Part 13
Yet it seems never to have occurred to the postmasters-general that what was being done by others they might do themselves. The lesson that was lost upon the postmasters-general was to be learnt and applied by John Palmer, proprietor of the theatre at Bath.
Palmer had, while yet at school, been distinguished for a love of enterprise, an indomitable perseverance, and an activity of body which knew no fatigue and set distance at defiance. He had, through sheer persistency, obtained a patent for his theatre at Bath, which thus became the first Theatre-Royal out of the metropolis. At a time when the mail leaving London on Monday night did not arrive at Bath until Wednesday afternoon, he had been in the habit of accomplishing the distance between the two cities in a single day. He had made journeys equally long and equally rapid in other directions; and, as the result of observation, he had come to the conclusion that of the horses kept at the post-houses it was always the worst that were set aside to carry the mail, and that the post was the slowest mode of conveyance in the kingdom. He had also observed that, where security or despatch was required, his neighbours at Bath who might desire to correspond with London would make a letter up into a parcel and send it by stage-coach,[59] although the cost by stage-coach was, porterage included, 2s. and by post 4d. Not seldom, indeed, the difference would be more than 1s. 8d., for to prevent delay on the part of the porters in London one of these clandestine letters would as often as not have written on the back, "An extra sum will be given the porter if he delivers this letter immediately."
[59] Thus, Mrs. Thrale to Doctor Johnson. Writing from Bath on the 4th of July 1784, she says: "I write by the coach the more speedily and effectually to prevent your coming hither."--Hayward's _Autobiography of Mrs. Piozzi_, vol. i. p. 241.
Starting from these premises Palmer, with characteristic energy, set himself to devise a plan for the reform of the Post Office. This plan was simply that the mails--which, to use his own words, had heretofore been trusted to some idle boy without character, mounted on a worn-out hack, who, so far from being able to defend himself against a robber, was more likely to be in league with one--should for the future be carried by coach. The coach should be guarded, and should carry no outside pa.s.senger. For guard no one could be better than a soldier, who would be skilled in the use of firearms. He should carry two short guns or blunderbusses, and sit on the top of the coach with the mail behind him. From this position he could command the road and observe suspicious persons. The coachman also should carry arms; but in his case they should be pistols. A speed should be maintained of eight or nine miles an hour. Thus, the distance between London and Bath would, stoppages included, be accomplished in sixteen hours instead of thirty-eight; and these stoppages should, in point of time, be largely reduced. As the coach arrived at the end of each stage there would be little more for the postmaster to do than to put into the mail bag the outgoing letters and to take out of the bag the letters that were coming in. Surely a quarter of an hour would be ample for the purpose. He must indeed be an inexpert postmaster who could not change his letters as soon as the ostler changes his horses. Strict punctuality should be observed. Each postmaster should be on the spot and to the moment to receive the mail when it arrived; and if it did not arrive to time, a man on horseback should be despatched to ascertain the cause of delay. This, in the event of the coach having been stopped by highwaymen, would secure immediate pursuit.
And how little would be the cost of the proposed reform. It was doubtful indeed whether there would be any additional cost at all. The mails were now being conveyed at a charge for boy and horse of 3d. a mile. It was certain that men might be found who for this rate of payment would be glad to convey them by coach. Especially would this be the case if the coaches which carried the mails were exempt, as they ought to be, from toll. Between London and Bath, for instance, the toll was, for a carriage and pair, 9s., and for a carriage and four, 18s. Exemption from this impost would of itself be no inconsiderable boon to the contractors. Besides, the speed and security of a mail coach would attract pa.s.sengers. At all events something, it was clear, must be done.
As matters stood it was an intolerable hardship that persons sending letters by coach should be subject to penalties. A coach might go at a time when there was no post; and a letter might require immediate despatch. Yet, rather than make use of the coach and pay half a crown, one was obliged to hire an express, which was less expeditious, at a cost of two or three guineas. Surely, if no other change were made, this at least should be conceded--that any one taking a letter to the Post Office and paying the proper amount of postage upon it according to its address should, after the letter had been impressed with the postmark and signed by the postmaster, be at liberty to send it by what channel he pleased.
