definite +statements about the telegraph finances on account of the lack of +uniformity in presenting the accounts since 1870. Under gross revenue is +now included the value of services done for other departments, but this +was not always the rule. The expenditure of other departments for the +telegraph service may or may not be included under ordinary telegraphic +expenditure. Net revenue may also be increased or a deficit changed to a +surplus by deducting the expenditure for sites, buildings, and +extensions from ordinary expenditure. Finally, the interest on capital +is not charged on the Telegraph Vote, and so is not included under +expenditure. In 1871, 1880, and 1881 there seem to have been surpluses +over all expenditure, including interest on capital. Excluding interest +from expenditure, the net revenue decreased from £303,457 in 1871 to +£59,732 in 1875, when the pensions to officials of the telegraph +companies were first charged to the Telegraph Vote. With an increased +net revenue of £245,116 in 1876, following the report of the committee +of investigation, the department did very well from a financial point of +view, until 1884, when the net revenue fell to £51,255, and in 1887 +there was a deficit of £84,078, due to the fact that expenses were +increasing at a greater rate than receipts. The sixpenny reduction seems +to have made but little change in the financial situation, the gross +revenue increasing from £1,755,118 in 1884-85 to £1,855,686 in 1886-87, +the expenditure for the same years being £1,731,040 and £1,939,734. The +net revenue began to recover in 1888-89, and averaged about £150,000 a +year during the four years ending March 31, 1892. During the fiscal +years 1894 and 1895 there were deficits, then a slight recovery from +1896 to 1900 and a succession of deficits from 1901 to 1905. The +interest on stock, £214,500 in 1870, increased steadily to £326,417 in +1880, at which figure it remained until 1889, when a reduction in the +rate of interest from 3 per cent to 2-3/4 per cent lowered the amount +payable to £299,216. In 1903, there was a further reduction to +£278,483.[822] + +[821] _Rep. P. G._, 1891, app., p. 40; 1901, app., p. 57; 1907, app., p. +61. + +[822] _Ibid._, 1881, app., p. 53; 1891, app., p. 66; 1901, app., p. 83; +1905, app., p. 99. + +The financial loss experienced by the Government in operating the +telegraphs has naturally produced considerable interest in this phase of +the question. Mr. Blackwood, the Financial Secretary of the Post Office, +in his evidence before the committee, considered that the financial +control and oversight of the department were inadequate and that the +department was over-manned. On the other hand, he was of the opinion +that many expenses were met by revenue expenditure which should have +been charged to capital. Mr. Baines, the Surveyor-General, among other +causes of the financial deficiency, called attention to the shorter +hours and longer annual leave of the telegraph staff as government +employees, the higher standard of efficiency established by the Post +Office, and the prevalence of much overtime work as a result of the +maintenance by the companies, just before the transfer, of an inadequate +staff.[823] The fact that the yearly increase in messages continued to +diminish after 1879 is commented on by the Postmaster-General in 1884 as +due to the stagnation of trade, the competition of the telephones, and +the rapidity of the letter post. Mr. Raikes called attention to the +large number of telegrams on the business of the railways which were +transmitted for nothing. By an agreement with several of the railway +companies to send, as a right instead of a privilege, a fixed number of +messages containing a fixed number of words, this increase was checked. +In 1892, the following comment is found in the Postmaster-General's +Report: "This stagnation of business, viewed in connection with an +increased cost in working expenses, is a matter for serious +consideration, and necessarily directs attention to that part of the +business which is conducted at a loss," the reference being to the +increased number of press messages transmitted at a nominal charge. When +in 1868 the newspaper proprietors succeeded in obtaining the insertion +in the Telegraph Act of special rates for the transmission of press +messages, no condition was laid down that copies, in order that they +might be sent at the very low charges there enumerated, should be +transmitted to the same place as the original telegram. The newspapers +combined to receive messages from news associations in identical terms, +and, by dividing the cost, obtained a rate equal on the average to 4-1/2 +_d._ per hundred words. Under the arrangements adopted for the +transmission of news messages the number of words so sent did not +necessitate a corresponding amount of work, but it is an interesting +fact that in 1895 the number of words dealt with for the press formed +two fifths of the total number. In that year the loss on these telegrams +was estimated at about £300,000 a year. The high price paid as purchase +money is another of the factors to be considered, only in so far, +however, as the Telegraphic Department has failed to meet the interest +on the debt so incurred. The telegraph companies were very liberally +treated, and in certain cases excessive prices were undoubtedly paid. +Probably the most important reason for the financial failure of the +telegraphs under government ownership and control has been the influence +of forces productive of good in themselves, but quite different from +those which had previously been dominant when the telegraphs were under +private control and during the early years of government management. The +effect of these forces is clearly seen in the reduction of the tariff in +1885, the extension of facilities under inadequate guarantee, and the +increase in the pay of the staff.[824] Mr. Buxton is of the opinion that +the worst feature of the postal business is the telegraph service. "It +has never been profitable and now the telephone system has so largely +taken its place that the revenue is falling off," while the "Economist" +considers that "it is obvious that both in the Savings Bank and the +Telegraph branches reforms are urgently needed in order to place matters +on a sound financial basis."[825] + +[823] Between 1870, when the telegraphs were taken over by the state, +and 1873, the number of employees was more than doubled, although, +during the same period, the number of messages--not including news +messages--increased only from ten to fifteen millions (_Rep. Com._, +1876, xiii, 357, pp. 18, 90, 232, 240). + +[824] _Rep. P. G._, 1895, pp. 37-38. + +The proportion of the amount spent on salaries and wages which in 1881, +before Mr. Fawcett's revision, stood at about 55 per cent, increased, as +a result of that revision and Mr. Raikes' revision in 1890, to about 65 +per cent. + +[825] _Parl. Deb._, 4th ser., clix, col. 389; _Economist_, Sept. 21, +1907, p. 1576. + + + + +CHAPTER XI + +THE POST OFFICE AND THE TELEPHONE COMPANIES + + +The first telephone brought to England by Lord Kelvin in 1876 was a very +crude instrument, useful only for experimental purposes and of interest +only as a forecast of later development. In the following year two Post +Office officials introduced some machines which had been presented to +them by the American inventor Bell, and although not very efficient, +they were of some commercial use. The Post Office made arrangements with +the agents of the inventor for the purpose of supplying its private wire +renters with these machines if they should wish to make use of them. +With the invention of the microphone in 1878, and its application to the +telephone, a thoroughly practical method of transmitting speech was at +last introduced. In the same year a company was formed to acquire and +work the Bell patents. They endeavoured to come to an agreement with the +Post Office by which the latter might obtain telephones at cost price, +and would in return facilitate the operations of the company, but the +negotiations came to nothing. There was then no suggestion of an +exchange system, and the company proposed merely to supply telephones +and wires to private individuals. In 1879, the Edison Telephone Company +of London was established, an announcement having been made in the +autumn of 1878 that it was proposed to establish exchanges. An attempt +was made to amend the Telegraph Act so as to confer specifically upon +the department monopolistic control over telephonic communication, but +the amendment failed to receive the sanction of the House of Commons. +The Postmaster-General then filed information against both companies, on +the ground that the transmission of messages by telephone was an +infringement of the telegraphic monopoly. In the summer of 1880 the two +companies amalgamated as the United Telephone Company, and in December +judgment was given by the High Court of Justice in favour of the Post +Office.