Another expedient remained, but this was one which had been tried during the last war, and the postmasters-general were not prepared to repeat it. The _Express_ packet, Captain Sampson, belonging to the Dover station, had been temporarily detached to Southampton to keep communication with the Channel Islands open. As some set-off against the cost, the Post Office had counted upon saving the ship-letter pence; but here again the want of an authorised packet postage made itself felt.

Sampson, though in receipt of a salary and at no expense for the boat he commanded, claimed and received the ship-letter pence, the postmasters-general regarding themselves apparently as legally incompetent to resist the demand. Without denying that a line of packets might be necessary for purposes of State, the postmasters-general now declined to promote one on Post Office grounds. Of the necessities of the State they were not the judges, and, if the State required the adoption of such a measure, it was for others to take the initiative.

The decision at which the Government arrived appears in the Act of 1794, which established a line of packets between England and the Channel Islands. The packet station was to be at Weymouth, the pa.s.sage from Weymouth being shorter than from Southampton, and Southampton Water being difficult to leave when the wind was contrary. For a single letter the postage, over and above all other rates, was fixed at 2d., and for a double and treble letter in proportion. Thus the cost of a single letter from London to the Channel Islands would remain the same as before. Hitherto there had been paid 4d. for postage from London to Southampton, 1d. to a factor at Southampton, 1d. for conveyance across, and 1d. to the island post office--for the islands had a post office, although it was a private one, and not under the control of the postmasters-general--making 7d. altogether. Now the charge would be the same, namely, postage to Weymouth 5d., and 2d. for the packet postage.

By the same Act of Parliament rates of postage were imposed within the islands similar to those which existed in England.

The abuses of franking now came under notice again. Ten years had elapsed since the pa.s.sing of the Act which provided that a letter, to be exempt from postage, must bear on the outside, as part of its superscription, its full date written in the member's own handwriting, and be posted on the date which the superscription bore. Of course, the object of the provision was to confine the privilege to members themselves, and to prevent them from obliging their friends at a distance with franks; but this object was almost universally defeated by the simple expedient of sending to their friends franks that were post-dated. It was a common occurrence for franks dated on the same day and by the same member to be sent from places three or four hundred miles apart.

The bankers who sat in Parliament were the chief offenders. Little did they think that an exact account was being kept of every frank that pa.s.sed through the London Post Office, or a.s.suredly they would hardly have ventured to keep their friends and customers supplied, as it was their practice to do, with the means of evading postage. How many bankers sat in Parliament in 1794 we are not informed; but whatever the number was, we know that during the three months ending the 10th of October in that year there pa.s.sed through the London Post Office no less than 103,805 letters franked by them, a number larger by one-fifth than the letters of the Court and all the public offices of the State combined.[75] During the same period those members of Parliament who were merchants and not bankers contented themselves with the comparatively modest number of 27,111. Two or three years before it had leaked out that the Government were considering whether a strenuous effort should not be made to abolish the franking privilege altogether, and it was no secret to the Post Office that in antic.i.p.ation of such an event the banking houses which had a partner in Parliament had concerted arrangements for sending their letters by the coaches in boxes.

[75] From this time the expression "banker's frank" pa.s.sed into a by-word, and was used to denote any frank, whether given by a banker or not, which was in excess of the prescribed number.

The Government were now resolved that, if the abuses of franking could not be stopped, they should at all events be restricted, and with this object a bill was brought in which pa.s.sed into law in 1795. Under this statute the weight which a member could frank was reduced from two ounces to one ounce; no letter was to be considered as franked unless the member whose name and superscription it bore was within twenty miles of the town at which it was posted either on the day of posting or on the day before; and in the course of one day no member was to send free more than ten letters or to receive free more than fifteen.

The same statute which restrained the abuses of franking made a not unimportant concession. In an Act pa.s.sed in 1753 a clause had been inserted providing that a letter containing patterns or samples, if it did not weigh as much as one ounce, was to be charged as a double letter and no more. This was now improved upon. Under the Act of 1795 a packet of patterns or samples might, on certain conditions, pa.s.s as a single letter. These conditions were that it did not exceed one ounce in weight, that it was open at the sides, and that it contained no writing other than the name and address of the sender and the prices of the articles of which he sent specimens.

A few months later another advance was made. At Lombard Street great inconvenience had been caused by the late arrival of the letters from the West End. The sorting began at five o'clock in the evening, and the mails were despatched at eight; but it was not until nearly seven that the bulk of the letters from the West End were brought in by the runners. Thus, while the first two hours of the evening were hours of comparative idleness, the last hour was one of extreme pressure.

