Upon Richmond as postmaster-general of Ireland as well as England and Scotland it now devolved to sweep out the Augean stable; and his stern sense of duty peculiarly qualified him for the task. Rosse and O'Neill had ceased to be postmasters-general of Ireland upon the Act of incorporation pa.s.sing. Lees, their secretary, was removed from Dublin to Edinburgh. Only those who had performed their duties in person were retained. All others were summarily dismissed and pensions were refused to them. In the result the Irish establishment was reduced in point of numbers by one-half, and in point of cost by nearly 10,000 a year; and this after the salaries of those who were retained had been increased all round.

One important function had yet to be performed. This was to audit the Irish accounts, which had not been audited for fourteen years, and were known to be in a state of the utmost confusion. The receiver-general, who carried on the private business of banker and money-lender, had recently died, and speculation was high as to what further scandals the audit would reveal. All preparations had been made, and the persons selected for the task were on the point of starting for Dublin when intelligence reached London that the receiver-general's bond was not forthcoming. It had, shortly after his death, been surrendered under an instruction from Lees which, like the instruction which conferred upon his brother a valuable appointment, purported to have been given at a Board at which were present "the earls." The earls, as a matter of fact, had not been present and had never been consulted on the point. As it was felt that in the absence of the bond an audit would be of little use, the Government abandoned their intention, and the Irish Post Office accounts from 1817 to 1831 remain unaudited to the present day.

Lord Althorp was at this time Chancellor of the Exchequer, and the position which he a.s.sumed towards the Post Office was probably unique.

Ordinarily, between the Treasury and the Post Office there is a certain amount of antagonism which, deplorable as it may be, is not difficult to understand. The Post Office wants to spend money; the Treasury wants to save it. The Post Office knows by experience that it must sow before it can reap; the Treasury, while ready enough to reap, has a rooted aversion to sowing, and resolutely shuts its eyes to the fact that between the two processes there is a direct and necessary connection.

All this was reversed in Althorp's time. Often, during his tenure of office, might be witnessed the strange spectacle of a Chancellor of the Exchequer urging the Post Office to adopt some improvement, and the Post Office attempting to frighten him with the bogey of cost.

The first matter on which Althorp brought his authority to bear was the boundary of the general post delivery. The limits of this delivery were irregular and capricious in the extreme. Of two streets, possibly adjoining streets, one might receive its general post letters for the general post rate alone, while the other, though at no greater distance from St. Martin's-le-Grand, had to pay the twopenny rate as well.

The question now forced itself into prominence. Belgrave Square had been laid out, and the houses were being occupied as fast as they could be built. Those of the occupiers who were members of Parliament found to their chagrin that every letter they received cost them 2d., for the franking privilege did not clear the twopenny post; and, of course, by those who were not members of Parliament, 2d. had to be paid in addition to any other postage to which their letters might be liable. Althorp insisted that the general post limits should be not only extended but fixed on some definite principle. But what was the principle to be?

Contiguity of building? This was held to be impracticable. A line drawn on such a basis would extend beyond Brentford on the west to Hampstead and Highgate on the north, and beyond Clapham on the south. A line drawn according to parishes would be little better. The parish of St.

Pancras, which nearly touched Holborn in its southern extremity, extended as far as Finchley in the north, and the parish of Lambeth reached nearly to Croydon.

Another course would be to draw a circle of which the Post Office should be the centre, and let all letters within this circle be delivered free; but even with a radius of no more than three miles, the additional cost would be 25,000 a year. This was an outlay which the Post Office could not recommend, and, if it were incurred, the Government must take the responsibility. Althorp was not to be daunted, and after April 1831 the general post limits extended for a distance of three miles from St.

Martin's-le-Grand. A little later, the threepenny post was extended to a radius of twelve miles. This, boon as it was considered to be sixty years ago, was shorter by some miles than the radius of the penny post when Queen Anne ascended the throne.

Althorp was hardly less determined on the subject of the packets. It had been a matter of principle with Freeling, that to all places beyond the sea to which there was regular communication the Post Office should carry its own mails. That they should be carried in vessels belonging to private persons, however respectable these persons might be, appeared to him to be unworthy of the English Government, and on this ground many an advantageous offer had been refused.