Such were the main features of Palmer's plan. As a subsidiary, though by no means a necessary, part of it he made two suggestions which it may be well to mention, if only because they were afterwards adopted. These were--1st, that the mails, which from the first establishment of the Post Office had not left London until between midnight and three o'clock in the morning, should start at eight in the evening; and 2nd, that they should not be kept waiting for the Government letters when these happened to be late. This keeping the mails waiting for the Government letters had, at the beginning of the century, been a constant source of complaint. "We take this occasion of representing to your Lordship,"
wrote the postmasters-general to Lord Dartmouth on the 16th of March 1710, "the great inconvenience which happened to the business of this office on Tuesday's night's post by the inland mails having all been detained here till the receipt of the Court letters, which were not brought by the messenger from Whitehall before half-past six on Wednesday morning." A similar letter of remonstrance was at the same time addressed to Mr. Secretary St. John. But, of late years, so profound had been the supineness which reigned at the Post Office that it may, probably enough, have been considered of little consequence whether the mails were delayed or not. Palmer was unable to take this view. To him it appeared in the highest degree improper that, for the sake of a few letters which after all might be of no great importance, the Post Office business of the whole country should be thrown out of gear. Far better, he urged, that the mail should leave at the proper hour, and that these letters, if behind time, should be sent after it by express. A third suggestion he made, a suggestion admirable in itself, and yet one that at that time was little likely to be adopted. This was that the Post Office should take the public into its confidence, and invite them to make known their wants and suggest how best these wants might be supplied.
In October 1782, through the intervention of his friend John Pratt, afterwards Lord Camden, Palmer's plan was brought under the notice of Pitt; and Pitt, who was then Chancellor of the Exchequer in the administration of Lord Shelburne, at once discerned its merits. Nothing, however, could be done until the Post Office had had an opportunity of offering its opinion on the matter, and when this opinion was given--which was not until July 1783--Pitt was out of office; and, although he returned to power as minister in the following December, the struggle in which he then became engaged with an unruly Parliament, and afterwards a general election, effectually precluded him from giving attention to the posts until the summer of 1784.
Meanwhile Palmer devoted himself to the perfection of his plan. He traversed the whole of the kingdom by stage-coaches, noting down the time they occupied in accomplishing their journeys, the time they unnecessarily lost, and how they might be better regulated and made serviceable for the transport of the mails. He took the same opportunity of acquainting himself with the course of the post and carefully observed its defects and delays. Nor did he trust to his own exertions alone. In order to test the extent of clandestine traffic, he employed persons to watch the Bath and Bristol coaches as they started for London, and to count the number of parcels which appeared to contain letters. These persons a.s.sured him that the number was never less than several hundreds in the week, and in some weeks was as high as 1000.
The office of postmaster-general was at this time held by Lords Carteret and Tankerville. Carteret had only recently been raised to the peerage.
Appointed thirteen years before as Henry Frederick Thynne in conjunction with Lord le Despencer, he had, amid the conflict of parties and the fall of successive ministries, contrived to retain his post.
Tankerville, on the contrary, had come in and gone out with a change of Government. Called upon to preside over the Post Office in 1782, he had left it in 1783 and had returned in January of the following year. The part which these two peers took in connection with Palmer's plan appears to have been not injudicious. Without expressing any opinion of their own as to its feasibility or otherwise, they contented themselves with collecting and forwarding to Pitt the opinions of such of their subordinates as were presumably qualified to judge. These were the district surveyors, and their verdict was unanimously against the plan.
Of the reasons for this judgment a specimen or two will suffice. By one it was objected that there could be no need for the post to be the swiftest conveyance in the kingdom; by another, that to employ firearms for the protection of the mail would encourage their use on the other side, and thus murder might be added to robbery; by a third, that not only did the posts as they stood afford all reasonable accommodation, but it was beyond the power of human ingenuity to devise a better system.
Of these and other objections Pitt made short work. He summoned a conference at the Treasury, at which were present the postmasters-general, Palmer, and the objectors; and having patiently listened to all that could be urged against the plan, he desired that it should be tried on what was commonly called the Bath road, the road between Bristol and London. This conference was held on the 21st of June 1784. On Sat.u.r.day the 31st of July an agreement was signed under which, in consideration of a payment of 3d. a mile, five innholders--one belonging to London, one to Thatcham, one to Marlborough, and two to Bath--undertook to provide the horses; and on Monday the 2nd of August the first mail-coach began to run.
It is unfortunate that of the early performances of this coach no record remains. We only know that on the first journey it started from Bristol and not from London, and that Palmer was present to see it off; that, ordinarily, the distance was accomplished in seventeen hours, being at the rate of about seven miles an hour; and that, as a result, the expresses to Bristol, which before 1784 had been as many as 200 in the year, ceased altogether. Ten or twelve years later, indeed, the expresses for the whole of the kingdom were not one-fifth of what, before 1784, was the number for the city of Bristol alone.
