Her Majesty's Mails.

by William Lewins.

PREFACE.

This volume is the first of a contemplated series designed to furnish some account of the history and ordinary working of the revenue departments of the country--to do for the great _Governmental_ industries what Mr. Smiles has so ably done (to compare his great things with our small) for the profession of civil engineering and several _national_ industries. Few attempts have ever been made to trace the rise and progress of the invaluable inst.i.tution of the Post-Office. We have more than once seen the question asked in _Notes and Queries_--that _sine qua non_ of the curious and the learned--where a continuous account might be found of English postal history. In each case, the inquirer has been referred to a short summary of the history of the Post-Office, prefixed to the Postmaster-General's _First Report_. Since that, the Messrs. Black, in the eighth edition of the _Encyclopaedia Britannica_, have supplied an excellent and more extended notice. Still more recently, however, in an admirable paper on the Post-Office in _Fraser's Magazine_, Mr. Matthew D. Hill has expressed his astonishment that so little study has been given to the subject--that it "has attracted the attention of so small a number of students, and of each, as it would appear, for so short a time." "I have not been able to find," adds Mr. Hill, "that even Germany has produced a single work which affects to furnish more than a sketch or outline of postal history." The first part of the following pages is offered as a _contribution_ to the study of the subject, in the hope that it will be allowed to fill the vacant place, at any rate, until the work is done more worthily. With regard to that most interesting episode in the history of the Post-Office which resulted in the penny-post reform, the materials for our work--scanty though they undoubtedly are in the earlier periods--are here sufficiently abundant. The scope, however, of the present undertaking would not allow of much more than a proportionate amount of s.p.a.ce being devoted to that epoch. Besides, the history of that eventful struggle can be properly told but by one hand, and that hand, if spared, intends, we believe, to tell his own story.

Mr. Torrens MacCullagh, in his _Life of Sir James Graham_, has thrown much new light on the letter-opening transactions of 1844, and we have been led, on inquiry, to concur in many of his views on the subject.

The greater portion of the second division of this volume, as well as a portion of the first part, appeared originally in the pages of several popular serial publications--princ.i.p.ally _Chambers's Journal_ and Mr.

Chambers's _Book of Days_; the whole, however, has been thoroughly revised, where it has not been re-written, and otherwise adapted to the purposes of the present work. We are indebted to Mr. Robert Chambers, LL.D., not only for permitting the republication of these papers in this form, but also for kindly indicating to us sources of information from the rich storehouse of his experience, which we have found very useful.

On collateral subjects, such as roads and conveyances, besides having, in common with other readers, the benefit of Mr. Smiles's valuable researches in his _Lives of the Engineers_, we are personally indebted to him for kindly advice. We have only to add that, while in no sense an authorized publication, personal acquaintance has been brought to bear on the treatment of different parts of it, and that we have received, in describing the various branches of the Post-Office, much valuable information from Mr. J. Bowker and several gentlemen connected with the London Establishment. It is hoped that the information, now for the first time brought together, may prove interesting to many letter-writers who are ignorant, though not willingly so, of the channels through which their correspondence flows. If our readers think that the Wise Man was right when he likened the receipt of pleasant intelligence from a far country to cold water given to a thirsty soul, surely they will also admit that the _agency_ employed to compa.s.s this good service, which has made its influence felt in every social circle, and which has brought manifold blessings in its train, deserves some pa.s.sing thought and attention.

The Appendix is designed to afford a source of general reference on many important matters relating to the Post-Office, some parts of it having been carefully collated from Parliamentary doc.u.ments not easily accessible to the public.

_April 16, 1864._

PART I.

HISTORICAL ACCOUNT OF THE POST-OFFICE.

HER MAJESTY'S MAILS.

CHAPTER I.

INTRODUCTORY.

Circular letters, and a kind of post for conveying them, are frequently mentioned both in sacred and profane history. Queen Jezebel is remarkable as being the first letter-writer on record, though it is not surprising to find that she used her pen for purposes of deception.