Occasionally, we are told, there would at a quarter before seven o'clock be lying on the sorting table as many as 14,000 letters, all of which had to be disposed of by eight. At the present day 14,000 letters would be regarded as a mere handful. In 1796 it was a number which it taxed the utmost resources of the Post Office to dispose of within the allotted time.

How to relieve the pressure between the hours of seven and eight was now the question to be solved; and the presidents who had succeeded to Bonnor's place when this person was got rid of suggested that the object might be attained if, instead of the letters from the West End being brought to the General Post Office by runners, light carts were employed to bring them. Two carts would be enough for the purpose. One might start from Charing Cross and the other from Duke Street, Oxford Street, picking up bags at the different offices on their way. Thus the letters would reach Lombard Street earlier by some thirty minutes than heretofore, and there would be more time to sort and charge them. The drivers should, of course, be armed. The plan was adopted, and answered well; and this was the origin of what is called the London Mail-Cart and Van Service, a service in which are now employed daily as many as 550 vehicles.

Since the introduction of mail-coaches the robbery of mails on the main roads of the kingdom had entirely ceased. Now and then, but very rarely, there had been pilfering from a mail-coach as, through the default of those in charge, it stood at an inn door unguarded; and there had, no doubt, been one serious case of theft. On the 24th of October 1794 a man, giving the name of Thomas Thomas, went down by the mail-coach from London to Bristol, and returned on the following day. This journey he repeated on the 2nd, 3rd, and 4th of November, and on the last-mentioned date, when the guard's back was turned, he took advantage of the mail-box being left unlocked to steal the mails. But this was a case of theft, and not of robbery.

During the twelve years which had elapsed since Palmer's plan was established there had not been one single instance in which a mail-coach had been molested by highwaymen. Far otherwise was it with the horse and cross-post mails. In 1796 the distance over which these mails travelled was, in England, about 3800 miles, and hardly a week pa.s.sed without intelligence reaching headquarters that in some part or other of their course they had been stopped and robbed. Some roads enjoyed an unenviable notoriety in this respect, as, for instance, the road between Barton Mills and Lynn in Norfolk, the road between Bristol and Portsmouth, and, above all, the road between Chester and Warrington.

Between these two places, indeed, the mail had only recently been robbed on four different occasions.

Manchester and other towns now took the matter up, and urged that mail-coaches might be established on the roads where the robberies took place, not because coaches were necessary to carry the letters, but on account of the security which they afforded. Freeling proposed as an alternative that the horse and cross-post mails should be guarded. To supply the existing post-boys, or riders, as they were then termed, with firearms would have been worse than useless. They were mere boys--many of them not yet fourteen years of age--and with firearms in their possession they would have been more likely to shoot themselves than their a.s.sailants. Accordingly, Freeling proposed that no riders should be employed who, besides being of approved character, were not between the ages of eighteen and forty-five; that they should each be furnished with a brace of pistols, a cutla.s.s, and a strong cap for the defence of the head; and that, in consideration of an increased allowance to be made by the Post Office, the postmasters whose servants the riders were should be required to provide them with better horses than those hitherto in use.

Of all the plans which, through a long course of years, were submitted to Pitt for the improvement of the posts this was the only one to which he demurred. He did not, indeed, deny its efficacy; but it would involve a cost of at least 6000 a year, and, pressed as he was for money, he declined to say more than that the plan might be carried out if the persons interested were willing to bear the additional expense, but not otherwise. For us with our present knowledge it is easy enough to see that the surest and most popular way of transferring the expense to the public would have been to cheapen the postage. In 1796 no other way appeared feasible than to make the postage dearer. To this object the postmasters-general now devoted themselves, and before many months were over they had prepared a bill which, with some modifications, was adopted by the Government and pa.s.sed into law.

In the new Act, which came into operation on the 5th of January 1797, the ambiguous term "stage" was dropped, and the whole of the rates were fixed according to distance, thus--

+------------------------------------------------------------------+

ON AND AFTER THE 5TH OF JANUARY 1797.

+-------------------------------+--------+--------+--------+-------+

Single

Double

Treble

Letter.

Letter.

Letter.

Ounce.

