No. 1.

To the R^{t}. Hono^{ble}. the Lord Com^{rs}. of his Maj^{tie}. Treasury.

May it please your Lordshipps

The Postmaster Generall Representation for Increasing the Clarks Salaries.

Wee humbly lay before your Lo^{r}pps that upon some Information given the last summer to the then Lords Justices as if his Majesties Revenue of the Post office was lessened by a practice which had been long used of the Clarks of the Roads sending great quant.i.tys of Gazetts and other Prints free of postage. Their Exellancyes thought fitt to lay the same before his Maj^{tie}. who was thereupon pleased to signifie his pleasure to us by the Lord Keeper (now Lord Chancellor) in a Comittee of Councell that his Majes^{tie}. did not think it reasonable that Practice should for the future be continued but we acquainting their Lordshipps that this having been a perquisite constantly allowed to the six Clarks of the Roades on consideration of the smalness of their Sallarys it would be reasonable upon the taking of it away to allow them a compensation for the same whereupon they told us wee should lay that matter before your Lordshipps of the Treasury as wee now doe and upon the strictest enquiry wee can make the Case appears to be as followes.

Upon the first Establishing of the Post office England was divided into six Roades and a Clark appointed to each Road and their Sallaryes being but small they were constantly allowed even by the farmers themselves the privilidge of sending Gazetts and some other prints free, as the business and Revenue of the office increased by petting up new posts soe likewise did their perquisites In soe much that complaint was made thereof to the late King James when Duke of York who upon a full examination into the matter thought it more adviseable to continue it as an Incouragement to them than to compensate them by an addition of Sallary and besides that the office hath considerably increased since wee came into it the present Juncture of affairs by the frequent and long sessions of Parliament and the War wherein the greatest part of this side of the world is engaged hath occationed peoples being more desirous of News then formerly soe as wee believe the postage of prints sent by the six Clarkes may now amount to about ... tho att the same time the Clarkes does not receive soe great an advantage by them they paying the first cost for them and susteyne frequent losses by their Customers failing in their paym^{t}. Now upon the takeing this perquisite from them wee are humbly of opinion it will be reasonable to give them such an equivolent as is conteyned in the skeme hereonto annexed for wee must observe to your Lordshipps that not only the improvement of the Revenue but all the letters being duely accounted for doth in a great measure depend upon those officers they being the persons who make the charges upon all the Postmasters of England and the very nature of the office requires such despatch that its scarce possible to contrive such Cheque but y^{t} these officers being in combination with the Postmasters may defraud his Majestie and therefore it does not seem adviseable that men should be under such a temtation for want of a due Incouragement.

The attendance is alsoe soe great and at those unseasonable times and houres as renders them uncapable of applyeing themselves to any other business whereby to helpe to support themselves and familys though the Addition of Sallary which we have proposed doth not amount to halfe so much as the Postage of Prints now sent by the severall Clarkes yet we cannot say his Majesty will be a gainer thereby for it must be considered y^{t} many persons who are now furnished with them from the Clarkes for Two pence a peice will scarce have them if they must pay a groat or six pence a peice beside the troubling some friend in Towne to send them and whether they may not find out some otherways of being furnished with them then by the Post as by Flyeing Coaches &c^{t}. or whether those officers or persons who have the privelidge of franking their letters may not hereafter supply those with such Prints as they are now furnished with from this office.

Whereas the business of the office is soe much increased that for the regular and due dispatch of the letters wee have been forced to appoint a Sortor to each Clarke of the Road for an a.s.sistant whereby their trouble and attendance is very much greater then it was and being taken from sorting the burden and trouble of the rest is proportianably increased as there are fuer hands to perform it nether they or the a.s.sistant having any other advantage or perquisites besides theire bare sallary of forty pounds a yeare which is soe poor a subsistance that such as have dyed since wee came into the office have scarce left enough to bury them wee are humbly of opinion this may deserve your Lordshipps Consideration and soe upon the whole matter though we must acknowledge it an unseasonable time to propose an increase of Sallaryes which has made us defer it thus long we could not omit this oppertunity of doeing it and humbly hope if your Lordshipps shall think fitt to give these poor men the Incouragement proposed it will tend very much to his Majesty Service in this office.