According to the sacred chronicler, she "wrote letters in Ahab's name, and sealed them with his seal, and sent the letters unto the elders and to the n.o.bles in the city." From the Book of Esther we learn that Ahasuerus, king of Persia, being displeased at the disobedience of his wife, Vashti, sent letters into every province of his vast empire, informing his subjects that it was his imperial will that "every man should bear rule in his own house." The first recorded _riding post_ was established in the Persian empire by Cyrus, who, when engaged in his Scythian expedition, in order to have news brought expeditiously, "caused it to be tried how far a horse could go in a day without baiting, and, at that distance, appointed stages and men whose business it was to have horses always in readiness."[1] Another authority[2]

tells us that there were one hundred and eleven postal stages, a day's journey distant from one another, between Susa and the aegean Sea, and that at each stage a large and beautiful structure was erected, with every convenience for the purpose designed.

It is certainly remarkable that neither in this nor in any other recorded instance have the posts in ancient times developed into one for the conveyance of private correspondence. It is certain that the Greeks and Romans, even when at the height of their civilization, had no regular public post. There are some traces of _statores_ and _stationes_ under the Roman Republic; and Augustus, we find, inst.i.tuted posts on the princ.i.p.al trunk-roads, for the use of the Imperial Government. He also established a cla.s.s of mounted messengers, called _tabellarii_, who went in charge of the despatches. That these messengers should have been strictly forbidden to convey letters for private persons, or that no provision was subsequently made for that purpose, is the more wonderful, when we consider the high character of the nations themselves, and the fact, often pointed out, that the progress of civilization has always been intimately and essentially connected with, and dependent upon, facilities for intercommunication--keeping pace, in fact, with the means which nations possessed for the interchange of person and property, and with them of thought and knowledge. That those nations to which we are so greatly indebted for so much that exalts the intellect and adorns life, should not have left us an example of such a useful and (considering the vast extent of their respective territories), we should have thought, indispensable inst.i.tution as that of a public letter-post, is marvellous.

Marco Polo, the famous Venetian, who travelled in China in the fourteenth century,[3] describes the government post as similar to that in use in Persia under Cyrus. The posts had existed in China from the earliest times. Every twenty-five miles there were posts, called _jambs_, where the imperial envoy was received. There were frequently as many as three or four hundred horses in waiting at one of these places. Polo further states that there were ten thousand stations of this kind in China, some of them affording sumptuous accommodation to travellers. Two hundred thousand horses are said to have been engaged in the service. The fact affords a curious commentary on the progress of civilization in the Celestial Empire, that, though this gigantic and elaborate establishment has been in existence so long and up to the present century, it is only within the last few years that provision has been made in China for public letter-posts.

The earliest date in modern history at which any postal service is mentioned, is the year 807, when an organization was planned by the Emperor Charlemagne. The service, however, did not survive him. The first regular European letter-post was established in the Hanse Towns in the early part of the thirteenth century. This federation of republics required constant communication with each other; for, being largely engaged in similar commercial pursuits, it became indispensable to their existence that some system of letter-conveyance should be originated.

The next establishment was a line of letter-posts connecting Austria with Lombardy, in the reign of the Emperor Maximilian, said to have been organized by the princes of the house of Thurn and Taxis. The representatives of the same house established another line of posts from Vienna to Brussels, thus further connecting the most distant parts of the vast dominions of the Spanish Emperor, Charles V. It may be mentioned here, that the Counts of Thurn and Taxis have, in virtue of their original establishment, which they controlled from the first, always held peculiar rights and privileges in relation to the postal systems of Germany; and up to this day the posts of the house of Thurn and Taxis are entirely distinct from the existing Crown establishments, and, in fact, are maintained in rivalry to those of some of the German states. In France, in the fifteenth century, Louis XI. revived the system of Charlemagne, organizing a body of 230 couriers for purposes of state.

We may gather from the existing materials, scanty though they be, something like a continuous account of the early history of the English post-office, tracing, very clearly, its progress from the fifteenth century to its present position.