+--------+--------+--------+-------+

_d._

_d._

_d._

_d._

Not exceeding 15 miles

3

6

9

12

Exceeding 15 and not exceeding

30 miles

4

8

12

16

Exceeding 30 and not exceeding

60 miles

5

10

15

20

Exceeding 60 and not exceeding

100 miles

6

12

18

24

Exceeding 100 and not exceeding

150 miles

7

14

21

28

Exceeding 150 miles

8

16

24

32

To and from Edinburgh

8

16

24

32

+-------------------------------+--------+--------+--------+-------+

Within Scotland the rates were raised by 1d. for a single letter, by 2d.

for a double letter, and so on. Another important change was made.

Hitherto, in the case of letters from Portugal and America, the packet postage had carried them to their destination. For the future these letters were to be subject to the inland rates as well as the packet rates. Thus the packet rate from Lisbon had been, on a single letter, 1s. 6d. It was now to be 1s.; but if for London the letter would be charged with the inland rate of 8d.--this being the postage from Falmouth--and if for Edinburgh with 8d. more, or 2s. 4d. altogether. As the packet postage from America remained unchanged, namely, 1s. for a single letter, the inland rate was in this case a pure addition.

The postmasters-general were now doomed to a serious disappointment.

Their proposal to raise the rates of postage was, there can be no doubt, dictated, at all events in part, by a desire to carry out the project of guarding the horse and cross-post mails. Pitt had stated that he would approve this project if the persons interested would bear the expense of it; and unquestionably the expense, and much more than the expense, was thrown upon the persons interested by the higher sums which they had now to pay for their letters. The postmaster-generals' object, however, had not been avowed, and no understanding had been arrived at. Their proposal to raise the rates of postage had met with ready acceptance.

Their proposal to guard the horse and cross-post mails, though repeated again and again, continued to be rejected.

Although much had been done during the last few years to introduce order and regularity among the packets, some little mystery still surrounded their proceedings. In March 1798, out of twenty packets on the Falmouth station there was not one in port to carry the mails to Jamaica and the Leeward Islands; and this was the second time within twelve months that the same thing had occurred. The West India merchants waited on the postmasters-general to complain. On this occasion an armed cutter was borrowed from the Admiralty to take out the mails; but the fact remained that between the 5th of April 1793 and January 1798 no less than nineteen packets, all of them belonging to the Falmouth station, had been captured by the enemy, and that the Post Office had had to replace them at a cost of close upon 50,000.

The merchants demanded, as they had done a year before, that the packets should be armed. Armed indeed in some sort they were already, but only with six four-pounders apiece, and with small arms so as to be able to resist row-boats and small privateers. The merchants urged that this was not enough. The postmasters-general replied that they could do no more, that the true policy was not to arm the packets with a view to their engaging the enemy, but so to construct them that they might outsail him. The merchants met to consider the reply which had been given, and, as the result of their deliberations, they prepared a memorial, copies of which were sent to the postmasters-general and the minister. In this memorial misgivings were expressed which, even at this distance of time, it is impossible not to share. During the last three years the average duration of voyage had been, from Falmouth to Jamaica, forty-five days, and from Jamaica to Falmouth, fifty-two days. These, as the memorialists pointed out, were not quick voyages; still less were they quick voyages for vessels which had been specially constructed with a view to expedition. It was extraordinary, too, built and equipped as the packets were, that out of nine that had been recently captured eight should have fallen a prey to private ships of war, which presumably enjoyed far less advantages in point of sailing. The conclusion at which the merchants felt constrained to arrive was that "in the mode of loading or navigating the packets some abuses exist sufficient to counteract the advantages of their construction."

And yet, mysterious as their proceedings were, ample evidence is at hand that the packets were both willing and able to fight as occasion required. Indeed, to this period belong some of their smartest engagements. We will give one or two instances. On the evening of the 17th of October 1797 the _Portland_ packet, Captain Taylor, was lying becalmed off the island of Guadeloupe when a French privateer, the _Temeraire_, bore down upon her. The privateer carried sixty-eight men and the packet thirty-two. A light breeze springing up, the _Portland's_ head was got off sh.o.r.e, and for the time she contrived to elude her antagonist, who followed her all night under easy sail. At daybreak the same distance separated the two ships as on the preceding evening; but as the _Temeraire_ began to overtake the _Portland_, Taylor fired the first shot. The shot was returned, and the privateer hoisting the b.l.o.o.d.y flag grappled the _Portland_ and boarded her on the lee quarter. Laying hold of the jib-stay Taylor ordered it to be lashed to the packet, and called upon the pa.s.sengers and crew to open their musketry. A fierce engagement ensued, which ended in favour of the _Portland_. Out of sixty-eight men on board the privateer no less than forty-one were either killed or wounded. A treacherous shot fired after she had struck her colours carried off the captain of the packet in the moment of victory, and as he was endeavouring to allay the carnage.

