Objection was raised on the ground that the post ought to be confined to small packets as far as possible, and should convey large letters and packets only when necessity was urgent: heavy packets would impede the work of the Post Office, and would cause inconvenience in many ways, especially as regards foot-messengers;[465] but, as it was not thought likely that any very great number of book packets would be posted, the objection was not upheld, and the cheaper rate was introduced. At first various restrictions were imposed, and considerable public dissatisfaction resulted, especially in regard to certain of the regulations. These regulations were consequently relaxed in 1853 so as to allow practically any printed matter to pa.s.s at the book rate. In 1855 the rate was reduced,[466] and in 1856 circulars were admitted at the privileged rate. As a result of this the number of book packets increased rapidly. In 1855 the total number was 3,000,000; in 1856 the number increased to 6,000,000; and in 1862 reached 14,000,000. In 1866 the rates for heavier packets were further reduced. The rate for packets over 8 ounces in weight became 1d. for each 4 ounces, instead of 2d. for each 8 ounces.

In 1870, when the 1/2d. rate for newspapers and for postcards was established,[467] an important change in the book post was made. As the result of pressure from the public and a vote in the House of Commons in favour of a reduction, carried against the wishes and recommendation of the Government,[468] the rate on book packets was reduced to 1/2d. for every 2 ounces.

Since 1870 the regulations governing admission to the book post have been modified from time to time, chiefly in the direction of enabling the formal doc.u.ments of commerce to pa.s.s at the reduced rate. All doc.u.ments admitted to the privilege must conform to certain requirements, and it is obvious that all such doc.u.ments must be open to inspection by the Post Office. It is therefore an indispensable requirement that the doc.u.ments be sent in open covers. Thus arises that curious distinction between the "closed" post and the "open" post, a lower rate of postage being given to packets containing articles or doc.u.ments of a certain description, on condition that the contents are open to inspection by the postal authorities.

In 1897 the ordinary letter rate was made 1d. for the first 4 ounces, and 1/2d. for each additional 2 ounces. The book post, therefore, disappeared, except as regards packets not exceeding 2 ounces in weight; and in 1904 its name was changed to the "Halfpenny Packet Post." It is available for practically all the formal doc.u.ments of commerce, and, in addition, many other packets of miscellaneous character, and remains a most important branch of Post Office traffic.[469] In 1913-14 the number of halfpenny packets (excluding postcards) was no less than 1,172 millions, or about one-fifth of the total number of packets pa.s.sing by post in the United Kingdom.

When on the 1st November 1915 the postage on letters over 1 ounce in weight was increased, the book post was re-established as it had existed prior to 1897, except for unimportant modifications of the regulations.

It had been proposed to abolish altogether the 1/2d. rate of postage,[470] but in view of strong representations from the printing trade, and of the hostility of the general public, this proposal was abandoned.

FRANCE

Particulars of the earlier rates of postage charged on printed matter in France cannot now be ascertained, but they appear always to have been lower than the rates for letters. Before the Revolution an octavo book could be sent for any distance for 12 sous, and the postage on circulars was less than a centime.[471]

By the decrees of 17-22 August 1791, a rate for daily newspapers of 8 deniers the sheet was established, and a rate of 12 deniers the sheet for other newspapers and for periodical publications. During the succeeding years the rates were modified a number of times. In 1796 the following rates were established:--

4 centimes the sheet for newspapers; 5 centimes the sheet for unbound books, catalogues, and prospectuses.[472]

A distinction was always made between ordinary printed matter and periodical publications.

In 1827 the size of the sheet which was the basis of the charge was fixed at 25 square decimetres. The system of charge by weight was applied to printed matter in 1856, with the following rates:--

1 centime for each 5 grammes up to 50 grammes 10 centimes from 50 to 100 grammes 1 centime for each 10 grammes beyond 100 grammes.