While the _general post_ dates from the Stuarts, the establishment of a regular _riding post_ in England owes its origin to Edward IV. The English post seems from the first to have been fully commensurate with the demands for its service, its growth depending on the gradual advance which the country made in other measures of social progress. Four or five centuries ago, few private persons could either read or write. On the other hand, the business of the State demanded correspondence. The king had his barons to summon, or his sheriffs to instruct, and letters of writ were issued accordingly, a few Government messengers supplying all the wants of the time. Now and then the n.o.bles would require to address each other, and sometimes to correspond with their dependents, but, as a general rule, neither the serf nor his master had the power, even if they had the will, to engage much in writing. As time wore on, and we come nearer the age of the Tudors, the desire for learning spread, though still the few who engaged in literary or scientific pursuits were either attached to the Court or to the monastic establishments. Even when the Tudor dynasty came in, trade with foreign countries, and remote districts in our own country, was almost equally unknown. Each district dwelt alone, supplied its own wants, and evinced very little desire for any closer communication.

In the earliest times in England, and prior to the first regular horse posts, both public and private letters were sent by private messengers, travelling when required. In the reign of Henry I. messengers were first permanently employed by the king. So early as the reign of King John the payments to _Nuncii_--as these messengers were now called--for the conveyance of Government despatches, are to be found entered in the _Close_ and _Misae Rolls_, "and the entries of these payments may be traced in an almost unbroken series through the records of many subsequent reigns." Nuncii were also attached to the establishments of the princ.i.p.al barons of the time, and communications pa.s.sed between them by means of those functionaries. In the reign of Henry III., the son and successor of King John, these messengers began to wear the royal livery.

At first it was necessary for them to keep horses of their own, or use those belonging to the royal or baronial mansion. In the reign of Edward I. we find that fixed stations or _posts_ were established, at which places horses were kept for hire, the _Nuncii_ ceasing to provide horses of their own, or borrowing from private individuals. Several private letters are in existence, dating as far back as the reign of Edward II., which bear the appearance of having been carried by the _Nuncii_ of that period, with "Haste, post, haste!" written on the backs of them.

With the machinery thus ready to his hand, the improvements contrived by Edward IV. were easily accomplished. In 1481 this monarch was engaged in war with Scotland, when, in order to facilitate the transmission of news from the English capital, he ordered a continuous system of posts, consisting of _relays_ of horses and messengers every twenty miles. By this arrangement, despatches were conveyed to him at the English camp with marvellous expedition, his couriers riding at an average rate of seventy miles a day. When peace was restored, the system of relays was allowed to fall into disuse, only to be revived in cases of urgency.

Little improvement in communication could be expected under such a course of procedure, and little was effected. Henry VIII. was the first monarch who endeavoured to keep the posts in a state of efficiency, and improve their organization, in peace as well as in war; though still it is noticeable that the post stages are kept up purely and exclusively as a convenience to the Government for the conveyance of its despatches.

Henry VIII. inst.i.tuted the office of "Master of the Postes,"[4] with entire control of the department. During the king's lifetime the office was filled by one Brian Tuke, afterwards Sir Brian. We gain some insight into the duties of the office, and also into the manner in which the work is done, from the following letter (found in the voluminous correspondence of Thomas Cromwell) from the "Master of the Postes," no doubt in exculpation of himself and his arrangements, which seem to have been in some way called in question by the Lord Privy Seal. "The Kinge's Grace hath no moo ordinary postes, ne of many days hathe had, but betwene London and Calais. For, sir, ye knowe well, that, except the hackney horses betwene Gravesende and Dovour, there is no suche usual conveyance in post for men in this realme as in the accustomed places of France and other _parties_; _ne men can keepe horses in redynes without som way to bere the charges_; but when placardes be sent for such cause, (viz. to order the immediate forwarding of some state packet,) the constables many tymes be fayne to take horses oute of plowes and cartes, _wherein can be no extreme diligence_." The king's worthy secretary thus charges the postmaster with remissness, and the mails with tardiness, when the facts, as gathered from the above letter, show that the Government had not gone to the trouble and expense of providing proper auxiliaries, as in France; _ergo_, they could not expect the same regularity and despatch. Master Tuke then defends the character of his men. "As to the postes betwene London and the Courte, there be now but 2; whereof the _on_ is a good robust felowe, and wont to be diligent, evil intreated meny times, he and other postes, by the herbigeours, for lack of horse rome or horse mete, _withoute which diligence cannot be_.