Among the pa.s.sengers on board the _Portland_ were four military officers, captains in the English army. That these officers in no small measure contributed to the result may be taken for granted; but silent as to their own deeds they extolled in the highest terms the prowess of the captain and crew, and it was from the independent testimony which they and the other pa.s.sengers bore that the gallant action became known to the postmasters-general.

Another and still more brilliant engagement had taken place a few years before. On the 27th of November 1793 the _Antelope_ packet, Captain Curtis, sailed from Port Royal in Jamaica with twenty-nine men. She, like the _Portland_, had on board a few pa.s.sengers, among whom were Colonel Loppinott, an independent witness to the events that followed, and a young man of the name of Nodin. Nodin had been a midshipman in the Royal Navy, and, having resigned his commission, was on his way home to England to seek for other employment.

On the morning of the 1st of December, when the _Antelope_ was about five leagues off c.u.mberland harbour in the island of Cuba, the _Atalanta_, a French privateer, hove in sight and immediately gave chase. The privateer carried eight carriage-guns and sixty-five men. The packet carried the usual six four-pounders, and out of her crew of twenty-nine men four had died of fever and two others were prostrate from the same cause, so that her complement was practically reduced to twenty-three. The pursuit continued until the morning of the 3rd, when, the _Atalanta_ coming within gunshot and hoisting French colours and the b.l.o.o.d.y flag, broadsides were exchanged. The two ships now grappled, and on the part of the privateer an attempt was made to board both fore and aft. Fore, the a.s.sailing party, fifteen in number, were swept away by the guns; aft, where there were no guns, the a.s.sault was also repulsed but at a cost of life which made the disproportion between the numbers on the two sides even greater than before. Among those that were killed in this sally was the captain of the packet; and the mate having been severely wounded, the command devolved upon John Pascoe, the boatswain.

Another attempt was now made to board, and, like the first, was successfully resisted.

This result was largely due to Nodin's intrepidity. Standing by the helm and armed with a pike and a musket he alternately used these weapons with deadly effect. As the men climbed the sides, he sprang forward and cut them down with his pike; then he returned to the helm and righted the ship; then seizing his musket he loaded it and flew to quarters; and as he was cool and collected and a sure marksman every shot told. On the repulse of the second attempt to board, the privateer's grappling-rope was cut and she tried to sheer off; but this Pascoe prevented by lashing her square sail-yard to the fore-shrouds of the packet. The privateer's fire now began to slacken, which was only a signal to the others to renew their energies. The _Antelope_ poured in volley after volley of small-arms; and at length the marauders cried out for mercy and, expecting none, some of them jumped into the sea and were drowned.

Altogether, when the b.l.o.o.d.y flag was torn down from the mast-head of the _Atalanta_, only thirty men remained out of the sixty-five with which she had begun the combat; and of these thirty one-half were wounded. The troubles of the packet were not yet at an end. As the smoke cleared away she was found to be on fire; and it was not until the mainsail, quarter cloths, and hammocks had been cut away that she was able to carry her prize into Anotta Bay.

The officers and crew of the _Antelope_ did not go unrewarded. For distribution among the survivors and the families of those who had been killed the House of a.s.sembly in Jamaica voted the sum of 500 guineas; 375 guineas were afterwards presented for the same purpose by the Society for Encouraging the Capture of French Privateers; the postmasters-general showered small pensions and gratuities; and--what was the highest compliment of all--the _Atalanta_, though a droit of admiralty, was given up to the captors.

It was always when pa.s.sengers were on board that the Post Office heard of these brilliant achievements on the part of the packets. We are not sure that this fact may not help us to unravel the mystery which perplexed the merchants. May it not be that, when the check exercised by the presence of pa.s.sengers was removed, the packets at the end of the last century, like those of a hundred years before, went in quest of adventure and matched themselves against superior force or otherwise engaged in illicit operations? The series of captures which the merchants could not understand, and, where there were no captures, the dilatoriness of the voyages, would thus be explained.

The usage of the Post Office one hundred years ago differed in not a few particulars from the usage of to-day. At the present time no postmaster-general would think of calling for a daily return of the number of letters pa.s.sing through the London office with the amount of postage paid or to be paid upon them. Yet such a return was, a century ago, sent to the postmasters-general regularly every morning, and it was esteemed the most important paper of the day. At the present time any instruction which may have to be given to the sorting office is entered in what is called the Order Book; and this book is signed by all whom it concerns. One hundred years ago, all instructions were made known by the presidents reading them aloud in the sorting office on Mondays and Sat.u.r.days, when the men were a.s.sembled for the purpose. It was thus that appointments, promotions, and punishments were also announced. One hundred years ago, when a letter-carrier's walk became vacant, a bell was rung, and, the letter-carriers being collected together, the vacancy was offered to the senior, and if the senior declined it, to the next in rotation, and so on. When a Post Office servant died, his salary was paid not only to the date of death but to the end of the current quarter.