Palmer's plan, once introduced, made rapid progress. Mail-coaches began to run through Norfolk and Suffolk in March 1785; and on the cross-road between Bristol and Portsmouth in the following May. On the 25th of July the plan was extended to Leeds, Manchester, and Liverpool, and during the next two months to Gloucester and Swansea; to Hereford, Carmarthen, and Milford Haven; to Worcester and Ludlow; to Birmingham and Shrewsbury; to Chester and Holyhead; to Exeter; to Portsmouth; to Dover and other places. The Great North Road was reserved to the last, and here the plan was carried into effect in the summer of 1786.
It may be convenient here to say a few words on the subject of nomenclature. Post-coach, a term in vogue about this time,[60] might not unnaturally be supposed to denote a coach in use by the Post Office.
Such, however, was not the case. The term post-coach, like the kindred term post-chaise, was introduced probably early in the last century, and, so far as we are aware, was never employed in the sense of mail-coach. It should further be noticed that the term mail-coach, although we have employed it to make our meaning clear, did not come into use until after 1784. In that year, and for some little time afterwards, coaches which carried the mails were called diligences or machines, and the coachmen were called machine-drivers.
[60] Thus, the Act 20 Geo. III. cap. li. sec. 2--an Act pa.s.sed four years before the mails were carried by coach:--
"That every person who shall keep any four-wheeled chaise or other machine commonly called a diligence or post-coach, or by what name soever such carriages now are or hereafter shall be called or known...."
That the term post-coach, as distinguished from mail-coach, was in vogue as late as 1827 appears from evidence taken in that year before the Commissioners of Revenue Inquiry--"(Q.) Are you acquainted with the post-coaches? (A.) Not any very great deal. (Q.) Comparing them with mail-coaches, which do you think are the best formed? (A.) Decidedly the mail-coaches, I think."--Appendix to Eighteenth Report, p. 443.
The plan of carrying letters by mail-coach was, on its introduction, sadly marred by a simultaneous or almost simultaneous increase in the rates of postage. Pitt had brought forward his budget on the 30th of June; and among the measures he proposed with a view to replenish an exhausted Exchequer was a tax upon coals. The proposal was not well received by the House, and it was afterwards withdrawn in favour of an increase of postage. Palmer took credit to himself that he had proposed the subst.i.tution. If, as would appear to be the case, the claim is well founded, one can only regret that he should thus wantonly have handicapped his own proceedings. It is true, no doubt, that he was about to make the post both quicker and more secure; that he would have a better article to dispose of, an article that would fetch a higher price. It is also true that his plan, weighted as it was, proved an unqualified success. And yet it is impossible to deny that his reputation as a Post Office reformer, high as it stands, would have stood still higher if his counsel had been on the side of reduction.
The rates prescribed by the Act of 1784, as compared with those of 1765, were as follows:--
+-----------------------------+-------------------++-------------------+
1765.
1784.
+----+----+----+----++----+----+----+----+
DISTANCE.
S
D
T
O
S
D
T
O
i
o
r
u
i
o
r
u
n
u
e
n
n
u
e
n
g
b
b
c
g
b
b
c
l
l
l
e
l
l
l
e
e
e
e
.
e
e
e
.
.
.
.
.
.
.
+-----------------------------+----+----+----+----++----+----+----+----+
_d._
_d._
_d._
_d._
_d._
_d._
_d._
_d._
Not exceeding one post stage
1
2
3
4
2
4
6
8
Exceeding one and not
exceeding two post stages
2
4
6
8
3
6
9
12
Exceeding two post stages
and not exceeding 80 miles
3
6
9
12
4
8
12
16
Exceeding 80 and not
exceeding 150 miles
4
8
12
16
5
10
15
20
Exceeding 150 miles
4
8
12
16
6
12
18
24
To and from Edinburgh
6
12
18
24
7
14
21
28
{ The Irish Post Office had only
{ recently been placed under the
{ authority of the Irish Parliament;
To and from Dublin { and the rates of postage, not only
{ within Ireland, but between Ireland
{ and Great Britain, were awaiting
{ revision.
Within Scotland.
(Measured from Edinburgh.)
Not exceeding one post stage
1
2
3
4
2
4
6
8
Exceeding one post stage and
not exceeding 50 miles
2
4
6
8
3
6
9
12
Exceeding 50 miles and not
exceeding 80 miles
3
6
9
12
4
8
12
16
Exceeding 80 and not
exceeding 150 miles
4
8
12
16
5
10
15
20
Exceeding 150 miles
4
8
12
16
6
12
18
24
+-----------------------------+----+----+----+----++----+----+----+----+
The same Act which increased the rates of postage imposed, or sought to impose, additional restrictions upon franking. Some concessions indeed were made. Letters from members of Parliament, in order to secure exemption, need no longer be limited, in point of weight, to two ounces and, in point of time, to the session of Parliament and forty days before and after. As part of the superscription, however, were now to be given the full date of the letter, the day, the month, and the year, all in the member's handwriting; and the letter was to be posted on the date which the superscription bore. These restrictions, it was confidently expected, would correct the worst abuses and render the concessions harmless. But, curiously enough, like the restrictions of 1764, they had an exactly contrary effect to that which was intended. The members sent to their const.i.tuents and friends, for use as occasion should serve, franks that were post-dated. These the Post Office charged, as coming from places where the members were known not to be. The members remonstrated, demanding to be informed in what respects the conditions of the Act had not been satisfied. The dispute waxing warm, the matter was referred to Pitt; and Pitt, after testing the opinion of the House, decided that pending fresh legislation the charges should be abandoned.