The other hathe been a most payneful felowe in nyght and daye, that I have knowen amongst the messengers. If he nowe _slak_ he shalbe changed as reason is."

During the insurrection in the Northern Counties in the reign of Henry VIII., the rebel leaders, in order to insure a rapid transmission of orders, established regular posts from Hull to York, York to Durham, and Durham to Newcastle.[5]

The council of Edward VI. finding that a great many irregularities existed in the hire of post-horses, had an Act pa.s.sed (2 & 3 Edward VI.

c. 3) fixing the charge at a penny per mile for all horses so impressed.

Up to the end of the reign of Queen Elizabeth, no further improvements seem to have been made, although her council took steps to make the existing service as efficient as possible, by reforming some abuses which had crept into it during Queen Mary's reign. Before Elizabeth's death, the expenses of the post were reduced to rather less than 5,000_l._ per annum. Before the reduction, the sum charged for conveying Her Majesty's despatches from stage to stage was enormous. Up to the thirty-first year of her reign, a rate of 20_d._ a letter was levied by the proprietors of the post-horses, for _every post travelled over_. The council resolved to pay the proprietors 3_s._ a day for the service, irrespective of the distance travelled. The payment was reduced to 2_s._ and ultimately to 18_d._ a day. Much information respecting the service--the different stages, the routes taken at this early period, &c. &c. has been found in old records of the "Master of the Postes,"

exhumed some twenty years ago from the vaults of Somerset House. This functionary, it would appear, paid all current expenses appertaining to his department, "the wages and entertainment of the ordinary posts," and he was reimbursed in full under the grant "for conveyance of Her Highness's letters and her Council's." The information respecting the routes taken is especially interesting, because it serves to show that even at this early period arrangements were made with great circ.u.mspection, and that some of these early routes existed, with only trifling modifications, down to the present century, and to the time of railroads. The route from London to Berwick is shown by the lists of posts (or stages) laid down between the two places in the fifteenth year of Queen Elizabeth's reign. They run as follows:--1. London; 2. Waltham; 3. Ware; 4. Royston; 5. Caxton; 6. Huntingdon; 7. Stilton; 8. Stamford; 9. Grantham; 10. Newark; 11. Tookesford (Tuxford); 12. Foroby (Ferriby); 13. Doncaster; 14. Ferry Bridge; 15. Wetherby; 16. Bouroughbridge; 17.

Northallerton; 18. Derneton (Darlington); 19. Durham; 20. Newcastle; 21.

Morpeth; 22. Hexham; 23. Hawtwistle; 24. Carlisle; 25. Alnwick; 26.