[826] + +[826] _Rep. Com._, 1895, xiii, 350, pp. 1-6; _Law Reports, Queen's Bench +Division_, vi, p. 244; _Parl. Deb._, 3d ser., cclxxxviii, col. 1053. + +In April of 1881 the Postmaster-General granted the United Telephone +Company a licence to establish and operate a telephone system within a +five-mile radius in London, the central point to be chosen by the +company. On the other hand the company agreed to pay a royalty of 10 per +cent of its gross receipts and to accept the judgment of the High Court. +Licences were also granted to establish telephone exchanges in the +provincial towns within a radius of one or two miles, all the licences +to expire in 1911. The Postmaster-General reserved the right to +establish exchanges for the department and the option of purchasing the +works of the licencees in 1890 or at seven-year intervals from 1890, six +months' notice having first been given. The policy of the United +Telephone Company was to confine its own operations to London and to +allow patent apparatus to be used in other parts of the country by +subsidiary companies, leaving them free to negotiate with the Post +Office for provincial licences. + +The telephone policy of the Post Office from 1880 to 1884 consisted in +the granting of licences to the companies in restricted areas, so that +the telegraph revenue might suffer from competition as little as +possible, and the establishment by the department of exchanges in +certain places not as a rule served by the companies. Owing to the +refusal of the Government to solicit business, their exchanges did not +prove a success. The department itself would probably have preferred to +take over the whole telephone business in 1880, but this policy met with +no favour from the Lords of the Treasury, who were of the opinion "that +the state, as regards all functions which are not by their nature +exclusively its own, should at most be ready to supplement, not +endeavour to supersede private enterprise, and that a rough but not +inaccurate test of the legitimacy of its procedure is not to act in +anticipation of possible demands." The operation by the government of +the unimportant exchanges possessed by them was sanctioned by their +Lordships, "on the understanding that its object is by the establishment +of a telephonic system to a limited extent by the Post Office to enable +your department to negotiate with the telephone companies in a +satisfactory manner for licences." The London and Globe Company was +given a licence in 1882 to establish exchanges in London, but they were +entirely dependent upon the United Company for instruments, so that +there was no real competition. The department proceeded to issue +licences for the establishment of competing systems in places where +there were already government exchanges. From 1880 to 1884 the +Postmaster-General granted twenty-three licences, and some twenty-seven +towns, with 1141 subscribers, were served by the department. The policy +of the Post Office during these years, as thus outlined, was far from +satisfactory to the public, due largely to the desire to protect the +telegraph revenue, and the failure to appreciate the possibilities which +the new system of communication was capable of offering. The companies, +restricted as they were to local areas, could not offer any means for +communication between these areas, since special permission had to be +obtained for the erection of trunk lines. The Government offered to +provide these on condition that a direct payment of £10 a mile per +double wire and one half the revenue over that sum should be paid for +their use, but this offer the companies naturally refused to consider. +The Lancashire and Cheshire Company proposed to fix their trunk-line +charges so low as to pay expenses only, but they were informed by the +Government that they must charge 10s. a mile annual rental. In addition, +they were not allowed to charge less than 1_s._ at their call offices, +the then prevailing fee for a telegram. A few trunk lines, it is true, +were constructed by the Government and rented to the companies, but they +were quite insufficient to satisfy the demand. In London, the United +Telephone Company was not allowed to extend its system beyond the +five-mile radius without special permission and the payment of an +increased royalty. In addition, the companies had no way-leave powers, +but had to depend upon the good will of householders to fly their wires +from house-top to house-top, with the result that in London there was a +ridiculously large number of exchanges. Finally the companies were +restricted to connecting subscribers with the exchange or their place of +business, and, although messages could be telephoned for further +transmission by the telegraphs, there was not that close connection +between the telephonic and telegraphic systems which might eventually +have led to the mutual advantage of each. Moreover, in 1882, the +Government announced that they would grant no more licences unless the +subsidiary companies agreed to sell to them all the instruments they +wished, the intention probably being for the Government to supply +instruments to companies which would establish exchanges in real +competition with the United Telephone Company. Since the subsidiary +companies could not supply these instruments without the consent of the +parent company, the only result was still further to restrict telephonic +development.[827] + +[827] _Rep. P. G._, 1883, p. 6; 1885, p. 9; 1886, p. 10; _Rep. Com._, +1898, xii, 383, pp. 3, 57; 1895, xiii, 350, pp. 1-6; _Parl. Deb._, 3d +ser., cclxxii, col. 712; cclxxxviii, coll. 1056-57, 1060-61; cclxxxix, +coll. 82. + +In 1884, the prevailing public discontent in connection with the +Government's treatment of the situation manifested itself in the press +and in the House of Commons. The Post Office was accused of practising a +policy of strangulation toward the companies, and the +Postmaster-General, Mr. Fawcett, acknowledged that there was some truth +in the charge. He advised the Treasury that the companies' areas of +operation should be unlimited, and that their operations should be +confined to the transmission of oral communications. The restricted +licences were withdrawn and new, unrestricted licences granted, +terminable in 1911 with the same qualifications with reference to +royalties and government purchase that were inserted in the old +licences. Nominally the result produced free competition, but actually +competition was impossible until the expiration of the fundamental +patents in 1892. The year before their expiration, the companies +succeeded in getting control of the situation by an amalgamation of the +United Telephone Company with its licencees under the name of the +National Telephone Company. Mr. Dickinson, Deputy Chairman of the London +County Council, stated that the nominal capital of the United Telephone +Company, £900,000 (with an actual capital expenditure in 1887 within the +Metropolitan District of £228,180) was taken over by the National +Telephone Company at a cost of £1,484,375, and the Duke of Marlborough +said in the House of Lords that of the £3,250,000 capital of the new +company over £2,000,000 was "water." Mr. Raikes, the Postmaster-General, +who was in favour of competition, wrote to the United Company, +disapproving of the whole transaction. With the expiration of the +patent rights, the New Telephone Company was resuscitated, with the Duke +of Marlborough as chairman, an agreement having been concluded with the +Telephone Subscribers' Protective Association for a twelve guineas' +service in London, but it in turn was absorbed by the National Company, +much to the disgust of the members of the Association. So far as +way-leave rights were concerned the position of the companies remained +in a very unsatisfactory condition. A committee of the House of Commons +advised that certain way-leave rights should be granted, but nothing was +accomplished, although a bill was introduced in the House of Commons in +1885 to enable the companies to erect posts without the consent of the +road authorities.[828] + +[828] _Rep. Com._, 1884-85, xii, p. 63; 1892, xvii, 278, sess. 1, pp. +3-5; 1895, xiii, 350, pp. 1-6, 92, 188-93; 1898, xii, 383, p. 12; _Parl. +Deb._, 3d ser., cclxxxviii, coll. 1052 f.; cccxxxvi, col. 1809; +cccxxxvii, col. 1435; cccxlvi, col. 908. + +Mr. Forbes, the chairman of the National Telephone Company, said to the +Committee of 1892: "I am prepared to concede that the telephone company +which conducts about 93 or 94 per cent of the whole telephonic business +of the country conducts a great deal of it monstrously badly, but it is +not their fault, it is the fault of Parliament"; and again in referring +to the lack of way-leave power: "Take London for instance; London is +very badly served, but why is it very badly served? Because everything +depends upon the caprice of the individual." As a result of the +complaints that the telephone system was giving an inadequate service +because of the high rates on an inflated capital, because the utility of +the telephones was impaired in that they could not be used in connection +with the telegraph and postal services, and because of the lack of +powers to erect poles in the streets or to lay underground wires or to +connect their exchanges by trunk lines, the Government announced a +change of policy in 1892.[829] This change was set forth in a Treasury +Minute of the 23d of May, 1892, and in two memoranda of agreement of the +same year to which the National and the New Companies were respectively +parties, the arrangements being sanctioned by Parliament in the +Telegraph acts of 1892 and 1896. So far as it affected the National +Company the arrangement was embodied in detail in an agreement dated the +25th of March, 1896, no similar agreement being made with the New +Company because that company went into liquidation in 1892, and in 1896 +surrendered its licence. By the agreement of 1896 the National Telephone +Company surrendered its previous licence except for certain definite +districts called "Exchange Areas," a large number of which were +specified in the agreement. These areas were as a rule coterminous with +the urban districts, but comprised in addition certain areas made up of +two or more urban districts together with the intervening country. Power +was reserved to the Postmaster-General to specify other exchange areas, +the understanding being, both with regard to areas already specified and +those to be specified, that industrial areas of wide extent should be +recognized in cases where there were no considerable towns forming +centres of business, that neighbouring towns intimately connected in +their business relations should be placed in the same area, and that +small towns and villages should also be so grouped when each by itself +would not pay. Outside these areas the Postmaster-General alone was +entitled to carry on telephone business, no more licences being granted +for the whole Kingdom, and for any particular town only with the +approval of the corporation or municipal authority. Call offices for the +use of the public were to be opened at the company's exchanges and +connected with the post offices in order that exchange subscribers might +telephone over the trunk lines to exchange subscribers in other towns. +Where intercommunication took place between the systems of the company +and the Post Office, a terminal charge on the part of the receiving +system was allowed. Telephonic messages could be sent to the post +offices for transmission as telegrams and delivery as such or for +delivery as letters. Express messengers could also be sent for by +telephone, and telegrams received at the post offices might be +transmitted by telephone. + +[829] Only five years before, Mr. Raikes, the Postmaster-General, said +in the House of Commons: "I am inclined to think that it is extremely +doubtful whether there would be much public advantage in establishing +telephonic communication generally between those [the principal] towns" +(_Parl. Deb._, 3d ser., cccxix, col. 664). + +The Postmaster-General was authorized to grant to the company all such +powers of executing works within its exchange areas (other than works +under, over, or along any railway or canal) as were conferred upon him +by the Telegraph acts of 1863, 1878, and Section 2 of the act of 1892. +If required by the company, he must provide underground wires between +different exchanges in the same exchange area, and must allow the +company to conclude agreements with railway and canal companies over +whose property he had exclusive right of way. In exchange for these +privileges the company agreed to sell its trunk lines to the +Postmaster-General, their value being fixed at a later date at £459,114, +which amount was paid to the company on the 4th of April, 1895, the +length of trunk line taken over being 2651 miles having 29,000 miles of +wire. In order to remove a serious handicap to the success of competing +companies, the trunk lines were henceforth to be controlled and extended +by the Post Office, the company to receive five per cent of any gross +charges for trunk-line tolls which it might collect as an agent of the +Post Office. The rates charged by the Post Office for trunk-line +conversations in 1896 were, for distances of 125 miles and under, the +same as those previously charged by the company, and were lower than the +old rates for distances in excess of 125 miles.