Practically, therefore, the abuses which the Act was designed to prevent were not only not prevented but were given wider scope.
Palmer maintained to the end of his life that during the two years which followed the starting of the first mail-coach he was thwarted and opposed by the Post Office. This charge, so far as it refers to those by whom the Post Office was managed and controlled, we believe to be groundless. That he had difficulties with contractors and postmasters is beyond question. Contractors were at all times troublesome persons to deal with, but they were not Post Office servants; and postmasters might well be excused if they looked askance at the new plan. Their salaries, low as they were, had long been shamefully reduced by exactions at headquarters under the name of fees; and what little they had been able to make out of their allowances for riding-work was now threatened by a system under which that work was to be done by contract. But the charge was not confined to contractors and postmasters. It extended to those who controlled and directed the Post Office, to Carteret and Tankerville and to their confidential adviser, the secretary; and, as we believe, with very insufficient reason. Carteret was indifferent. Tankerville was sincerely desirous of a reform of the posts, from whatever quarter it might come. Anthony Todd, the secretary, was eminently a man of peace.
Appointed to the Post Office in 1738, he had arrived at a time of life when to most men ease and quiet are essential; and not only was he well advanced in years but it was not in his nature to thwart or oppose any one. All he wanted was to be left alone; and he was shrewd enough to know that the best way to secure this object was not to molest others.
Between Todd and Palmer, indeed, there was little in common. Palmer, in everything he undertook, was intensely in earnest. Todd, on the contrary, could with difficulty get up even an appearance of earnestness about anything which did not concern himself. Even of his duty Todd took a view which must have been absolutely repugnant to Palmer. Lloyds's coffee-house was supplied by the Post Office with the arrivals and sailings of British ships, and it paid for the information no less than 200 a year. One-half of this amount went into Todd's own pocket; and yet, according to him, the giving of the information was a concession, an indulgence. "The merchants," he would write, "are indulged with ship news." To the Mayor of Shrewsbury, who had asked on behalf of the inhabitants for an earlier post, he deliberately wrote, "The arrival of the mail a few hours sooner or later can be of no great consequence."
Not many years before, a despatch sent by express from Lord North to the Duke of Newcastle had been lost. Even to the minister Todd was not ashamed to write, "I dare to say there is no roguery in the case, but [that the letter has been] lost and trampled under foot in the dirty roads." Between a man who could take this view of his duty and Palmer, who was burning to perfect his plan, there could be little sympathy; but there was certainly no active antagonism. That, as Palmer extended his plan, doubts as to its merits arose at headquarters is perfectly true; but they were honest doubts, doubts which might excusably be entertained and which, if entertained, the Post Office was bound to express. Palmer, who regarded every one who was not for him as being against him, construed the expression of a doubt into an act of hostility.
Let us see what some of these doubts were, and whence they originated.
In London, before the introduction of Palmer's plan, it had been the practice to wait for the arrival of all the mails before any one of them was delivered, so that in the event of a single mail being behind time, no delivery at all might take place until three or four o'clock in the afternoon or even later. Palmer, of course, altered this. But now his interest in the Bristol coach led him to an opposite extreme. The Bristol mail was delivered the moment it arrived; and all other mails, by how little soever they might be later, were kept waiting. Again, before 1784 the post was frequently diverted from the high road in order that adjacent villages might be served. On the Bath road, for instance, although on this road there were fewer diversions than on any other in the kingdom, the post left the turnpike road between Hungerford and Marlborough in order to go through Ramsbury. Under the new arrangement it would have defeated Palmer's object to leave the direct track, if indeed the state of the roads would have admitted of it; and as the coaches could not go to the villages, the villages had to send to the coaches. Not in these cases alone was there, at first, a very general failure to effect a junction. Along every road on which a mail-coach was started the bye and cross posts were deranged and thrown into confusion; and, as a consequence, the Post Office was swamped with complaints from those whose letters had been delayed.