No. 2.

The Right Honorable Lord Walsingham, and the Earl of Chesterfield, His Majesty's Post Master General.

The undersigned the Clerks of the Roads gratefully considering the Report made by your Lordships to Government which recommends for them a Salary of Three Hundred Pounds p. Annum with their present privilege of franking Newspapers unimpaired ask permission to submit to your Lordships Notice the following plan for increasing the circulation of Newspapers and in consequence the Revenue arising from the Stamp duty probably to the Amount of Eight thousand pounds p. Annum though attended by no additional expence to Government but entirely at their own risque and which they have determined immediately to execute should your Lordships arrangement take place.

They would first premise that when they were relieved by your Lordships from the payment they formerly made to the officers in this Department and from the Office which was filled by Mr. Tamineau, they reduced their charge from forty Pounds per Centum to Twenty & Twenty five Pounds per Centum on the prime cost of the papers which latter sum is the additional charge now made on the prime cost by all the Stationers Printers & Dealers who serve the Country with papers, and if in some cases it be less, it is on account of payment being made in advance.

They now propose upon the Establishment of your Lordships Arrangement to reduce the general charge on the prime cost from twenty and twenty five per Centum to ten and fifteen pounds per Centum, and as all the circulators of Newspapers will now regulate their charge for Newspapers sold in the Country by that of the Clerks of the Roads, the charge fixed by the Clerks will be the general one in the course of Six Months from its commencement.

This reduction will cause a greater demand for Newspapers in the Country many who now take a Weekly paper will then take a three day paper & many who now take a three day paper will then take a six day paper and two Persons who now join the expence of a Weekly or a three day paper may be induced by the reasonable charge to take each a paper or increase the number as above, and as the reduction becomes generally known which by the means of their Agents the Post Masters and other correspondents throughout Great Britain & Ireland it can be in fourteen days, the Stationers Printers and Dealers must likewise lessen their charge or risk the loss of their Customers.

By abolishing the monopoly once enjoyed by the Clerks in the Offices of the Secretaries of State, and the Clerks of the Roads in this Office, permitting the Public to send and receive Newspapers free, the number increased as this circ.u.mstance became known from--20,967 to 78,217 weekly and it is by confirming this liberty to the Public and by a reduction in the charge that the circulation of Newspapers and consequently the increase of Revenue is intended to be promoted. The probable increase in the number of Newspapers circulated in the Country through the above reduced price may be stated at the lowest computation at one half penny each upon one hundred Newspapers each Clerk of the Road, one hundred each of the twenty princ.i.p.al Stationers & Dealers and for the more inconsiderable Dealers which are very numerous fifty of whom are known Four hundred papers by every poste, which together will make the additional number circulated every Post three thousand.

By preserving the privelege of franking to the Clerks of the Roads a compet.i.tion will be occasioned between them & the other Dealers, the Public will be supplied on more moderate terms, and an increase of consumption will be promoted but should this compet.i.tion be destroyed by the abolition of the privelege of the Clerks of the Roads, the princ.i.p.al Dealers purchasing the business carried on by less extensive circulation might thereby occasion a monopoly and then fix the price as it might suit their private interest and diminish the number of Newspapers circulated thereby greatly injuring the Revenue as formerly by the monopoly of the Clerks of the Secretaries of State and the Clerks of the Roads for it would be the interest of the Stationers and other Dealers as it was that of the Clerks under Government to sell a less number at an advanced price, the Capital employed would not be so large nor the trouble nor the risk so great.

The Clerks of the Roads here beg your Lordships attention to a proposal which there is no doubt will occasion a yet further increase of circulation of Newspapers, it has been before stated to your Lordships in the Report upon the Plan proposed by the Commissioners relative to a Tax on Newspapers that before the duty of one penny postage was laid on all Newspapers sent by Post to Ireland, the Weekly number remitted to that Kingdom was upon an Average 8,000, and that the Weekly number now sent upon an average is only 1,380, should Government consent to repeal this duty it is evident from the above statement that they would gain a considerable Sum the Clerks of the Roads will with pleasure make a considerable reduction in their charge to Ireland, as in the case of home consumption which will be a means of still further extending of circulation.