Another practice then existed, a practice dictated, as some may think, by convenience and common sense. It was that counsel engaged in Post Office cases gave receipts for their fees. In connection with this practice a curious incident occurred. Walsingham had ordered an independent inquiry to be made into the solicitor's accounts, and, in the course of the investigation, the inspector came across a heap of receipts signed, or purporting to be signed, by some of the most eminent lawyers of the day. Walsingham had suspected imposition before, and now he was sure of it. The solicitor, had he been asked, would no doubt have explained, as indeed was the case, that the practice dated from 1703, and originated with G.o.dolphin, who, failing to see why counsel engaged by public offices should be exempt from doing what all other persons were required to do, issued peremptory injunctions that in legal cases no more fees should be paid by the Post Office for which receipts were not given.[76] Instead, however, of addressing himself to the solicitor, Walsingham referred to Kenyon, the Lord Chief Justice; and Kenyon's reply, as Walsingham himself admitted, filled him with astonishment. It was simply that when attorney-general he had always given receipts for fees from public offices, understanding when he was appointed that such was the practice, and that it had long been so.

[76] This is G.o.dolphin's letter:--

TREASURY CHAMBERS, _June 8, 1703_.

GENTLEMEN--My Lord Treasurer hath commanded me to signify to you his Lordship's direction that whenever your Sollicitor shall pay any fees to any Serjeant or Councellor at law, or give any sum or sums of money for coppys to any Clerk or Clerks or Officers in any Court or Courts of Record at Westminster, he shall take a ticket subscribed with the hand and name of the same Serjeant or Councellor or from the Clerk or Officer testifying how much he hath received for his fee or hath been paid by him for coppys, and at what time and how often, according to the statute in the third year of the reign of King James the First, made and provided in that behalf, and His Lordship directs you to take care that what money shall be hereafter expended for law charges relating to the Revenue under your management, the same be so expressed in the Bill of Incidents, that it may appear to His Lordship that the above-mentioned directions have been duly comply'd with.--I am, gentlemen, your most humble servant,

WILLIAM LOWNDES.

Sir Robert Cotton, Knight, and Sir Thomas Frankland, Bart.

One more custom we may mention as existing a century ago, a custom which was then abandoned, but not without manifest reluctance on the part of those whose interest it was to keep it alive. At the present time our friends at the Treasury are credited with taking advantage of the accident of their position to get themselves appointed to the best situations in all the public offices of the State. One hundred years ago the blackmail which these gentlemen levied upon the public offices took another form, a form a little coa.r.s.er perhaps but less provoking. At the beginning of each year they exacted tribute which, disguised under the name of New Year's gifts, were really New Year's extortions. The correspondence which pa.s.sed between the Treasury and the Post Office, when these extortions ceased, unlike official correspondence generally, is so short and to the point that we cannot do better than give it in full:--

The TREASURY to the POST OFFICE.

TREASURY CHAMBERS, _Oct. 10, 1797_.

MY LORDS--The Lords Commissioners of His Majesty's Treasury having had under their consideration a Report of the Select Committee of the House of Commons on Finance in the last session of Parliament respecting this office, I am commanded by their Lordships to acquaint you that they have determined that the practice of receiving New Year's gifts by any person in this department shall be discontinued, and that your Lordships may not send them as heretofore.--I am, my Lords, etc., GEORGE ROSE.

The POST OFFICE to the TREASURY.

GENERAL POST OFFICE, _Jan. 13, 1798_.

MY LORDS--We beg leave to acknowledge the receipt of Mr. Rose's letter of the 10th of October acquainting us of your Lordships'

determination that the practice of receiving New Year's gifts by any person in your department must be discontinued, to which we shall pay proper attention.

It is necessary to state to your Lordships that Mr. Rose's letter, although dated the 10th of October 1797, was not brought to this office until the 1st of January 1798; but it was received in due time to enable us to attend to the purport of it.--We are, my Lords, etc.,

CHESTERFIELD.

LEICESTER.

It is needless to add that hitherto these New Year's gifts had been despatched from the Post Office on the evening of the 31st of December.