Had this been all, it would have been little more than might be expected in the course of transition from one system to another; but other causes of dissatisfaction arose. The Act of Parliament regulated the rates of postage according to stages--2d. in the case of a single letter, for one stage, 3d. for two stages, and beyond two stages and not exceeding eighty miles 4d.; but what was meant by the term stage the Act nowhere defined. Virtually it was in the power of one man, by the simple expedient of reducing the length of the stages and so increasing their number, to raise the rate of postage between any two towns in the kingdom that were not more than a certain number of miles apart. And this is exactly what Palmer did. From Rochester to Dartford, for instance, had been one stage. The single stage was replaced by two stages; and the postage, which had been 2d., became 3d. From Newbury to Devizes had been two stages. The two stages were increased to three; and the postage was raised from 3d. to 4d. And so it was throughout the kingdom. Well might the postmasters-general write, as they wrote under date the 7th of December 1785, "We are now at a loss in many instances how to rate letters and what to call by the name of a stage."
But not even the increase of postage which resulted from shortening the stages gave so much offence as the earlier closing of the Post Office in Lombard Street. The Post Office had from the earliest times been kept open to at least twelve o'clock at night, and probably a little later.
It now closed at seven o'clock in the evening, so as to admit of the mails starting at eight o'clock. Palmer had foreseen that objections might be raised to the change; but he was little prepared for the storm of indignation that followed. The first merchants in London, some of them bearing names still honoured in the city,--Th.e.l.lusson, Lubbock and Bosanquet, Herries, Quentin d.i.c.k and h.o.a.re,--protested in writing and afterwards waited on the postmasters-general in a body to support their protest. The leather-dealers followed suit, a body representing more than sixty firms. Some held that the Post Office should be kept open till nine o'clock, and others till ten or even eleven o'clock; but all were of opinion that seven was too early an hour to close. At a meeting held at the London Tavern, and presided over by one of the sheriffs, resolutions were pa.s.sed, copies of which were afterwards presented to Pitt in person, not only condemning the early hour of closing but calling for the adoption of measures with a view "to remove the inconveniences which had hitherto been experienced from the establishment of mail-coaches." No wonder if the postmasters-general doubted the merits of a plan which exposed them to these complaints.
Nor was it only from without that troubles came. The letter-carriers were grumbling and more than grumbling; and not without reason. For more than seventy years they had been ringing bells in the streets after the receiving houses were shut--until 1769 on the three nights of the week called grand post nights, and since that date on the bye-nights as well--receiving as their own perquisite 1d. on each letter they collected. Hence the men had made a comfortable addition to their wages of 12s. a week; and now, owing to the closing of the Post Office at seven, the emoluments derived from this source were rapidly dwindling and promised soon to disappear altogether.
Between Carteret and Tankerville differences now arose which, in view of subsequent events, it is impossible to pa.s.s unnoticed. On the break-up of the Shelburne administration in 1783, when Tankerville left the Post Office and Carteret remained, the two postmasters-general had parted with mutual expressions of regard and goodwill. A questionable transaction in which Carteret had been concerned, a transaction partaking of the nature of a corrupt bargain, had indeed come under Tankerville's notice; but he willingly attributed it to the malign influence exercised by his predecessor, Lord le Despencer. This favourable construction his later experience had induced him to modify.
One case in particular which occurred soon after his return to the Post Office had aroused the most painful suspicions. On Monday the 2nd of August 1784, the same day as that on which the first mail-coach started, the Post Office of Ireland was separated from the Post Office of England. Into the reasons of this separation, being as they were political, we do not propose to enter. Suffice it to say that the Government of Ireland took advantage of the occasion to displace Armit, the secretary to the Irish Post Office, and to reappoint John Lees, who had been secretary from 1774 to 1781, when he was promoted to the War Office. On his reappointment Lees wrote to the postmasters-general in London recapitulating the conditions on which he had been appointed ten years before, and stating that to those conditions, onerous as they were, he proposed in the main to adhere. He was indeed under no obligation in the matter, for he owed his reappointment to the Irish Government; but of this circ.u.mstance he had no desire to avail himself.