[830] + +[830] _Rep. Com._, 1892, xvii, 278, sess. 1, pp. 17-18; 1895, xiii, 350, +pp. 8, 34; _Rep. P. G._, 1896, pp. 16, 17; _Rep. Com._, 1898, xii, 383, +pp. 35-37, 40; 1905, vii, 271, pp. 233-235; 55 and 56 Vict., c. 59, 59 +and 60 Vict., c. 40; _Parl. Deb._, 4th ser., iii, coll. 168, 186, 196. + +In the mean time there was evidence of considerable opposition to the +practical monopoly of the company within the exchange areas. A motion +introduced in the House of Commons by Doctor Cameron, member of +Parliament for Glasgow, in favour of government purchase of the +telephones, received considerable support, but was rejected by the +Government on the ground that the resulting increase in the number of +civil servants, not paid at market wages and constantly trying to bring +pressure to bear on members, was too serious an evil to receive the +sanction of the Government.[831] The claim was also made by some of the +towns and by Glasgow in particular that the municipalities should be +allowed to install their own telephone systems in opposition to those of +the company. A select committee was appointed to consider this demand on +the question of "whether the provision made for telephone service in +local areas is adequate, and whether it is advisable to grant licences +to local authorities or otherwise," but, owing to the dissolution of +Parliament, the committee did not present a report. Considerable +evidence was heard, however, and the committee recommended that another +committee should be appointed during the next session to consider and +report upon the evidence already taken and, if necessary, take more +evidence. The witnesses examined were as a rule of the opinion that the +telephones should be taken over by the state; but there was a difference +of opinion as to whether municipal licences should be granted. +Dissatisfaction with existing conditions seemed to be widespread. The +Glasgow Corporation expressed disgust with the service of the company on +account of the difficulty of getting into communication with +subscribers, frequent interruptions and noises, and the chance of being +overheard by a third party, the first complaint being due in their +opinion to inadequate exchange accommodations, the second and third to +the one-wire system. The corporation was accused on the other hand of +attempting to dislocate the company's system by refusing them permission +to lay underground wires, while the overhead wires were unfavourably +affected by the electric tramway currents. The Deputy Town Clerk of +Liverpool was in favour of government telephones, but opposed municipal +licences on the ground that they would increase the expense of +telephoning between a municipal exchange and one belonging to the +company. The London County Council advised that severe restrictions +should be laid upon the company by imposing maximum rates, etc., or that +the state should take over the company's system or that the municipality +should do so. Questions were sent to subscribers in London by the County +Council, by the company, and by the Commissioner of Sewers, asking for +their opinion on the service rendered by the company there. As may be +imagined, the replies sent to the County Council and the Commissioner +were on the whole unfavourable to the company, while those sent to the +company were generally favourable to them. It was shown that the number +of subscribers in English and Scotch cities was fewer than in most +continental cities, and that, comparing the population of the United +Kingdom with that of the United States, the number of subscribers in +the former should be about 145,000 instead of about 50,000; but nothing +was said of the superior postal and telegraphic facilities of the United +Kingdom as compared with the majority of foreign countries, facilities +which would naturally reduce the demand for a comparatively new and in +many cases unpopular method of communication. The rate of the company in +the Metropolitan area for a business connection was £20 for a yearly +agreement, with substantial reductions for second and additional +connections, and £12 for private houses. On a five years' agreement the +rates were £17 and £10 respectively. The rate in Paris at the same time +was £16. For the provincial cities in England, such as Manchester, +Liverpool, etc., the rate was £10 for a first connection and £8 10_s._ +for second and additional connections, and for the large towns, such as +Norwich, Chester, Exeter, etc., £8 within half a mile of the exchange, +£9 within three quarters of a mile, £10 within one mile, and an +additional £2 10_s._ for each additional half-mile, with reductions for +extra connections. For small outlying and isolated towns the half-mile +rate was £6 10_s._, one mile £8, and £2 10_s._ for every additional +half-mile.[832] + +[831] _Ibid._, 4th ser., iii, coll. 166 f. + +[832] _Rep. Com._, 1895, xiii, 350, pp. iii, 25-27, 60-62, 87, 90-91, +163, 176, 221, 223, 275, 281-82, 321-22; _Parl. Deb._, 4th ser., xxxi, +coll. 207 f.; xlviii, coll. 463-66. + +In 1898, another committee was appointed with Mr. Hanbury as chairman, +"to enquire and report whether the telephone service was calculated to +become of such general benefit as to justify its being undertaken by +municipal and other authorities, regard being had to local finance." The +committee were of the opinion that the existing telephone system was not +of general benefit either in the kingdom at large or in those portions +where exchanges existed, that it could hardly be of benefit so long as +monopolistic conditions existed, and that it was capable of becoming +much more useful if worked solely or mainly with a view to the public +interest. They condemned the flat rate subscription charge of the +company as of benefit only to the wealthier commercial classes in +English cities. They commented unfavourably upon the fact that in the +London area there were only 237 call offices open to non-subscribers, +and that as a rule messages could not be sent from them to subscribers +except when the sender and recipient were in the same postal district +or town, when the message might be delivered. They were of the opinion +that the telephones were far more useful in other countries where the +conditions were not so favourable. Conditions, they thought, were +unlikely to improve under the present management. The company must pay +dividends on an inflated capital; its licence would expire in 1911, and +the Government was hardly likely to pay the company at that date for +goodwill. In addition, there were no restrictions on charges, the +company had a motive for limiting its subscribers, as expenses increased +proportionately with an increase in their number, and the question of +way-leaves was a source of great difficulty. Finally, they declared in +favour of competition by the municipalities and the Post Office as +tending to reduce rates, extend the system, and, if the Government +should eventually purchase the telephones, give alternative systems to +choose from. The Government adopted the committee's report, and, in a +Treasury Minute of the 8th of May, 1899, laid down the principles upon +which licences should be granted by the Postmaster-General to the +municipalities, and announced that in London the Postmaster-General +would himself establish an exchange system.[833] + +[833] _Rep. Com._, 1898, xii, 383, pp. iii-xiii. + +In accordance with the finding of the committee and the resulting +Treasury Minute, an act was passed in 1899, conferring upon the boroughs +and borough districts to which the Postmaster-General might grant +licences the right to borrow money upon the security of the rates for +the erection and management of telephone systems. A loan of £2,000,000 +was authorized for the use of the department itself in establishing +telephone competition with the company in London. The act also defined +the relations between the company and the municipalities (or other new +licencees) in the event of competition. If the telephone company would +agree to abandon the power of discriminating between subscribers and +would consent to limit their charges within the maxima and minima +prescribed by the Postmaster-General, the latter was to extend any +way-leave rights already possessed for the period of the licence granted +to the competing municipality or new licencee. + +If the new licence were extended beyond 1911, the company's licence +would be likewise extended, but if their licence were extended for as +much as eight years beyond 1911, the company were bound, at the request +of the licencee and under certain conditions, to grant interchange of +communication within the area. The new licences would be granted only to +local authorities or companies approved by them, and the National +Company was prohibited from opening exchanges in any area in which they +had not, before the passing of the act, established an effective +exchange. The effect of the act was to limit competition to the +municipalities, to confine the National Company to those towns and areas +they were already serving, and to throw upon the Postmaster-General the +duty of serving other parts of the country.