{ Number of Newspapers which pa.s.sed through the General Post { Office London between the 5th April 1764, and the 5th of April 1764 { 1765, with the amount at two pence each Stamp duty, and { London Newspapers 1,090,289 9,085. 14. 10 1790 { compared. { Number of Newspapers which pa.s.sed through the General Post { Office London between the 5th of January 1790 and the 5th of { January 1791, with the amount at two pence each Stamp duty, { London Newspapers 3,944,093 { Country ditto 123,200 { --------- { Total No. 4,067,293 33,894. 2. 2

{ Six Clerks of the Roads at 100 each night 600 Probable { Twenty Princ.i.p.al dealers at 100 do. 2,000 gain by { Fifty less Dealers at 8 each night 400 this plan. { ----- { No. 3,000 { 3,000 each night at two pence each Stamp duty 7,800 p. ann.

{ To Ireland before the Tax.

{ Number of Newspapers which pa.s.sed through the General Post { Office to Ireland between the 5th January 1780 and the 5th 1780 { January 1781 at two pence each Stamp duty, and { 416,000 3,466. 13. 4 1790 { to { To Ireland since the Tax.

Ireland { Number of Newspapers which pa.s.sed through the General Post compared. { Office to Ireland between the 5th January 1790 and the 5th of { January 1791 at two pence each Stamp duty and one penny each { Postage, { 71,766 897. 1. 6

EDMUND BARNES CHARLES COLTSON ISAAC HENRY CABANES SAMUEL ARDRON WILLIAM OGILVY CHARLES EVANS.

No. 3.

To The Right Honorable Lord Walsingham and The Earl of Chesterfield, His Majesty's Post Master General.

The paper from the Post Master General relative to the Tax proposed by the Commissioners having been communicated to the Clerks of the Roads and the Inspector of Franks they beg permission to offer the subsequent observations.

That the proposal by the Commissioners for Government to receive a Tax of a penny for the postage of each Newspaper pa.s.sing through the Post Office, however eligible it might appear at the time it was first proposed, will not they believe at this period, be productive of that expected advantage to the public the encrease of Revenue, as the reasons annexed among others may probably prove.

Because since the proposal was made to the Commissioners, and they made their Report an additional Stamp has been imposed of one halfpenny a paper, and another halfpenny on each has been added by the Printers, so that the Public now pay one penny more than they did at that time.

Because the proposed Tax would be a means of compelling the Stationers, Printers and Dealers to send their papers by Coach the same day at the customary charge of one farthing each paper instead of sending them by post on Government Account at a penny the second day. And it cannot be supposed that a number of persons many of them of considerable property would quietly submit to have the circulation of their papers confined to post conveyance at one penny each paper, without those serious efforts to oppose and prevent it which the prospect of certain and total ruin to their business and consequently to their Families must excite.

But allowing it were possible to confine the whole of the papers sold in the Country to post conveyance and a recompence made to those Stationers and Printers employed in the distribution at present would not the encreased price occasioned by this Tax very much diminish the Number of Newspapers now printed to the great injury of the Stamp duty? probably to a greater Amount than would be gained by the plan proposed. For were the Stage Coaches prohibited conveying Newspapers all the Morning Papers now conveyed by them to many parts of the Kingdom would be lost to the Stamp Revenue, and all the Morning Papers read at the Coffee Houses and other public Houses, would be collected by the Newsmen at a small sum each paper in the Afternoon and sent into the Country by the post in the Evening without the least trouble to themselves, it being their daily business to go round their London district, early in the Morning, and in the Afternoon before the dispatch of the Papers by the post.

Before the Penny postage was laid on all papers sent by post to Ireland the Weekly number remitted to that Kingdom was upon an Average 8,000: the Number now sent upon an Average is only 1,380 Weekly.