Armit had taken over the conditions from Lees; and Lees would now resume them from Armit. Let us see what the conditions were. In 1774 Barham, the packet agent at Dover, being compelled by ill-health to retire, was succeeded by Walcot, the secretary to the Post Office in Ireland, and Walcot was succeeded by Lees, who was new to the service. Barham, though superannuated, was during his life to receive from Walcot the full salary and emoluments of the packet agency, and Walcot was during the same period to receive from Lees the full salary and emoluments of the secretaryship. Lees was meanwhile to receive from Walcot a small allowance for acting as secretary. Thus far there was nothing unusual in the arrangement. On the contrary, it was an arrangement which in those days was very commonly made. That which was unusual, and which nowhere appeared in the official records, was an undertaking into which Lees had entered to the effect that, after Barham's death, he would make to a fourth person during that person's life an annual payment of 350. This engagement Lees, when reappointed in 1784, expressed himself unwilling to renew. He was quite prepared to resume the payment to Walcot, reduced only to the same extent as by recent legislation the secretary's emoluments had been reduced; but the reversionary payment to the gentleman whom he would designate by the initials A. B. rested on different grounds. From this he must beg to be released.
Now, who was A. B.? This was the question which Tankerville asked; and asked in vain. He could obtain no information on the subject. Meanwhile Carteret, who was extremely displeased and disquieted at the disclosure, caused an expression of his severe displeasure to be conveyed to Lees that he should have presumed to make public a transaction which was obviously designed to be private. Lees replied that, as he would be unable to keep the engagement, he was bound in honour to state so; that he had made known nothing more than was absolutely necessary in order to obtain an acquittance, namely, that after Barham's death an annuity of 350 had been agreed to be paid to some one; but who this some one was had been, and would continue to be, a profound secret. In London it had been whispered, and more than whispered, that A. B. was Carteret himself. On this point Lees was emphatic. The transaction, he said, concerns no postmaster-general, either living or dead. "With Lord Carteret it has personally no more to do than with the King of France."
Tankerville, though profoundly dissatisfied, resolved to let the matter drop; and during the next eighteen months the feeling of distrust with which he regarded Carteret did not prevent the two postmasters-general from working together harmoniously. It was not until June 1786 that an open rupture occurred. Some furniture had been ordered for the housekeeper's apartments, and Tankerville, regarding it as of too luxurious a nature, refused to countersign the bill unless the secretary could produce a precedent for the expense. This Todd might have had some difficulty in doing, as no housekeeper had resided on the Post Office premises since the year 1740; but instead of offering an explanation to that effect he waited for the next Board meeting, and, having already procured Carteret's signature to the bill, put it before Tankerville without remark. Tankerville, who never signed a doc.u.ment without examining its contents, inquired whether this was not the housekeeper's bill to which he had taken exception, and, on being answered in the affirmative, told Todd that he had been guilty of a gross impropriety.
Carteret, who had made no secret of his opinion that it was no part of a postmaster-general's duty to check tradesmen's accounts, took Todd's part; whereupon Tankerville, whose temper was always running away with him, observed that he would do no jobs, and that if a good understanding between himself and Carteret were only to be procured by such means he would rather that they should continue on their present terms.
The next business set down for discussion had a termination still more unfortunate. The office of comptroller of the bye and cross roads had become vacant, and Carteret, whose turn it was to appoint, had appointed Staunton, the postmaster of Isleworth. In addition to a salary of 500 a year, the appointment carried a residence in the Post Office building; and as the residence occupied by the late comptroller had by Pitt's desire been given to Palmer, Carteret proposed that Staunton should be recommended to the Treasury for an allowance of 100 a year as compensation. Tankerville, who had been in personal communication with Pitt and ascertained that he would object to an allowance for such a purpose, declined to join in the recommendation, explaining the reason.
Carteret's remarks implied, or seemed to imply, a doubt whether Pitt had really been seen on the subject, as alleged. Tankerville again lost his temper. High words ensued, and the Board broke up, Carteret declaring that it was impossible they should continue to act as joint postmasters-general, and that he should at once wait upon Pitt and inform him to that effect.
Carteret was as good as his word. In three days from the date of the Board meeting at which the altercation had taken place he waited upon Pitt; and Pitt, after labouring in vain to effect a reconciliation, at length dismissed Tankerville. Tankerville, who had been in constant communication with the minister on the subject of the abuses at the Post Office, and had sedulously applied himself to their correction, was hardly less surprised than he was indignant; and restating the origin of the disagreement between himself and his colleague, he demanded to be informed in what respects he had been to blame. Pitt replied that he could not enter into the merits of the question; that all it concerned him to know was that Carteret was necessary to him in the House of Lords; and that, as Carteret had expressed himself unable to act any longer with Tankerville, it had become essential to make another arrangement.