These rates were increased by some 50 per cent. in 1871. After the establishment of the Universal Postal Union the rates in the internal service were in some cases higher than those in the international service, and it became advantageous to commercial men to post their packets abroad. The French administration were then required under the international convention to distribute them in France without receiving any postage.[473] This anomalous situation was put an end to in 1878, when the following rates were established:--

When sent under band--

1 centime for each 5 grammes up to 20 grammes 5 centimes from 20 grammes to 50 grammes; 5 " for each 50 grammes or fraction of 50 grammes thereafter.

When sent in open envelopes--

5 centimes for each 50 grammes or fraction of 50 grammes.

The rates have since been reduced, and are now as follow:--

2 centimes for packets not exceeding 15 grammes in weight 3 " between 15 grammes and 50 grammes 5 " " 50 grammes and 100 grammes 5 " for each 100 grammes or fraction of 100 grammes thereafter.

The number of packets of printed matter has increased rapidly, as the subjoined table shows:--

Number of Packets of Ordinary Printed Matter

1877 195,148,116 1883 315,315,725 1889 406,252,198

The administration are given power to delay the despatch or transmission of packets of ordinary printed matter should circ.u.mstances render that course desirable.

In 1827 a special rate of 5 centimes for those delivered locally, and 10 centimes for others, was conceded to certain formal printed doc.u.ments, such as notifications of births, marriages, or deaths. In 1856, to these were added prospectuses, catalogues, prices current, and _cartes de visite_. These doc.u.ments must be sent under band or in open envelopes.

The special rates on these cla.s.ses of packets have been continued.

Under an order of the 26th November 1909 the rate for _cartes de visite_ was made 2 centimes when sent under band, but formulas of courtesy must not appear on the cards. _Cartes de visite_ sent in open envelopes are still charged 5 centimes.

GERMANY

In Prussia the order of 1712 did not provide a special rate for ordinary printed matter sent by letter post. A reduced rate of two-thirds that for ordinary merchandise was, however, provided for books and other similar matter,[474] under the name of _Schriften- und Aktentaxe_, when sent by parcel post.[475]

In 1821 special rates were prescribed for various cla.s.ses of printed matter sent under band (_Versendung unter Kreuzband_), viz. books, music, catalogues, prospectuses, prices-current, printed circulars, as follow--

For each ordinary sheet of printed matter or for eight sheets small octavo size 8 pf.

For a half sheet 5 pf.

" quarter sheet 4 pf.

" sheet of music 10 pf.

" half sheet " 5 pf.[476]

The sheets were to be sent under band, and the name of the sender and the number of sheets were to be written on the outside. The sending of written matter in such packets was forbidden, under penalty of a fine of ten times letter postage on a packet of the same size. In 1824 the rate for matter sent under band (printed lottery winning lists, etc., were now included) was made a quarter letter rate, and, like other rates, was made chargeable according to direct distance of transmission. When, in 1850,[477] the rates for letters were revised and reduced, the rate for matter sent under band was continued at a quarter letter rate, and became (for 1 loth Zollgewicht = 1-1/8 loth Prussian)--

Up to 10 German miles 1/4 sgr.

10 to 20 " 1/2 sgr.

Over 20 " 3/4 sgr.

With the exception of the name and address of the addressee no writing was permitted on these packets, but by the order of the 29th May 1848 the writing of the name and address of the sender and the date was permitted.