[834] + +[834] 62 and 63 Vict., c. 38. + +The form of the licences for municipalities, among other conditions, +contained provisions designed to secure for the public an efficient and +cheap service. It was provided that the plant should be constructed in +accordance with specifications prepared by the Postmaster-General, no +preferential treatment should be allowed to any subscriber, the charges +made should be within certain specified limits, neither the licence nor +any part of the plant of the licencee should be assigned to or +amalgamated with the business of any other licencee, and that the +licence might be terminated if an exchange system were not established +within two years. The provisions of the agreement of 1896 which secured +coöperation between the Post Office and the National Company and +combined the telephone with the telegraph and postal services were also +introduced into the municipal licences. The municipalities were bound to +give intercommunication between their exchanges and any established by +the Postmaster-General, and terminal charges for trunk-wire +communications between the exchange subscribers of any other system and +those of the local authority were forbidden. About sixty local +authorities made enquiries with a view to taking out licences, but only +thirteen licences were accepted. That of Tunbridge Wells was surrendered +in 1903, owing to an agreement arrived at between the National Telephone +Company and the corporation, the municipal telephones not having proved +a success.[835] In the case of seven others the licences were +surrendered or cancelled. The following corporations held licences in +1905:-- + Hull licence terminating 31st December, 1911 + Glasgow 1913 + Swansea 1920 + Brighton 30th April, 1926 + Portsmouth 1926 + +[835] _Parl. Deb._, 4th ser., cxxiv, coll. 781-82; cxv, col. 841; cxvi, +coll. 915-17. + +In all the above cases except Hull, the National Telephone Company had +agreed to forego the granting of special favours to subscribers, had +established intercommunication, and their licence was accordingly +extended in those places to the dates of termination of the corporation +licences. In Glasgow the National Telephone Company made several +applications for permission to lay underground wires, but the +corporation refused the concession on any terms. In spite of this +advantage and the inability of the company to meet the low unlimited +user rate of the corporation telephones on account of agreements with +subscribers in other towns, the corporation found it advisable to sell +its plant to the Post Office in 1906 for £305,000 at a capital loss of +between £12,000 and £15,000. Brighton followed suit a little later for +the sum of £49,000, at a loss of £2450. Swansea experienced considerable +difficulty in borrowing money to extend its system on account of the +refusal of the Local Government Board to grant the necessary borrowing +powers. The Post Office offered £22,000 for a plant which had cost +£27,173. This offer was refused by the corporation, and an agreement was +concluded with the National Telephone Company in 1907 for the sale of +the plant at a price sufficient to repay the whole capital. Offers were +also made to Hull and Portsmouth by the department, but were refused, as +they were not sufficiently high to cover expenditure.[836] + +[836] _Parl. Deb._, 4th ser., lxxxii, coll. 168-186; cliv, coll. +1067-68; clxiv, col. 87; London _Times_, 1906, July 6, p. 10; 1907, Jan. +3, p. 8; Feb. 9, p. 3; Mar. 22, p. 4. + +As a rule the local authorities offered an initial flat rate lower than +that paid by the company's subscribers in competing centres, but most +of the other rates of the corporation authorities were somewhat higher. +The service offered by the public telephones was not so satisfactory as +had been hoped, and the more numerous connections open to the company's +subscribers formed an initial advantage which it was difficult to +overcome. On the other hand, the corporations often had the advantage of +underground connections which were denied to the company, but the +relatively small number of the subscribers of the corporation +telephones, the high cost of underground connections, the clumsy service +offered in many cases, and the ability of the company to offer lower +rates in competitive areas proved too much for most of the corporations +which were granted licences.[837] + +[837] _Rep. Com._, 1905, vii, 271, pp. 10, 76, 79, 233-235. + +In the meantime the National Telephone Company had been experiencing +considerable difficulty in getting permission to lay underground wires +in London. In 1892, the Telegraph act of that year authorized the +Postmaster-General to grant to his licencees the same way-leave powers +which he enjoyed, subject to the conditions that the licencees should +not exercise such powers in London without the consent of the County +Council, nor in any urban district outside London without the consent of +the urban authority, nor elsewhere without the consent of the County +Council. In pursuance of this authority the Postmaster-General, in the +agreement of the 25th of March, 1896, undertook, at the request of the +company, to authorize them to exercise his way-leave powers in any +exchange area. The company did not apply for the exercise of such +authority in London, but an attempt was made by them to obtain the +consent of the London County Council to allow their wires to be placed +underground, and the work proceeded with the permission of the local +road authorities in London. Negotiations with the council were +fruitless, largely on account of the price asked for way-leave and the +demand for lower rates. The Postmaster-General was advised that it was +his duty to see that the act of 1892 was enforced, and the resulting +correspondence with the company having failed of any satisfactory +result, an information in the name of the Attorney-General was filed +against the company, asking for a declaration that they were not +entitled to proceed with their underground works in London without the +authority of the Postmaster-General and the consent of the County +Council. An order to that effect was made on the 24th of July, 1900. +This seemed a favourable opportunity for the Postmaster-General to +secure from the company certain concessions with reference to their +London exchange system as well as privileges for the subscribers of the +postal exchanges which had been established in London and an agreement +with reference to the purchase in 1911 by the Post Office of the +company's London exchanges. These concessions and privileges were +finally embodied in an agreement made on the 18th of November, 1901, by +which the Postmaster-General agreed to furnish such underground wires on +the demand of the company as he might think reasonable and likely to be +useful to the Post Office later, as well as underground wires connecting +the exchanges of the Post Office with those of the company. When the +subscribers of the London Postal Exchanges exceeded 10,000 in number, +the company agreed to pay half of the rent of the latter wires. No +terminal charges were payable for a message passing over these wires, or +for a message over the trunk lines between the subscribers of the Post +Office in London and those outside London, or between subscribers of the +company in London and those outside London. In addition, the +Postmaster-General promised to afford to the company's subscribers in +London all such facilities with reference to postal, telegraphic, and +telephonic communications as he granted to Post Office London +subscribers and upon the same terms and conditions. He also agreed to +consider all applications from the company for way-leaves on railways +and canals where he enjoyed such rights, and the company promised to +establish telephone communications without favour or preference. A +decision was also reached fixing equal rates for the postal and +company's subscribers in London, based primarily on the number of +messages sent with an unmeasured rate lower than that previously in +force, no revision to be made without six months' notice being given. +Finally it was agreed that in 1911 or before--if the company's licence +should have been previously revoked--the Postmaster-General should buy +and the company should sell at its fair market value all such plant as +should then be in use by the company in London and be suitable for the +Post Office at that date. None of the plant was to be considered +suitable unless installed with the written consent of the +Postmaster-General, the question of suitability to be decided by +arbitration if necessary.[838] The local authorities protested in vain +against the agreement, their contention being that the committee of +investigation had advised competition, whereas the government had on the +other hand succeeded only in making very unsatisfactory terms with the +company.[839] + +[838] _Acc. & P._, 1902, lv, 25, pp. 4-10; _Rep. Com._, 1905, vii, 271, +pp. 1-3, 53-54, 233-235; _Parl. Deb._, 4th ser., lxxxii, coll. 183; ci, +coll. 1002-03; cxxxii, coll. 422. + +[839] _Ibid._, 4th ser., ci, coll. 976-993. + +In 1905, the Postmaster-General and the National Telephone Company +concluded an agreement for the purchase of the company's provincial +plant based upon much the same principles which had governed the London +agreement. The question of purchase in the provinces was complicated by +the fact that in some towns there were competing municipal telephones, a +resulting duplication of plant, and an extension of the licence period +beyond 1911. By the terms of the agreement, the Postmaster-General on +the 31st of December, 1911, shall buy and the National Telephone Company +shall sell (_a_) "all the plant, land, and buildings of the company +brought into use with the sanction of the Postmaster-General and in use +on the 31st of December, 1911, for the purpose of the telephonic +business of the Company, (_b_) any licensed business of the company in +towns where there are municipal exchanges and where the licence extends +beyond 1911, (_c_) the private wire business of the company (for which +no licence is required) in use after the 31st of December, 1911, with +buildings, plant, etc., (_d._) all stores and buildings suitable for use +in accordance with specifications contained in the agreement, (_e_) all +spare plant and works under construction if suitable for the telephonic +business of the Post Office." The plant, land, and buildings were deemed +to be brought into use with the sanction of the Postmaster-General if +they were in use or being brought into use at the date of the agreement; +in the case of plant to be installed, if constructed in accordance with +specifications contained in the agreement and of