This decision as between two colleagues, of whom one was as clearly actuated by honesty of purpose as the other was not, a decision given too by a minister who had already established a character for purity of administration, seems so extraordinary that we must look for some further explanation. The truth we believe to be that owing to an ungovernable temper Tankerville was simply intractable, and had shewn himself to Pitt to be so. Even Todd, who with all his faults was essentially a man of peace, was unable to get on with him. "I am sorry to say," he wrote on one occasion, "your Lordship is the only postmaster-general I have not had the happiness to serve under with his perfect approbation." On another occasion he wrote to Carteret: "I have had a very unpleasant day of it. His Lordship is so completely jealous and wrong-headed, so that without entering into unpleasing particulars I had better leave him to his own thoughts." Tankerville's own letters afford evidence to the same effect. "I shall not be disposed to talk coolly on the subject of Mr. Dashwood, or hear anything you may have to say, unless you can prove him guilty of fraud, which I do not admit, but now tell you distinctly that I believe Lord Carteret has been indebted to you for that forced construction." Again, "I do not find that I cool very fast," Tankerville wrote from Brighton a week or so after the incident which had excited his ire. Ever his own worst enemy, he now spoiled a good ease, so far as it was possible to spoil it, by intemperate writing. Instead of keeping to the main question, he rambled off into side-issues which were all but irrelevant. Carteret had spoken of one interview with Pitt. Pitt had expressed himself as though there had been more than one. The point was absolutely unimportant. Yet Tankerville fastened upon it, and, declaring that one or the other must have been guilty of untruth, called upon them as men of honour to reconcile the discrepancy.
Intemperate as Tankerville's language had been, it was impossible that things should remain as they were. Nothing but a public inquiry would satisfy the justice of the case; and on this he was resolved. It was a matter of regret to him to impeach Carteret's conduct; but there was no other method of vindicating his own. "The causes of my removal," he wrote, "shall be made as public as the injury; and, however gratified your Lordship and those in concert with you may at present feel by the success of your measures, I will take upon me to foretell that the triumph will soon be at an end. I have been removed; others will be disgraced." "When your Lordship," replied Carteret, "shall think proper to bring this matter before the public, I flatter myself my conduct will be unimpeached."
A Parliamentary Committee of Inquiry was granted, and met for the first time on the 16th of May 1787. The session terminated on the 30th of the same month. Short as the interval was, evidence enough was taken to substantiate all and more than all that Tankerville had alleged. The Committee reported that a payment of 350 a year had been exacted from Lees as a condition of his appointment as secretary to the Post Office in Ireland; that a payment of 200 a year had been similarly exacted from Dashwood, the postmaster-general of Jamaica; that, while Lees had engaged to pay only in a future event, the payment in Dashwood's case had begun from the date of his appointment; that both payments were in favour of the person who had been designated by the initials A. B.; that the transactions, though protested against at the time, had been insisted upon by Lords Carteret and Le Despencer; and that not only had no record of them been made in the official books, but they had been kept carefully concealed. The Committee further reported that scandalous abuses had been found to exist at the Post Office, abuses which should be examined into and corrected forthwith; and that of many of these the First Lord of the Treasury had been specifically informed by Lord Tankerville before the latter was dismissed.
The chief interest of the inquiry, however, centred in the question--who was A. B.? A. B. proved to be one Peregrine Treves, a so-called friend of Carteret's, who had never performed any public service either in the Post Office or elsewhere. "Are you not a Jew and a foreigner?" asked the inexorable Committee. "Yes," was the reply. "In consideration of what services," the Committee continued, "did you receive these grants?"
"From friendship entirely," answered Treves.
Tankerville's prediction had been amply fulfilled. It was not he that was disgraced. Yet, curiously enough, Carteret made no sign. And even Pitt did nothing more than expedite the proceedings of a Royal Commission which was already sitting. This Commission had been appointed at his instigation some years before to inquire into the duties and the pay of certain public departments, of which the Post Office was one. It was now arranged that the Post Office was to be the next to come under review.
During these dissensions at headquarters Palmer's plan had made steady progress. Many of the irregularities inseparable from the introduction of a new system had been corrected. The cross-posts had been fitted to the mail-coaches, so that failures of connection were daily becoming fewer; and when the merchants found that answers to their letters were being received in less than half the usual time, and with a degree of punctuality never experienced before, their complaints respecting the early closing of the Post Office appear to have died away. The Post Office revenue bore evidence to the improved state of things, the net receipt during the quarter ending the 5th of January 1787 being 73,000, as against 51,000 during the corresponding quarter of 1784. According to all experience, the increase in the rates of postage should have had the effect of reducing the number of letters; but so far was this from being the case that the number of letters had increased in spite of the increase of rates. The truth is that clandestine correspondence had to a large extent ceased. There was no longer any temptation to send by irregular means, at a cost of two or three shillings, and at the risk of detection, a letter which would be conveyed at least as expeditiously and for one-third of that amount by mail-coach.