Because when the Tax was recommended by the Commissioners the first cost of a London Newspaper was threepence only, the first cost is now fourpence, to which add the Tax for postage it will be fivepence to any Post Town in England, which is one halfpenny more than the highest charge now made by any Dealer in the Country for a London Newspaper. But should this Tax take place the people who live at a distance from any Post Town must pay an additional halfpenny a Paper and some twopence on the receipt of each Paper which will bring the cost to fivepence halfpenny, some sixpence, and some as high as sevenpence each London Newspaper. This high price the Clerks of the Roads well know by experience would induce many people to take only a three day paper who now take a Six day paper and many who now take a three day paper only a weekly paper, and as the Salaries of the Clerks of the Roads employed in the business would be certain and no way answerable for any loss on the papers would there not be a great many people Customers no way able to pay for their Newspapers many of whom this mode of business would certainly introduce? consequently Government would be subject to several deficiencies in payment for Newspapers sent into the Country whether paid for half yearly, yearly, or each paper on delivery, the Receiver in the latter case would not feel himself obliged to give notice for his paper to be discontinued but would refuse it when offered, the cost of the paper would then be lost to Government. This latter mode of payment would give an opportunity to the Deputy Post Masters or their Clerks to Order more papers than actually required which after being read would be returned with the Quarterly Dead Letters to be allowed as refused or gone away.

Because the proposed Tax would cause a decided preference of Country Newspapers to those of London encrease the sale of the former and diminish that of the latter for as very few of the Country Newspapers pa.s.s through the Post Office, the Country Printers would be enabled to undersell the London Printers a penny a paper. The usual method with a Country Printer is immediately upon the arrival of his London paper to print his own with the London News and disperse them to Runners from ten to fifteen miles around the Town he resides in; these Runners not only disperse a considerable quant.i.ty of Newspapers but carry also letters which must materially injure the Revenue.

Because notwithstanding the Revenue to be raised by this Tax is very uncertain the conduct and management of it will be attended with much expence taken out of the hands of those deeply interested in its success the greater Burden will fall upon the Deputy Post Masters in the Country; the Country Newspapers when they arrive cannot be dispersed without a direction being numerous, the Deputies will no doubt expect an increase of Salary adequate to the business imposed on them; this it is conceived will bring a fresh expence upon Government. In most large Towns two additional a.s.sistants to the Post Master will be necessary one at 30 and the other at 20 per Annum, it will also materially delay (in most of the Post Towns) the delivery of the letters by the time it will necessarily take in selecting folding and directing the Papers; allowing the same time to a Post Master and his a.s.sistants as it takes herewith the same number of hands to dispatch them in the Post Office, the delay in many large Towns will be from one to two hours.

The Clerks of the Roads not having received any recompence whatever for the losses sustained by the Act of 1764 which abolished their then privelege of franking letters and gave to the Public liberty to send and receive Newspapers etc. free by a permit from Peers and Members of Parliament to the great diminution of their Sale of Papers; and by the further extension of this liberty to the Public to send and receive them free under the Sanction of a Peer or Member's name without the usual permit; and by the Separation of the Irish from the English Office, would certainly consider themselves int.i.tled by Justice to a sufficient recompence for their Lives were the privelege now remaining to them taken away.

The rest of the Officers in the Inland department who have always been told to look up to a Clerkship of the Road as a reward for their long Services would also consider themselves ent.i.tled to larger salaries were the privelege of Franking Newspapers by the Six Clerks of the Roads further restricted or abolished.

Number of News Papers which pa.s.sed through the General Post Office London between the 5th January 1790 and the 5th January 1791 with the amount at one penny each--

London Newspapers 3,944,093 16,433. 14. 5.

Country " 123,200 513. 6. 8.

----------- ------------------ 4,067,293 16,947. 1. 1.

EDMUND BARNES ISAAC HENRY CABANES WILLIAM OGILVY CHARLES COLTSON SAML ARDRON CHARLES EVANS.

APPENDIX C

LIST OF AUTHORITIES

UNITED KINGDOM

ALLEN, RALPH. A Narrative of Mr. Allen's Transactions with the Government for the Better Management of the Bye, Way, and Cross Road Posts. 1761 (pub. London, 1897. _Vide_ _infra_, Ogilvie, A. M. J.).

ANDREWS, ALEXANDER. The History of British Journalism. London, 1859.

BAINES, F. E. Forty Years at the Post Office. London, 1895.

BEADON, R. J. Uniform Imperial Postage. London, 1891.