land and buildings, if +acquired or constructed with the consent of the Postmaster-General. With +reference to plant not constructed in accordance with the +specifications, and plant and buildings of any kind in competitive +areas, the Postmaster-General reserved the right to object to buy such +plant or buildings, the question of suitability in competitive areas to +be settled by arbitration. The value to be paid for the company's +undertaking, not in the competitive areas and not being private wire +business, shall be the value on the date of purchase exclusive of any +allowance for past or future profits or any consideration for compulsory +sale or any other consideration. The value in competitive areas is to be +determined by agreement, regard being had to net profits and to the +circumstances and conditions under which the company would carry on such +business after the date of sale. The value of the private wire business +(apart from the plant, land, and buildings used therein) is to be three +years purchase of the net profits on the average of the three years +ending 31st of December, 1911. Any other property or assets of the +company may be purchased by the Postmaster-General, the price to be +determined by arbitration, if necessary, and, after the date of sale, +the telegraphic business of the company will be carried on (whether by +the company or the Postmaster-General) at the expense and for the +benefit of the Postmaster-General. In the meantime the company agreed to +maintain its plant in good and efficient working order, not to show +favour or preference among its subscribers, to accept minimum and +maximum rates, to allow intercommunication without terminal charges +between their and the Post Office subscribers in the same area, and not +to collect terminal charges for messages sent over the trunk lines +between subscribers of the company and those of the Post Office. The +Postmaster-General agreed to extend to subscribers of the company all +such telegraphic and postal facilities as his own subscribers enjoyed, +and to undertake underground works for the company elsewhere than in +London under the same conditions as in London. An agreement was also +reached that similar rates should be charged where the +Postmaster-General and the company maintained competing systems. As a +result, measured rates were, as a rule, substituted for the old flat +rates, much to the indignation of various Chambers of Commerce in the +Kingdom. In the case of complaint as to inefficient service, if the +charge is held to be proved before a person appointed by the Board of +Trade, and if it is not the result of a refusal to grant way-leaves, the +Postmaster-General may require the company to remedy conditions in the +particular area concerned or may call upon them to sell the inefficient +system to him. In the first case if there is no improvement or if the +second alternative has been adopted, the Postmaster-General may require +immediate sale under the same terms that would have held if it had not +taken place until the 31st of December, 1911.[840] + +[840] _Acc. & P._, 1905, xliv, 16, pp. 3-23; _Rep. Com._, 1905, vii, +271, pp. iii-xi. + +The income received by the Post Office for the fiscal year 1906-07 from +the London and provincial exchanges and trunk-line business was +£908,246, working expenses, £456,459, balance for depreciation, +interest, etc., £451,787, leaving a balance of £19,061 over and above an +estimated amount of £432,726 for depreciation and interest at three per +cent on the capital expenditure. The London exchange, with a gross +income of £330,512, showed a surplus of £25,586 over and above +depreciation fund and interest on capital expenditure, the provincial +exchanges a deficit of £15,758, and the trunk lines a surplus of £9333. +The number of subscribers to the Post Office provincial exchanges +(excluding Glasgow and Brighton) was 10,010. Including the Glasgow +subscribers (11,103) and the Brighton subscribers (1542), the total was +22,655. Arrangements were then being made for local intercommunication +between subscribers of these exchanges and those of the company in the +same places. Hull and Portsmouth were the only towns maintaining +municipal telephonic systems in 1907, Hull having 2128 telephones in use +and Portsmouth 2553. The number of telephones in the London Post Office +telephone service was 41,236, including 425 public call offices. The +agreement of 1905, providing for similar rates in the provinces between +exchanges of the Post Office and those of the company, was followed +after considerable discussion by the announcement of the adoption of a +new scale in May, 1906. The rates are now based on the principle of a +measured service under which each subscriber pays according to the +quality and quantity of the service desired. He may contract for any +number of calls from four hundred upward, and he may share a line with +another subscriber at a reduced rate, or he may rent a line for his own +exclusive use.[841] + +[841] _Rep. P. G._, 1905, app., pp. 90-92; 1907, pp. 21-23, 93. + + + + +CHAPTER XII + +CONCLUSION + + +The important points in the history of the British Post Office are +necessarily somewhat obscured by the great mass of less important +characteristics which accompanied its development. Organized at the +beginning of the sixteenth century as a means for the conveyance of +state letters, its messengers, by tacit consent, were allowed to carry +the letters of private individuals. The advantage so afforded for the +control of seditious correspondence led to the monopolistic +proclamations of the closing years of the sixteenth and the opening +years of the seventeenth century. Before 1635 the state obtained no +direct revenue for the conveyance of private letters. The messengers or +postmen who were supposed to be paid by the state, derived the larger +part of their income from the postage on these letters and from letting +horses to travellers. + +The object in retaining for the Royal Posts the sole right to carry the +letters of private individuals assumed a new form in the seventeenth +century. Witherings showed that by diverting the postage on private +letters from the postmen to the state the Post Office might be made +self-supporting. Legal rates were imposed, letters were carried at a +much higher speed, and the system of packet posts was extended over the +great roads of England. The supervision of private correspondence became +a matter of only secondary importance. The struggle between the King and +Parliament resulted in securing popular control over the posts of the +kingdom. At the same time, during the political unrest, competing +systems of posts were repressed with difficulty. The inability of +government officials to meet the increasing needs of a growing +metropolis led to the establishment of a Penny Post in London by +Dockwra, a private individual. + +The first part of the eighteenth century saw the extension of a postal +system in the colonies and an attempt on the part of the Post Office to +obtain the postage on letters passing over the cross-roads of England. +The increase in England's colonial possessions and her growing trade +with foreign countries produced a corresponding growth in the packet +service. The last part of the century saw the establishment of Palmer's +mail coaches in order to meet competition from the post coaches. The +great increase in revenue which accompanied the industrial revolution +led to corruption among the postal officials, resulting in the reform of +1793. The period of rapid growth had passed, and the close of the +eighteenth century was a period of consolidation for the new offices +which had been created, and better coöperation in the work which they +performed. + +The first forty years of the last century saw the Post Office at its +best as an instrument of taxation. But this very fact drew attention to +the lack of other and more important objects. Rates had been forced so +high that people resorted to legal and illegal means to evade paying +them. The feeling was growing that a tax upon correspondence was not +only a poor method of raising money but that its ulterior effect in +restricting letter writing was producing undesirable results upon the +people of England industrially and socially. A great mistake had been +made by the Post Office in acquiring steam packets. They suffered +severely from private competing lines and were always a loss to the +Government. A partial remedy was attained by the transfer of all the +packets to the Admiralty. Eventually the popular cause, championed by +Hill and Wallace, forced itself upon the attention of the Government. A +Parliamentary committee, after listening to the evidence of +representative witnesses, declared itself in favour of low and uniform +rates of postage for the United Kingdom, the result being the adoption +of inland Penny Postage in 1840. + +Among the numerous changes which have characterized the development of +the Post Office since 1840 are the successive reductions in rates; the +transfer of the packet boats from the Admiralty, followed by the +resolution of the Government to revert to the old principle of depending +upon private enterprise for the sea carriage of the mails; the extension +in the use of the railways as a medium of conveyance; the establishment +of a parcel post; and the decision of the government to provide banking +and assurance facilities for the thrifty person of small means. But the +greatest departure in the field of the department's activities has been +the acquisition of the telegraphic system of the Kingdom. Misled by +their advisers as to the capital cost and induced by popular pressure to +abandon strictly business methods of administration and extension, the +telegraphic experiments of the department have not been a financial +success. Not only has this been the case, but, in their efforts to +protect the revenue, successive Governments have hindered the +development of telephonic communication. At this late date we can safely +assume that in 1870 the department should either have granted the +telephone companies far greater powers or should themselves have assumed +the burden of providing an adequate system of telephonic communication. +In 1911, the property and franchises of the telephone companies will +pass to the control of the Government, thus vastly increasing the work +of the department if, as seems probable, the Government should assume +direct management, and greatly enlarging the number of dissatisfied +members of that part of the civil service under the control of the Post +Office. + + + + + APPENDIX + + EXPENDITURE AND REVENUE TABLES + + TABLE I + + + GROSS PRODUCT, EXPENDITURE, AND NET PRODUCT OF THE POST OFFICE OF THE + UNITED KINGDOM FROM MARCH 25, 1723 TO APRIL 5, 1797 + + _Year ending_ _Gross Product_ _Expenses_ _Net Product_ + £ £ £ + March 25, 1724 178,071 81,732 96,339 + 25 175,274 75,407 99,867 + 26 178,065 83,253 94,812 + 27 182,184 81,295 100,889 + 28 183,915 79,250 104,665 + 29 179,189 86,882 92,307 + 30 178,817 84,027 94,790 + 31 171,412 79,243 92,169 + 32 176,714 84,678 92,036 + 33 171,283 79,137 92,146 + 34 176,334 84,633 91,701 + 35 182,171 83,541 98,630 + 36 188,210 90,589 97,621 + 37 182,490 85,402 97,088 + 38 186,578 93,914 92,664 + 39 183,747 85,497 97,250 + 40 194,197 103,532 90,085 + 42 197,721 110,137 87,584 + 43 190,626 102,185 88,441 + 44 194,461 109,347 85,114 + 45 194,607 108,852 85,755 + 46 201,460 120,570 80,890 + 47 209,028 123,086 85,942 + 48 217,453 138,701 78,752 + 49 212,801 124,478 88,323 + 50 207,490 110,093 97,397 + 51 203,748 104,633 99,115 + 52 207,092 109,371 97,721 + April 5, 53 206,666 108,518 98,148 + 54 214,300 116,935 97,365 + 55 210,663 108,648 102,015 + 56 238,445 144,203 94,242 + 57 242,478 162,629 79,849 + 58 222,075 148,346 73,729 + 59 229,879 143,784 86,095 + 60 230,146 146,643 83,493 + 61 240,497 153,808 86,689 + 62 233,722 155,927 77,795 + 63 238,999 141,166 97,833 + 64 225,326 109,134 116,182 + 65 262,496 104,925 157,571 + 66 265,427 103,484 161,943 + 67 275,230 113,286 161,944 + 68 278,253 112,470 165,783 + 69 284,914 120,154 164,760 + 70 285,050 128,988 156,062 + 71 292,782 137,239 155,543 + 72 309,997 144,394 165,503 + 73 310,126 142,940 167,176 + 74 313,032 148,965 164,077 + 75 321,943 148,755 173,188 + 76 318,418 150,936 167,482 + 77 329,921 171,346 158,575 + 78 347,128 209,124 137,994 + 79 372,817 233,569 139,248 + 80 387,092 250,683 136,409 + 81 417,634 263,477 154,157 + 82 393,235 275,910 117,325 + 83 398,624 238,999 159,625 + 84 420,101 223,588 196,513 + 85 463,753 202,344 261,409 + 86 471,176 185,201 285,975 + 87 474,347 195,748 278,599 + 88 509,131 212,151 296,980 + 89 514,538 195,928 318,610 + 90 533,198 202,019 331,179 + 91 575,079 219,080 355,999 + 92 585,432 218,473 366,959 + 93 627,592 236,084 391,508 + 94 691,268 260,606 430,662 + 95 705,319 295,822 409,497 + 96 657,541 191,084 466,457 + 97 691,616 178,266 513,350[842] + +[842] _Parl. Papers_, 1812-13, _Reports from Committees_, ii, pp. +60-61. + + + TABLE II + + AVERAGE YEARLY GROSS PRODUCT, EXPENDITURE AND NET PRODUCT OF THE POST + OFFICE OF THE UNITED KINGDOM FROM 1725 TO 1794 + + _Gross Product_ _Expenses_ _Net Product_ + £ £ £ + 1725-29 179,725 81,217 98,508 + 1730-34 174,912 82,344 92,568 + 1735-39 184,639 87,989 96,650 + 1740-44 193,682 105,304 88,378 + 1745-49 207,069 123,137 83,932 + 1750-54 207,859 109,910 97,949 + 1755-59 228,708 147,522 81,186 + 1760-64 233,738 141,340 92,398 + 1765-69 273,264 110,864 162,400 + 1770-74 302,197 140,525 161,672 + 1775-79 338,045 182,766 155,279 + 1780-84 403,337 251,331 152,006 + 1785-89 486,587 198,273 288,314 + 1790-94 602,514 227,033 375,481 + + + TABLE III + + GROSS PRODUCT, EXPENDITURE, AND NET PRODUCT OF THE POST OFFICE OF THE + UNITED KINGDOM, INCLUDING THE TWOPENNY POST, FROM JANUARY 5, 1804 TO + JANUARY 5, 1838 + + + _Year_ _Gross_ _Net_ _Loss on_ + _ending_ _Product_ _Expenses_ _Product_ _Returned_ + £ £ £ _Letters_[843] + Jan. 5, 1804 1,429,429 416,767 956,21 56,450 + 5 1,466,271 420,395 983,363 62,513 + 6 1,648,523 457,686 1,119,429 71,408 + 7 1,718,187 456,968 1,185,659 75,560 + 8 1,711,980 468,531 1,167,425 76,024 + 9 1,739,855 489,469 1,173,062 77,324 + 10 1,855,746 519,359 1,260,822 75,565 + 11 1,987,404 546,460 1,365,251 75,693 + 12 1,960,510 540,397 1,344,109 76,004 + 13 2,078,879 576,885 1,422,001 79,993 + 14 2,209,213 616,564 1,506,064 86,585 + 15 2,372,429 675,548 1,598,295 98,586 + 16 2,418,741 704,639 1,619,196 94,906 + 17 2,280,209 649,129 1,537,505 93,575 + 18 2,186,621 665,354 1,433,871 87,396 + 19 2,240,553 683,680 1,467,533 89,340 + 20 2,191,562 586,193 1,522,640 82,729 + 21 2,172,875 611,187 1,465,605 96,083 + 22 2,122,965 645,241 1,393,465 84,259 + 23 2,128,926 620,977 1,428,352 79,597 + 24 2,154,294 596,336 1,475,167 82,791 + 25 2,255,238 628,829 1,540,022 86,387 + 26 2,367,567 636,353 1,632,267 98,947 + 27 2,392,271 706,640 1,589,672 95,869 + 28 2,278,411 706,192 1,484,164 88,095 + 29 2,287,961 663,775 1,544,224 79,962 + 30 2,265,481 675,319 1,509,347 80,815 + 31 2,301,431 694,254 1,517,951 89,226 + 32 2,321,310 658,325 1,569,038 93,947 + 33 2,277,274 643,464 1,531,828 101,982 + 34 2,294,910 636,756 1,553,425 104,729 + 35 2,319,979 696,387 1,513,052 110,540 + 36 2,353,340 678,836 1,564,458 110,046 + 37 2,461,806 704,768 1,645,835 111,203 + 38 2,462,269 698,632 1,641,106 122,531 + +[843] _Reports from Com._, 1837-38, xx, pt. r. p. 509. Before 1797, the +loss on returned letters seems to have been included in the Charges of +Management. + + + TABLE IV + + AVERAGE YEARLY GROSS PRODUCT, EXPENDITURE, AND NET PRODUCT, ETC., OF THE + POST OFFICE OF THE UNITED KINGDOM FROM 1805 TO 1838 + + + _Gross Product_ _Expenses_ _Net Product_ _Loss on_ _Actual_ + _Returned_ _Gross_ + _Letters_ _Product_ + £ £ £ £ £ + 1805-09 1,656,963 458,610 1,125,787 72,566 1,584,397 + 1810-14 2,018,350 559,933 1,379,649 78,768 1,939,582 + 1815-19 2,299,710 675,670 1,531,280 92,760 2,206,950 + 1820-24 2,154,124 611,987 1,457,045 85,092 2,069,032 + 1825-29 2,316,289 668,358 1,558,079 89,852 2,226,437 + 1830-34 2,292,081 661,623 1,536,318 94,140 2,197,941 + 1835-38 2,399,348 694,656 1,591,112 113,580 2,285,768 + + SCOTLAND + + _Gross Product_ _Expenses_ _Net Product_ + £ £ £ + 1800-04 117,108 18,952 98,156 + 1805-09 148,816 23,981 124,835 + 1810-14 182,259 29,153 153,106 + 1815-19 191,812 40,736 151,076 + 1820-24 185,235 46,351 138,884 + 1825-29 205,599 49,485 156,114 + 1830-34 204,481 54,729 149,752 + 1835-37 216,191 59,553 156,638 + + IRELAND + + £ £ £ + 1800-04 92,745 64,368 28,377 + 1805-09 150,845 90,922 59,923 + 1810-14 192,969 115,019 77,950 + 1815-19 210,159 124,149 86,010 + 1820-24 190,431 119,200 71,231 + 1825-29 214,165 115,875 98,290 + 1830-34 244,098 108,898 135,200 + 1835-37 247,068 114,093 132,975 + + + TABLE V + + GROSS PRODUCT, EXPENDITURE, AND NET PRODUCT OF THE POST OFFICE FOR + SCOTLAND AND IRELAND FROM 1800 TO 1837 + + _Scotland_ + + _Year ending_ _Gross_ _Expenses_ _Net_ + _Jan. 5_ _Product_ _Product_ + £ £ £ + 1800 100,651 16,896 83,755 + 01 113,126 18,020 95,105 + 02 121,700 18,692 103,007 + 03 124,809 20,581 104,228 + 04 125,257 20,562 104,694 + 05 137,479 21,175 116,303 + 06 146,148 22,465 123,682 + 07 151,696 23,358 128,338 + 08 152,453 27,496 124,956 + 09 156,305 25,412 130,892 + 10 168,098 26,543 141,555 + 11 169,082 24,853 144,229 + 12 178,896 26,260 152,636 + 13 191,857 26,248 165,609 + 14 203,366 [844]41,814 161,551 + 15 201,992 40,950 161,042 + 16 193,727 40,570 153,157 + 17 185,417 41,181 144,236 + 18 189,690 39,756 149,934 + 19 188,236 41,225 147,011 + 20 184,512 43,106 141,405 + 21 179,403 47,078 132,324 + 22 184,014 47,302 136,711 + 23 184,164 47,515 136,649 + 24 194,085 46,755 147,330 + 25 205,988 49,066 156,921 + 26 214,271 50,113 164,158 + 27 203,137 49,378 153,759 + 28 203,305 51,393 151,911 + 29 201,298 47,476 153,822 + 30 202,754 50,999 151,754 + 31 204,593 55,434 149,159 + 32 206,594 54,601 151,992 + 33 203,324 54,875 148,448 + 34 205,144 57,738 147,406 + 35 209,069 59,306 149,762 + 36 218,748 59,408 159,339 + 37 220,758 59,945 160,813 + + + _Ireland_ + + _Year ending_ _Gross_ _Expenses_ _Net_ + _Jan. 5_ _Product_ _Product_ + £ £ £ + 1800 84,040 59,216 24,824 + 01 [845]66,030 48,656 17,376 + 02 102,293 70,489 31,806 + 03 102,518 66,008 36,510 + 04 108,844 77,471 31,373 + 05 118,429 79,448 38,981 + 06 146,682 93,651 53,031 + 07 149,857 90,940 58,917 + 08 158,749 91,200 67,549 + 09 180,510 99,371 81,139 + 10 180,670 110,064 70,606 + 11 195,531 117,639 77,892 + 12 189,963 118,344 71,619 + 13 195,458 112,938 82,520 + 14 203,226 116,113 87,113 + 15 212,562 121,371 91,191 + 16 225,000 132,331 92,669 + 17 212,269 126,476 85,793 + 18 203,456 123,186 80,270 + 19 197,510 117,384 80,126 + 20 197,677 123,060 74,617 + 21 192,511 127,494 65,017 + 22 187,120 118,932 68,188 + 23 186,024 112,778 73,246 + 24 188,826 113,739 75,087 + 25 199,602 118,698 80,904 + 26 207,177 113,539 93,638 + 27 207,757 117,564 90,193 + 28 216,232 116,836 99,396 + 29 239,559 112,740 126,819 + 30 241,063 111,955 129,108 + 31 247,711 117,622 130,089 + 32 256,976 102,654 154,322 + 33 242,671 107,127 135,544 + 34 232,071 105,145 126,926 + 35 240,471 109,973 130,498 + 36 245,664 112,045 123,619 + 37 255,070 120,261 134,809 + +[844] First payment of tolls amounting from £16,000 to £20,000 a year. +2d _Rep._, app. no. 39, _Rep. Com._, 1837-38, xx. + +[845] Three quarters only. 1st _Rep._, app. no. 28. + + + TABLE VI + + GROSS REVENUE, EXPENDITURE, AND NET REVENUE OF THE POST OFFICE OF THE + UNITED KINGDOM, NOT INCLUDING TELEGRAPHS, FROM 1838 TO 1907. + + + _Year ending_ _Gross Revenue_ _Expenditure_ _Net Revenue_ + £ £ £ + Jan. 5, 1838 2,339,737 687,313 1,652,424 + 1839 2,346,278 686,768 1,659,509 + 1840 2,390,763 756,999 1,633,764 + 1841 1,359,466 858,677 500,789 + 1842 1,499,418 938,168 561,249 + 1843 1,578,145 977,504 600,641 + 1844 1,620,867 980,650 640,217 + 1845 1,705,067 985,110 719,957 + 1846 1,887,576 1,125,594 761,982 + 1847 1,963,857 1,138,745 825,112 + 1848 2,181,016 1,196,520 984,496 + 1849 2,143,679 1,403,250 740,429 + 1850 2,165,349 1,324,562 840,789 + 1851 2,264,684 1,460,785 803,898 + 1852 2,422,168 1,304,163 1,118,004 + 1853 2,434,326 1,343,907 1,090,419 + 1854 2,574,407 1,400,679 1,173,727 + Dec. 31, 1854 2,701,862 1,506,556 1,195,306 + 1855 2,716,420 1,651,364 1,065,056 + 1856 2,867,954 1,660,229 1,207,725 + 1857[846] 3,035,713 1,720,815 1,314,898 + 1858[847] 3,241,535 1,953,283 1,288,252 + 1859 3,461,924 1,952,432 1,509,492 + 1860 3,531,165 1,953,234 1,577,931 + 1861 3,665,128 3,154,527 510,601 + 1862 3,764,004 2,926,551 837,453 + 1863 3,999,455 2,956,486 1,042,969 + 1864 4,231,558 3,078,297 1,153,261 + 1865 4,423,608 2,941,086 1,482,522 + 1866 4,599,667 3,201,681 1,397,986 + 1867 4,668,214 3,246,850 1,421,364 + 1868[848] 4,683,646 3,266,724 1,416,922 + 1869 4,764,575 3,459,227 1,305,348 + 1870[849] 4,929,475 3,435,865 1,493,610 + 1871 4,900,454 3,610,700 1,289,754 + 1872 5,208,922 3,684,946 1,523,976 + 1873 5,348,040 3,792,679 1,555,361 + 1874 5,751,600 3,915,213 1,836,387 + Mar. 21, 1875 5,815,032 3,920,891 1,894,141 + 1876-77[850] 6,017,072 4,070,006 1,947,066 + 1877-78 6,047,312 3,990,620 2,056,692 + 1878-79 6,274,450 3,840,076 2,434,374 + 1879-80 6,558,445 4,060,758 2,497,687 + 1880-81[851] 6,733,427 4,135,659 2,597,768 + 1881-82 7,024,600 4,286,596 2,741,004 + 1882-83 7,300,960 4,545,398 2,755,562 + 1883-84 7,764,855 5,154,829 2,610,026 + 1884-85 7,906,406 5,317,213 2,589,193 + 1885-86 8,170,604 5,486,724 2,683,880 + 1886-87 8,471,198 5,880,141 2,591,057 + 1887-88 8,705,337 5,933,820 2,771,517 + 1888-89 9,102,776 6,062,902 3,039,874 + 1889-90 9,474,774 6,266,263 3,208,511 + 1890-91[852] 9,851,078 6,687,089 3,163,989 + 1891-92 10,451,998[853] 7,192,487 3,259,511 + 1892-93 10,600,149 7,507,645 3,092,504 + 1893-94 10,734,885 7,759,712 2,975,173 + 1894-95 11,025,460 7,955,344 3,070,116 + 1895-96 11,759,945 8,086,272 3,673,673 + 1896-87 12,146,935 8,246,356 3,900,579 + 1897-98 12,420,376 8,683,317 3,737,059 + 1898-99 13,049,317 9,190,006 3,859,311 + 1899-1900 13,394,335 9,683,999 3,710,336 + 1900-01[854] 13,995,470 10,064,903 3,930,567 + 1901-02 14,465,870 10,465,101 4,000,769 + 1902-03 15,005,262 10,819,938 4,185,324 + 1903-04 15,824,394 11,201,122 4,623,272 + 1904-05 16,274,978 11,446,279 4,828,699 + 1905-06 17,064,023 11,849,012 5,215,011 + Est'm'd 1906-07[855] 17,361,042 12,289,787 5,071,255 + +[846] 1st _Rep. P. G._, 1855, p. 68. 