Belford; 27. Berwick. For three centuries, therefore, the High North Road took in all these posts with the exception of Tuxford. A considerable diversion, it will be noticed, was made at Morpeth towards the west, in order to take in the then important towns of Hexham and Carlisle; but it is more probable that the direct post-road continued north through Alnwick to Berwick, and that the west road was only a kind of cross-post. There were no less than three post routes to Ireland in this reign, and all of them were used more or less. The first and most important, perhaps, left London and took the following towns in its way; the distance between each town const.i.tuting a "stage;" viz. Dunstable, Dayntry (Daventry), Collsill (Coleshill), Stone, Chester and Liverpool, from which latter place a packet sailed. The remaining two mails took slightly different routes to _Holyhead_, whence also a packet sailed for Ireland. We find there were also _two_ posts between London and Bristol and the west of England; the first going by way of Maidenhead, Newbury, Marlborough and Chippenham; the other, by Hounslow, Maidenhead, Reading, Marlborough, Maxfield to Bristol. To Dover there were also _two_ posts; the one pa.s.sing through Dartford, Gravesend, Rochester, Sittingbourne, Canterbury, Margate and Sandwich; the other pa.s.sing through Canterbury direct, without calling at the two last-named places. The posts above enumerated were called the "ordinary" posts, and may be supposed to have been the permanent arrangements for the transmission of the Government despatches. When these posts did not avail--and it must be understood that they were never allowed to make a _detour_ into the cross-roads of the country--"extraordinary posts" were established. Generally speaking, these extra posts were put on for any service which required the greatest possible haste. Here is an extract from the records of which we have spoken, on this point. "Thomas Miller, gent. sent in haste by special commandment of Sir Francis Walsingham, throughout all the postes of Kent to warn and to order, both with the posts for an augmentation of the ordinary number of horses for the packet, and with the countries near them for a supply of twenty or thirty horses a-piece for the 'throughe posts,' during the service against the Spanish navy by sea, and the continuance of the army by land." Again, in 31st Elizabeth, special or "extraordinary" posts were laid between London and Rye, upon unwelcome news arriving from France, "and for the more speedy advertis.e.m.e.nt of the same." "Thomas Miller, gent. sent at Easter, 1597, to lay the posts and _likest_ landing places either in Kent or Suss.e.x, upon intelligence given of some practices intended against the Queen's person." Mr. Miller seems to have judged Rye to be the "likest landing place" for the purpose, and, returning, "received seven pound for his services." Other extraordinary posts were often laid down between Hampton Court and Southampton and Portsmouth, for the "more speedy advertis.e.m.e.nt" of occurrences from the ports of Normandy and Bretaigne.

In the early part of Queen Elizabeth's reign, disputes were frequent with the foreign merchants resident in London with regard to the foreign post, which, up to this reign they had been allowed to manage among themselves. In 1558, the Queen's Council of State issued a proclamation "for the redresse of disorders in postes which conveye and bring to and out of the parts beyond the seas, pacquets of letters." It would seem that soon after the arrival of the Flemings in this country, in the previous century, they established a post-office of their own, between London and the Continent, appointing one of themselves as postmaster, by the sufferance and favour of the reigning sovereign. "Afterwards," says Stowe,[6] "by long custom, they pretended a right to appoint a master of the _Strangers' Post_, and that they were in possession of from the year 1514." This continued till 1558, in which year the foreign merchants fell out among themselves over the question of appointing a postmaster.

The Flemings, aided by the Spanish amba.s.sador, chose one Raphael Vanden Putte; the Italians, by this time a considerable body of foreigners, chose one of their number for the vacant place. Not being able to agree, the disputants referred their case to the English Council, when, to the surprise of the foreigners, their right to appoint at all was publicly disputed. The English merchants took up the matter very warmly, and addressed the Privy Council in two or three pet.i.tions. They took the opportunity to complain that the authorities of the foreign post had frequently acted unfairly to them, in keeping back their continental letters, and so giving the foreigners the advantage of the markets. In one of the pet.i.tions, they urged, "that it is one of the chief points of the prerogative belonging to all princes, to place within their dominions such officers as were most trusty of their own subjects; that the postmaster's place was one of great trust and credit in every realm, and therefore should be committed to the charge of the natural subjects and not strangers, especially in such places as had daily pa.s.sages into foreign realms, and where was concourse of strangers." Further, "The strangers were known to have been the occasion of many injuries in the staying and keeping back of letters, and, in the meantime, an extraordinary would be despatched to prevent the markets and _purpose_."

The English merchants urged that it would be doing the foreigners no injustice to appoint an English postmaster; no new exactions need be imposed upon them, "and such men might be placed in the office as could talk with them in their own language, and that should make as good promise, and as faithfully perform the same in all equity and upright dealings, as any stranger had done." The result was, that it was finally settled that the "Master of the Postes" should have the charge of both the English and foreign offices, and that the t.i.tle of this functionary should be changed to "Chief Postmaster." Thomas Randolph was the first "Chief Postmaster" of England.

Under the Tudor dynasty, marvellous strides were taken in the social progress of the country. The habits of a great nation can, of course, only change slowly; but, notwithstanding, the England of the Plantagenets was a different country to the England which Elizabeth left in 1603. The development of trade, which really commenced with the Tudors, gave the first great impulse to a new social era. People began to feel more interest in each other, and as this became manifest, the demand for interchange of thought and news became more and more urgent.