With the increase in the number of packets sent under band at the reduced rate, there grew up an increasing abuse of the privilege by the enclosure in such packets of written communications. In order to check this, it was provided in 1843 that when any large number of such packets were posted by the same person, a few of the packets should be examined in the presence of the sender. No penalty was at first imposed; but in 1850 it became necessary to take action, and the royal order of the 12th June 1804, prescribing a penalty of 10 thalers in cases where a letter was enclosed in a packet pa.s.sing at a rate less than letter rate, was made applicable to the case of packets sent under band; and the regulation of the 15th December 1821, prescribing a surcharge of ten times letter rate for a packet of like weight, was made applicable to cases where a communication was written on the printed sheet sent at the reduced rate.[478]

In 1850, when the German-Austrian Postal Union was founded, a uniform rate of 4 silverpfennigs for each loth was introduced for packets sent under band. Following the establishment of the Union, the Prussian administration (-- 50 of law of 5th June 1852) fixed a uniform rate for its own service of 6 silverpfennigs for each loth. For local packets sent under band (_Stadtpost-Kreuzbandsendungen_) a rate of 1 sgr. for each packet was introduced, reduced to 4-1/2 pf. for each packet when as many as 100 packets were posted at the same time, or 6 pf. each when from 25 to 100 were posted at one time. The definition of printed matter ent.i.tled to the privilege[479] was now enlarged.[480] The penalty for misuse of the privilege was made a surcharge of four times the amount of the postage, but not less than 5 thalers, which might be increased fourfold on repet.i.tion of the offence. In 1854 the maximum charge for packets sent under band was fixed at six times letter rate, in order to get rid of the anomaly of a higher charge on heavy packets sent under band than on letters.[481] The fact that packets under band could be sent for 4 pf. throughout the territory of the Union, but that for transmission within the Prussian territory the charge was 6 pf., and that in consequence Prussian commercial men were posting their packets abroad in large numbers, led to a reduction of the rate in 1856 to 4 pf.

for each loth.[482]

The large increase of traffic which resulted made desirable a simplification of the definition of packets ent.i.tled to the privilege.

Only communications of general application could pa.s.s, and the officials found themselves often in doubt as to the application of the existing definition. Thus, notices of the despatch of goods, invitations, or printed letters could not be sent at the privileged rate, while, e.g., notices of marriages could. So far as the Union was concerned, in 1860 the privilege was limited to doc.u.ments reproduced by mechanical means.[483] The maximum limit of weight was reduced from 16 loth to 1/2 pfund (15 loth). This definition was introduced in the Prussian inland service in 1861. The rate of postage was also modified in that year. The rate of 4 pf. for each loth was retained, but with the proviso that the charge on packets sent under band should not exceed twice letter rate.

This effected a great reduction of charge for the heavier packets.

Whereas previously the rate for a packet under band weighing 10 loth, sent more than 10 German miles, had been 18 sgr., it now became 6 sgr.[484] In 1865 a special rate of 4 pf. for printed matter sent in the form of an open card was introduced in Prussia.[485] The simplification of definition and reduction of rate resulted in a large increase of traffic.

In 1867, when the North German Postal Services were unified, the penalty for abuse of the privilege was reduced to a surcharge of four times letter rate, but not less than a thaler; and the law of 1871, founding the Imperial Post Office, abolished the fine because it had been found that the offences were for the most part committed through ignorance of the regulations. Slight changes were made in the regulations under which printed matter was admitted to the privilege, but no change was made in the rates of charge.

The law regarding the Imperial Post Office (28th October 1871) left the fixing of rates for printed matter to the Imperial Chancellor. The maximum limit of weight was raised from 1/2 pound (250 grammes) to 1 pound (500 grammes). The rates of postage were 1/3 sgr. for each 40 grammes up to 250 grammes, with a maximum of 2 sgr.; from 250 to 500 grammes, 3 sgr.[486] The large increase of traffic resulting from the reductions in the rates for printed matter and for samples caused practical difficulties, and in 1873[487] the acceptance of letters, postcards, printed matter, and samples was to be only in the _Briefkasten_.

In 1874[488] the limit of weight for printed matter was raised to 1 kilogramme, and the rate was made--

Not exceeding 50 grammes 3 pf.

50 to 250 grammes 10 pf.

250 to 500 " 20 pf.

Over 500 " 30 pf.

In 1879 (order of 8th March) the definition of printed matter was further extended.[489]