20th _Rep. P. G._, 1874, app., p. +46. + +[847] Expenditure for sailing packets in 1858 was £935,883. + +[848] Postage ceased to be charged on government departments early in +1868. + +[849] 10th _Rep. P. G._, 1864, pp. 32-38; 18th _Rep. P. G._, 1872, pp. +26-27. Until 1858 revenue does not include revenue from impressed +newspaper stamps nor does expenditure include cost of packet service +until 1861. + +[850] In 1876 the beginning of the financial year of the Post Office was +changed from 1st January to 1st April. + +[851] 27th _Rep. P. G._, 1881, app., p. 52. + +[852] 37th _Rep. P. G._, 1891, app., p. 64. + +[853] Including estimated value of services to other departments from +1891-1892 on. + +[854] 47th _Rep. P. G._, 1901, app., p. 82. + +[855] 53d _Rep. P. G._, 1907, p. 95. + + + TABLE VII + + AVERAGE YEARLY GROSS REVENUE, EXPENDITURE, AND NET REVENUE OF POST + OFFICE FOR THE UNITED KINGDOM NOT INCLUDING TELEGRAPHS FROM 1841 TO + 1906. + + + _Gross Revenue_ _Expenditure_ _Net Revenue_ + £ £ £ + 1841-45 1,658,214 1,001,405 656,809 + 1846-50 2,143,717 1,304,772 838,944 + 1851-55 2,569,836 1,441,334 1,128,502 + 1856-60 3,135,587 1,785,911 1,349,676 + 1861-65 4,016,750 3,013,389 1,003,341 + 1866-70 4,729,155 3,322,069 1,407,086 + 1871-75 5,404,809 3,784,886 1,619,923 + 1876-81 6,326,141 4,019,423 2,306,718 + 1881-86 7,634,085 4,958,152 2,675,933 + 1886-91 9,121,032 6,166,043 2,954,989 + 1891-96 10,914,487 7,701,292 3,213,195 + 1896-1901 13,001,286 9,174,516 3,826,770 + 1901-1906 15,926,905 11,156,292 4,770,613 + + + + + BIBLIOGRAPHY + + +This list does not contain a complete record of all the authorities +consulted. It merely brings together, with a fuller statement of title, +the more important references scattered through the footnotes. Unless it +is otherwise stated, London is to be understood as the place of +publication for the English books here cited. + + + PRINTED RECORDS--PARLIAMENTARY DOCUMENTS--REPORTS + + + _Acts of Parliament._ + + _Acts of the Parliament of Scotland._ 12 vols., 1814-75. + + _Acts of the Privy Council of England._ New Series, ed. J. R. Dasent. + 32 vols., 1890-1907. + + _Calendar of Border Papers._ + + _Calendar of State Papers, America and West Indies._ _Do.,_ _Colonial._ + _Do.,_ _Domestic._ _Do.,_ _Foreign._ _Do.,_ _Ireland._ + + _Calendar of Treasury Books._ + + _Calendar of Treasury Books and Papers._ + + _Calendar of Treasury Papers._ + + _Finance Reports, 1797-98._ + + Hansard. _The Parliamentary Debates._ 422 vols., 1803-91. 41 vols., to + 1820; "New Series," 25 vols., to 1830; Third Series, 356 vols., to + 1891. The work has been continued under other management since 1891, + as _Parliamentary Debates_, Fourth and Fifth Series. + + Howell, T. J. _A Complete Collection of State Trials_ [to 1820]. 34 + vols., 1816-28. + + _Journals of the House of Commons._ + + _Journals of the House of Lords._ + + _Letters and Papers, Foreign and Domestic, of the Reign of Henry VIII._ + + [Cobbett, William.] _The Parliamentary History of England, from the + Earliest Period to the Year 1803._ 36 vols., 1806-20. + + _Parliamentary Papers._ Since 1831 the volumes for each year have been + arranged regularly in four series, as follows:-- + + 1. _Bills Public._ + 2. _Reports from Committees._ + 3. _Reports from Commissioners._ + 4. _Accounts and Papers._ + + The volumes are ordinarily quoted, under each year, according to their + consecutive numbering; but each series is also numbered separately. + + _Proceedings and Ordinances of the Privy Council of England._ Ed. Sir + Harris Nicholas. 7 vols., 1834-37. + + _Reports of the Postmasters-General on the Post Office._ Beginning + with 1854-55. These may be quoted either according to their + consecutive numbering, or by years: 1st report = 1855; + 51st report = 1905, etc. + + Royal Commission on Historical Manuscripts. _Reports._ + + Scobell, Henry. _A Collection of Acts and Ordinances made in the + Parliament held 3 Nov. 1640 to 17 Sept. 1656._ 1658. + + + OTHER BOOKS + + Blomefield, F., and Parkin, C. _An Essay towards a Topographical + History of the County of Norfolk._ 2d ed., 11 vols., 1805-10. + + Cunningham, W. _The Growth of English Industry and Commerce in Modern + Times._ 3 vols., Cambridge, 1896-1903. + + De Laune, Thomas. _Angliae Metropolis: or, the Present State of + London._ 1681. + + _Dictionary of National Biography._ + + Eaton, D. B. _Civil Service in Great Britain._ New York, 1880. + + Froude, J. A. _A History of England from the Fall of Wolsey to the + Death of Elizabeth._ 12 vols., New York, 1870. + + Gairdner, J., _editor_. _The Paston Letters._ 3 vols., 1872-75. + + Green, E. _Bibliotheca Somersetensis._ 3 vols., Taunton, 1902. + + Joyce, H. _The History of the Post Office from its Establishment down + to 1836._ 1893. + + Knight, Charles. _London._. 6 vols., 1841-44. + + Latimer, John. _The Annals of Bristol in the XVIIIth Century._ + Bristol, 1893. + + Lewins, William. _Her Majesty's Mails._ 2d ed., 1865. + + _London and its Environs described._ 6 vols., 1761. + + Macaulay, T. B. _History of England from the Accession of James II._ 4 + vols., 1849-56. + + Macpherson, David. _Annals of Commerce, Manufactures, Fisheries, and + Navigation._ 4 vols., London and Edinburgh, 1805. + + Maitland, William. _The History and Survey of London._ 2 vols., 1760. + + Malden, H. E. _The Cely Papers: Selections from the Correspondence and + Memoranda of the Cely Family, Merchants of the Staple, A. D. 1475-88._ + 1900. + + May, T. E. _Constitutional History of England._ 1882. + + Noorthouck, John. _A New History of London._ 1773. + + Ogilby, John. _Itinerarium Angliae._ 1675. + + Roberts, George. _The Social History of the Southern Counties of + England in Past Centuries._ 1856. + + Rothschild, Arthur de. _Histoire de la Poste aux Lettres, depuis ses + Origines les plus Anciennes jusqu'à nos Jours._ 2d ed., Paris, 1873. + + Sharpe, R. R. _London and the Kingdom._ 3 vols., 1894-95. + + Stow, John (1525-1605). _A Survey of the Cities of London and + Westminster, improved and enlarged by John Strype._ 2 vols., 1720. + + Thornbury, W., and Walford, E. _Old and New London._ 6 vols. [1873-78.] + + + PERIODICALS + + + _The Economist._ + + _The London Times._ + + _Notes and Queries._ + +With reference to the foregoing bibliography, the "Letters and Papers of +Henry VIII" and the "Calendar of State Papers" have formed the basis of +this sketch of the British Post Office during the sixteenth and +seventeenth centuries, with many references to the papers of private +individuals and institutions collected by the Royal Commission on +Historical Manuscripts. The "Proceedings and Ordinances and the Acts of +the Privy Council" contain important orders issued to the +Postmaster-General or the postmen during the sixteenth century as well +as complaints from the postmen and the public. From the beginning of the +eighteenth century the chief sources of information are the historical +summaries appended to the "Reports of Committees and Commissioners" +compiled during the first half of the nineteenth century. Of these, the +"Report of 1844" is the most important. The "Journals of the Lords and +Commons" throw some light upon the history, purpose, and intent of the +various acts of Parliament dealing with rates and finance. "The +Financial Report of 1797," various returns submitted to the House of +Commons, and the reports contained in the "Accounts and Papers" for the +first part of the nineteenth century are chiefly concerned with the +financial side of the history of the British Post Office. Since 1840 the +most important sources of information are the yearly reports of the +Postmasters-General, dating from 1854, and the voluminous reports of +committees appointed to investigate debated points in the organization +and policy of the Post Office as well as to advise upon matters which +had produced friction between the department and its employees. + +Of the secondary works there is little to be said. The only one from +which any important information has been obtained is Joyce's "History of +the British Post Office to 1836." This book contains a great deal of +valuable matter arranged in rather a haphazard fashion and with no +references. Writing as a Post Office official at the end of the +nineteenth century, Joyce hardly appreciated the conditions which his +predecessors had to meet. In Stow's "London" are found some interesting +facts about the London Penny Post, in Blomefield's "Norfolk" early +postal conditions in Norwich are described. The other books of the same +description contain only incidental references to minor points of Post +Office development. + + + + + INDEX + + + Abuses in the Post Office, 42-46, 127, 128. + + Allen, Ralph, 36, 37, 37 note. + + American colonies, Post Office in, 32, 33, 59. + + American Express Company, 70. + + Annuities, 74. _See also_ Savings Bank Department. + + Arlington, Lord, 27. + + Arundel, Earl of, 11. + + Assurance facilities, 74. _See also_ Savings Bank Department. + + + Bennett, Sir John, 27. + + Billingsley, 11, 19. + + Bishop, Henry, 24, 25. + + Book Post, 68, 173. _See also_ Halfpenny Post and Rates, Book Post. + + Bower, Sir George, 80. + + Bradford Committee, 84, 85. + + British and Inland Magnetic Telegraph Company, 202, 206, 208. + + Burlamachi, Philip, 17, 18. + + Buxton, Sydney, 85, 87, 88. + + Bye-letters, 35 note. + + Bye-posts, 36, 39, 144; + receipts from, 185, 186. + + + Canadian Pacific Railway