In the reign of Henry VIII. the English people began a considerable trade with Flanders in wool. A commercial treaty subsequently gave free ingress and egress to the ships of both nations. The change that this new trade wrought was immediate and striking. English rural districts which had before been self-supporting--growing their own corn and feeding their own cattle--now turned their corn-land into pasture-land, and sought grain among their neighbours. The dissolution of the monasteries under the same monarch had the effect, among other results, of scattering broadcast over the country those who had previously lived together and enjoyed almost a monopoly of learning. The Reformation civilized as well as christianized the people. Other causes were at work which operated in opening out the country, and encouraging habits of locomotion and the spread of intelligence generally. Amongst many such, were changes, for instance, in the routine of law procedure, introduced by Henry. Up to his time, courts of arbitration had sat from time immemorial within the different baronies of England, where disputes, especially those between landlord and tenant, were cheaply and equitably adjusted. Now, such cases were ordered to be taken to London, and country people found themselves compelled to take journeys to London and sue or be sued at the new courts of Westminster.[7]

We could not well exaggerate the difficulties which encompa.s.sed _travellers_ at this early period. As yet there were but one or two main roads. Even in the neighbourhood of the metropolis, and certainly in all the remote parts of the country, the roads were not unlike broad ditches, much waterworn and strewn with loose stones. Travellers had no choice but to ride on horseback or walk. Everybody who could afford it rode. The sovereign and all gentlefolk rode. Judges rode the circuit in jackboots. Ladies rode on pillions fixed on the horse, and generally behind some relative or serving-man. In this way Queen Elizabeth, when she rode into the city, placed herself behind her Lord Chancellor. The wagon was an invention of the period. It was a rude contrivance; nothing, in fact, but a cart without springs, the body of it resting solidly upon the axles. The first conveyance of this sort was constructed for the Queen's own use, and in it she journeyed to open Parliament.[8] Elizabeth rode in it but on this one occasion, and has left behind her a curious and most graphic account of her sufferings during the journey, in a letter, written in the old French of that period, to the French amba.s.sador at her court, who seems to have suggested the improvement to her. The wagon, which had been originally contrived for ladies, now that the Queen discarded it, was not brought into great use during her reign. It seems to have found its way into the provinces, however, the gentry of that time being delighted with it. "On a certaine day in 1583," according to Mr. Smiles, "that valyant knyght, Sir Harry Sydney, entered Shrewsbury in his wagon, with his trompeter blowynge, verey joyfull to behold and see." Under such circ.u.mstances, it cannot be wondered at that general intelligence travelled slowly.

Among the common people, few ever saw a letter. Pilgrims, as they travelled between the monasteries of the period, or who, after their dissolution, visited their shrines, dispensed news to the poor, and would occasionally carry letters for the rich.[9] Public and private couriers riding post were sometimes surrounded, at the villages or towns on their _route_, by crowds of people desirous of obtaining some information of the world's doings. At times, they were not suffered to pa.s.s without furnishing some kind of information. The letters of the period, many of which survive, show that great care was taken to protect them from the curiosity of the bearer; and precautionary measures were resorted to to prevent delay. They were usually most carefully folded, and fastened at the end by a sort of paper strap, upon which the seal was affixed, whilst under the seal a piece of string or silk thread, or even a straw, was frequently placed, running round the letter. The following letter, still extant, will serve to give an insight into the way letters were dealt with at this period, and the speed at which they were forwarded.--(Vide _Postmaster-General's 2nd Report_, p. 38.)

ARCHBISHOP PARKER _to_ SIR W. CECIL.

SIR,

According to the Queen's Majesty's pleasure, and your advertis.e.m.e.nt, you shall receive a form of prayer, which, after you have perused and judged of it, shall be put in print and published immediately, &c. &c.

From my house at Croyden, this 22d July, 1566, at four of the clock, afternoon.

Your honour's alway,

MATTHEW CANT.

This letter is thus endorsed by successive postmasters, according to the existing custom.

Received at Waltham Cross the 23d of July, at nine at night.

Received at Ware the 23d of July at 12 at night.