Palmer, who had to this time been a.s.sisted by persons selected by himself and not belonging to the Post Office, now bestirred himself to procure for them an established position. Public and private interests were for once identical. Hitherto there had been only three surveyors for the whole of England; and of these one had resided in London. At Palmer's instigation, England was now divided into six postal districts, and a surveyor allotted to each. A seventh or spare surveyor was held in readiness to be detached to any part of the kingdom where his services might be required. Each surveyor was to reside in the centre of his district, and his functions, shortly stated, were to keep an accurate record of the posts and of the persons under his charge, to see that these persons did their duty, to facilitate correspondence and to remedy complaints. The resident surveyorship, an appointment which had been created in 1742, was abolished as no longer necessary, Palmer himself being at hand to give what advice the postmasters-general might require.
The mode of remuneration was also altered. Hitherto the surveyors had received a salary of 300 a year without any allowance for travelling, the consequence being of course that they had travelled as little as possible. For the future the salary was to be only 100; but as an inducement to them to move about within their own districts, they were to have one guinea a day when absent from their headquarters. The whole of the additional appointments were conferred upon Palmer's nominees, and for the seventh or spare surveyorship he selected Francis Freeling, a young man of promise, who during the last two years had been actively engaged in regulating the mail-coaches throughout the country.
It was about this time or a little earlier that the conditions of Palmer's own employment were, at length, definitely settled, but not by any means to his own satisfaction. His first stipulation was that, besides being absolutely free from the control of the postmasters-general, he should have a commission of 2-1/2 per cent upon all increase in the net Post Office revenue, which should follow as the result of his own plan. Thus, the net Post Office revenue before August 1784 being estimated at 150,000, he stipulated for one-fortieth part of the excess over that amount. To this Pitt agreed; but freedom from the control of the postmasters-general was a point which it was out of his power to concede. The Act of Parliament const.i.tuting the Post Office would not admit of it. Even nominal subjection to the postmasters-general was so irksome to Palmer that he was constantly pressing that a special Act might be pa.s.sed to give him perfect freedom. Nor was this all. The increase in the rates of postage which came into operation one month after the starting of the first mail-coach was estimated to produce 90,000 a year, and Pitt deemed it only reasonable that this amount should be added to the previous revenue of 150,000, making 240,000 altogether, before Palmer could be allowed to draw his percentage. Of this variation of the original understanding Palmer bitterly complained, not seeing apparently that, as the increase of rates had been recommended by himself, the complaint reflected on his own singleness of purpose in making the recommendation.
Eventually it was decided that, in addition to a commission of 2-1/2 per cent upon the net revenue in excess of 240,000, Palmer should receive a salary of 1500; but even this settlement was not arrived at without grumbling on Palmer's part, and without serious misgiving on the part of the Post Office. Pitt highly approved the percentage, holding that it would serve as a constant incentive to exertion. Tankerville, while not denying the expediency of such a mode of remuneration, questioned its legality. Under the Act of Anne, which a subsequent Act had made perpetual, the Post Office revenue was appropriated to certain specific purposes; and he doubted the propriety of diverting any part of it as a reward for services, however meritorious. Clarendon, Tankerville's successor, entertained the same scruples; and except by the postmasters-general no appointment within the Post Office could be made. Palmer's objection, on the contrary, was to the amount of salary, on the ground that 1500 did not represent the fortieth part of 90,000.
Pitt declined, however, to give way; and on the 11th of October 1786 Palmer was appointed comptroller-general of the Post Office on the terms prescribed by the minister.
There can be no question that Palmer bargaining for terms is Palmer seen in his least pleasing aspect. The best that can be said is that he was candid enough not to disguise his object, which was to ama.s.s a fortune.
At Bath he had in his boyhood seen Ralph Allen living in a large house and dispensing hospitality on an extensive scale, and he could not bring himself to understand why the difference between his own and Allen's remuneration should be in the inverse ratio to the value of their improvements. And not only did Palmer exhibit an unworthy jealousy of Allen, but he did that good man, as we think, an injustice. When urging his own claims on the minister, he constantly insisted that Allen, on the introduction of his plan, had no difficulties to contend with, and that he kept that plan a secret. Never was there a more untenable position. That Allen had difficulties to contend with and how he overcame them we have seen in a preceding chapter; and the charge of keeping his plan a secret is refuted by the conditions of his contract, which prevented him from giving an instruction even to his own servants until it had been submitted to headquarters. No doubt it was not known until after his death that Allen had derived from the Post Office an income of 12,000 a year. His wealth had been supposed to come from the stone-quarries he possessed on Combe Down. But this was not the contention. What Palmer insisted upon was that, while he had disclosed his plan, Allen had kept his plan secret, and that, if only on that ground, the balance of merit was on his own side.