Company, 134. + + Carteret, Lord, 42. + + Cash on delivery, 70, 71. + + Chamberlain, A., 83. + + Chesterfield, Countess of, 25. + + Clerks of the road, 38, 50. + + Coaches. _See_ Mail Coaches and Post Coaches. + + Coke, Sir John, 11, 12, 15, 16, 18, 111, 112. + + Competition in carrying letters, 191-197. + + Competitive examinations, 78. + + Compulsory prepayment. _See_ Prepayment of rates. + + Cotton and Frankland, 31, 115. + + Cromwell, orders to the postmasters, 23. + + Cross-posts, 140, 144. _See also_ Bye-posts. + + Cross-post letters, 35 note, 36. _See also_ Post-roads, Cross-posts. + + Cunard Steamship Company, 132, 133, 134. + + Customs duties, 125. + + + Dead Letter Office, 50. + + Delivery of letters, 9, 38, 39; + rural, 65, 66; + express or special, 67, 68. + + Departmental committee, 82. + + De Nouveau, 114. + + De Quester, 10, 12, 135. + + De Taxis, 112, 114. + + Dockwra, William, 28, 30. + + Double letter, 13 note. + + Dublin Penny Post, 30 note, 54, 150. + + + Edinburgh Penny Post, 54. + + Edison Telephone Company, 219. + + Electric and International Telegraph Company, 202, 205, 206, 208. + + Embossed stamps. _See_ Stamps. + + Employees, postal, appointment brought under civil service + examination, 78, 79; + report of Bradford committee, 84, 85; + of departmental committee, 82; + of Hobhouse committee, 86-88; + civil rights, 82; + postal unions, 85; + wages, 80, 83; + Tweedmouth settlement, 81, 82; + strike, 81; + grievances, 80, 82, 83; + increase in wages, 81, 82. + + Evasion of rates, 197-201. _See also_ Monopoly, attempts to break. + + Express delivery. _See_ Delivery of letters. + + + Farmers of the Post Office, 21, 22, 36, 37. + + Fawcett, Henry, 74, 75, 80, 81. + + Fees, 9, 15, 45, 49. + + Fifth-clause Posts, 65. + + Finances of Post Office, 180-188. + + Foreign connections: Belgium, 111; + France, 111, 113, 114, 115, 117, 118, 120; + Germany, 111; + Holland, 111, 114; + Italy, 111, 115; + United States and the colonies, 120 note; + stages settled on the continent, 112. + _See also_ Rates and Sailing Packets. + + Foreigners' Post, 6, 7. + + Franking, 159-172; + by members of Parliament, 25; + of newspapers, 48. + + Franking department, 57. + + Frankland. _See_ Cotton and Frankland. + + Freeling, Sir Francis, 52. + + Frizell, 11, 18, 24. + + + Grimston, 205. + + + Halfpenny Post, 68, 69, 197. + + Hall, John, 11. + + Hamilton, Andrew, 33. + + Hanbury, 82. + + Hicks, James, 19, 20, 24, 26, 27, 112. + + Hill, Sir Rowland, 59-61, 187. + + Hobhouse committee, 86-88. + + + Inman Steamship Company, 132, 133. + + Insurance facilities, 74. _See also_ Savings Bank Department. + + Ireland, Post Office in, 31, 57. _See also_ Post-roads, Rates, + and Sailing Packets, Ireland. + + + Letters, number of, 63. + + London and Globe Telephone Company, 220. + + London District Post, 71. + + London District Telegraph Company, 202. + + London Penny Post, 28-30, 34, 35 note, 51, 52; + receipts from, 185. + _See_ Twopenny post. + + + Mail coaches, 40, 41, 55, 104, 105. + + Manley, John, 22, 23. + + Marconi Company, 213, 214. + + Mason, Sir John, 7, 8. + + Merchant Adventurers' Post, 6, 11. + + Messengers, 3, 5, 67. + + Money Order Office, 50, 71. + + Money orders, 176-180; + number of, 71-73. + _See also_ Rates, money orders. + + Monopoly, attempts to break, 191-197; + in carriage of letters and packets, 189-191, 195, 196. + _See also_ Telegraphs, monopoly. + + Mowatt, Sir F., 81. + + + National Telephone Company, 222-224, 229, 231, 233. + + Neale, Thomas, 33. + + Newspaper Office, 49. + + Newspapers, chargeable and free, 68; + franking of, 48; + impressed stamps on, 68; + number of, 68. + _See also_ Rates, newspapers. + + New Telephone Company, 223. + + Norfolk, Duke of, 82. + + + O'Neale, Daniel, 25. + + Opening and detaining letters, 16, 18, 21, 26, 46-48, 196. + + + Packet list, 48. + + Packets. _See_ Sailing Packets. + + Paget, 7. + + Palmer, John, 40-42, 44. + + Parcel Post, 70, 174. _See also_ Rates, Parcel Post. + + Patronage, 78, 79. + + Pattern and Sample Post, 69. _See also_ Rates, patterns. + + Peninsular and Oriental Steamship Company, 132. + + Penny Post. _See_ London Penny Post. + + Penny Postage, 59-62, 158-160. + + Pensions, sailors', 127. + + Pitt, William, 43. + + Plague, 26. + + Political patronage. _See_ Patronage. + + Postal establishment, in seventeenth century, 27; + in eighteenth, 38, 44; + in nineteenth, 57. + + Postcards, 174; + number of, 69, 69 note; + use of, 69. + _See also_ Rates, postcards. + + Post coaches, 40. + + Post horses, 5, 8; + fee for their use, 89, 90, 92; + licences and taxes, 94, 95, 95 note; + monopoly in letting, 92, 94; + number to be kept, 92, 93; + supply of, 89, 90. + + Postmarks, 29. + + Postmen's Federation, 85 note. + + Post offices, number of, 71. + + Post-roads, 13; + cross posts, 103; + in sixteenth century, 97, 101; + in seventeenth century, 99; + maps, 101; + re-measured, 103, 104; + in north of England, 102, 104; + in south, 102; + in Ireland, 102, 104; + in Scotland, 103. + + Prepayment of rates; + compulsory prepayment inadvisable, 26, 26 note; + unpopularity of, 64. + + Prideaux, Edmund, 18-21, 136. + + + Raikes, 81. + + Railways, 107, 108; + amounts paid for conveyance of mails, 56, 78; + authority of Postmaster-General over, 77; + principles involved in estimating tollage for conveyance of mails, 77. + + Randolph, Thomas, 7, 8. + + Rates, for letters, 13, 23, 62-64; + by weight, 157; + re-directed, 173; + ships' letters, 143, 148, 153. + + In England, 136, 137, 141, 142, 145-148, 150, 151, 158; + Ireland, 136, 137, 141, 142, 146, 151, 152, 158; + Scotland, 136-139, 141-143, 145-148, 150, 151, 158; + United Kingdom, 159, 172, 174. + + To Austria, 135, 149, 150; + Belgium, 135, 143, 149, 150, 155 note, 157, 176; + Cape of Good Hope, 153, 154; + Channel Isles, 148, 150; + Denmark, 137, 143, 149, 150, 155 note; + East Indies, 153, 154; + Egypt, 155 note, 156; + France, 135, 137, 143, 149, 149 note, 150, 155, 155 note, 176; + Germany, 135, 137, 143, 149, 150, 155 note, 157; + Gibraltar, 155 note; + Greece, 155 note, 156; + Holland, 135, 143, 149, 150, 155 note, 157; + Italy, 115, 135, 137, 143, 149, 150, 155 note, 156, 176; + Malta, 155 note; + Mauritius, 153, 154; + Mexico, 155 note, 157; + Norway, 155 note, 157; + Portugal, 143, 147, 149, 150, 155 note; + Russia, 155 note; + South America, 155 note, 157; + Spain, 137, 143, 149, 150, 155 note, 157, 176; + Sweden, 137, 143, 149, 150, 155 note, 157; + Switzerland, 155 note, 157; + Syria, 156; + Turkey, 137, 149, 150, 155 note, 156; + North American colonies, 143, 146, 147; + United States, 155 note, 175. + + In North American colonies, 140, 141, 144, 146; + West Indies, 140, 140 note, 143, 146. + + To the colonies, 159, 175; + to foreign countries, 159, 176. + + Book Post, 173; + money orders, 71, 72, 176 _et seq._; + newspapers, 153, 154, 173, 175, 176; + Parcel Post, 174; + patterns, samples, and writs, 145, 173; + postcards, 174, 176. + + Registered letters, 50, 64, 173, 174. + + Returned Letter Office, 57. + + Roads. _See_ Post-roads. + + Royal Mail Steamship Company, 132. + + Royal Post, 3, 6. + + + Sailing Packets, abuses in connection with, 127 _et seq._; + British and foreign vessels, 123; + cost of, 128, 134; + customs difficulties, 125; + number of, 120, 121; + ownership transferred to Admiralty, 129, 130; + steamships, 121-123, 131; + subsidies for, 130, 131-134; + use of private ships, 120 note, 123, 124. + + To Cape of Good Hope, 120; + Deal and the Downs, 110; + East Indies, 120; + France, 111, 115, 116; + Gibraltar, 116; + Holland, 115-117; + Ireland, 109, 110, 121; + Malta, 116; + Isle of Man, 110; + Mauritius, 120; + Mexico, 120; + Portugal, 115; + Scotland, 109-110; + South America, 120; + West Indies, 118 _et seq._ + + St. Martin's-le-Grand, 57. + + Sample Post. _See_ Pattern and Sample Post. + + Savings Bank Department, 73, 76; + annuity and assurance facilities, 74-77; + criticism by "Economist," 75 note. + + Scotland, Post Office in, 31, 32, 34, 59. _See also_ Post-roads, + Rates, and Sailing Packets, Scotland. + + Scudamore, 203-205, 208. + + Shipping list, 48, 49. + + Single letters, 13 note. + + Smith, Llewellyn, 81. + + Special delivery. _See_ Delivery. + + Speed, 14; + in sixteenth century, 98; + in seventeenth century, 98, 99, 100 note; + in nineteenth century, 104, 105, 105 note, 106; + by use of railways, 107, 108; + delays and attempts to remedy them, 100; + delays between England and Ireland, 107; + means for securing speed, 106. + + Stamps, 65, 68. + + Stanhope, Charles, 8, 17, 24. + + Stanhope, Lord John, 8, 10, 135. + + Stanley, Lord, 83-85, 203. + + Steamships. _See_ Sailing Packets, Steamships. + + Strangers' Post. _See_ Foreigners' Post. + + Sunday posts, 55, 79, 80. + + + Tankerville, Earl of, 42-44. + + Telegraphs, cost to Government of, 205, 206, 208, 209; + finances, 216, 218; + government ownership proposed, 203-205; + international agreement, 211-214; + messages sent, 202, 215; + monopoly, 207-208; + press messages, 209, 217; + private companies, 202, 203; + railway interests in, 206, 207, 209; + rates, 202, 203, 209, 210, 213; + relations with Marconi Company, 213, 214; + underground lines, 211. + + Telephones, call offices, 224, 227; + exchange areas, 224; + finances, 236; + government, 220, 221, 225, 228; + inter-communication, 224, 229, 232, 234; + licences, 220-222, 224; + municipal, 226, 228-230, 235; + purchase agreement, 232 _et seq._; + rates, 227, 230, 232, 234, 235; + trunk lines, 221, 225; + underground wires, 231, 232, 234; + way-leave powers, 221, 223, 224, 232, 235. + + Threepenny Post, 52-54. + + Thurloe, 23, 24. + + Travellers' Post, 89; + abuses by postmasters, 93; + by travellers, 91, 91 note; + trials of travellers, 91. + + Triple letters, 13 note. + + Tuke, Sir Brian, 4-7. + + Tweedmouth, Lord, 81. + + Tweedmouth settlement, 81, 82. + + Twopenny Post, 52-54, 149. + + + Unions. _See_ Employees, Postal Unions. + + United Kingdom Telegraph Company, 203, 206, 208. + + United Telephone Company, 220, 222. + + Universal Private Telegraph Company, 208. + + + Wages, 4, 6 note; + arrears in, 8, 25, 92, 99. + _See also_ Employees. + + Walpole, Spencer, 81. + + Ward, 87. + + Warwick, Earl of, 18, 19. + + White Star Steamship Company, 133. + + Windebank, 16, 17. + + Witherings, Thomas, 11, 13-19, 24, 111, 112, 135, 137, 138. + + + York, Duke of, 25, 30. + + + + + The Riverside Press + PRINTED BY H. O. HOUGHTON & CO. + CAMBRIDGE, MASS. + U. S. A. + + + + + + +End of the Project Gutenberg EBook of The History of the British Post Office, by +Joseph Clarence Hemmeon + +*** END OF THE PROJECT GUTENBERG EBOOK 42983 *** |