Althorp held a different opinion, and an opportunity soon offered of carrying his own view into effect. From Harwich the mails to Holland and to Hamburg were still carried by sailing packet, and the merchants of London, regarding this as an anachronism, urged that the sailing packets might be replaced by steam packets. The request was not unreasonable, but, unwilling that the Government should be at the cost of subst.i.tuting one description of packet for the other, Althorp directed that the service should be put up to public compet.i.tion. Here we see the first application of a principle which in the result has furnished us with a fleet of packets such as no other country in the world can produce. The tender of the General Steam Navigation Company was accepted, though saddled with the condition that its vessels should start from the Thames. This was a death-blow to Harwich. The sailing packets for Sweden were, indeed, still retained there; but in little more than eighteen months the Swedish Government contracted for the mails to be forwarded from Hull, and Harwich as a packet station was closed.

But of all the changes which Althorp introduced perhaps the most important, and certainly the one which excited most opposition at the Post Office, was the abolition of the newspaper privilege. The number of newspapers sent by post from London into the country had, within the last fifty or sixty years, increased enormously. In 1764 they averaged 3160 a day, in 1790 the daily average was 12,600, and in 1830 it had risen to 41,412. The rate of increase, moreover, was advancing. In 1829 the total number of such newspapers was 11,862,000, and in 1830 12,962,000; and more than one-tenth part of the whole number was supplied by the clerks of the roads.

The news-vendors now took the matter up in earnest. A general meeting was held to protest against the Post Office servants being any longer allowed to compete with the private dealers, and a pet.i.tion to the same effect was presented to Parliament. This called forth a vigorous rejoinder from Freeling, and it is interesting to note by what arguments he defended his position. So far, he said, from the news-vendors having any ground of complaint against the Post Office servants, it is the Post Office servants who have reason to complain of the news-vendors. For their own interest and advantage a few persons engaged in a trade of modern creation are endeavouring by clamour to deprive others of the remains of an old and long-established privilege, which they exercise not only under the sanction of immemorial usage, but by the direct authority of Acts of Parliament. It is not as though the public were interested in the question. The public have absolutely no interest in it, except indeed to this extent--that, if what remains of the privilege be withdrawn, they will be asked to compensate those whose incomes are reduced in consequence, and to provide higher salaries for their successors; and this "for the sole purpose of transferring their authorised official remuneration to the pockets of a few individuals who, having been admitted to a partic.i.p.ation in what was originally an exclusive privilege, have now thought proper to set up a claim to the whole."

Such were Freeling's arguments, but Althorp was not convinced by them.

By his direction the privilege was withdrawn as from the 5th of April 1834, and those whose incomes suffered were handsomely compensated. Thus ended a practice which had existed from the first establishment of the Post Office, and which, while the Post Office was still in its infancy, may perhaps have had this to justify it--that except for the franking privilege possessed by the clerks of the roads the provinces would probably have had to go without even the few copies of newspapers which at that time found their way there.

It may appear strange that, while Althorp was thus applying his st.u.r.dy common sense to the affairs of the Post Office, no steps were taken to correct what most needed correction--the exorbitant rates of postage.

Our own belief is that in a very short time, had the Government of which he was a member remained in office, a reduction would have been made, and that it was to this result that he and Richmond, who worked hand in hand together, were preparing the way. As to Richmond's views on the matter there can be little doubt. Under previous Governments the Post Office had been accustomed in exceptional cases to appeal to the Chancellor of the Exchequer to mitigate the severity of its own rates by the exercise of a dispensing power; but Richmond set his face against the practice, insisting that the law should be obeyed until it was altered; and, after being released from the trammels of office, he was one of the first to propose an alteration.

But if such were indeed Althorp and Richmond's intention, we cannot regret that it was not carried into effect. The ill.u.s.trious man who gave us penny postage had not yet directed his attention to the subject; and, as he tells us himself, it was with him a matter of long and careful consideration whether he should devote his energies to the reform of the Post Office or to the improvement of the printing machine.

If in 1834 only a moderate reduction had been made in the extortionate rates of postage which were then in force, Rowland Hill might not have embarked upon his plan, and, even if he had done so, that plan might have failed to evoke from the public sufficient support to overcome opposition in high quarters. In proportion to the extent of the evil did men welcome the remedy.

Meanwhile, although the demand for cheap postage had not yet taken shape, profound dissatisfaction existed with the conduct of the Post Office. This, under the reformed Parliament, was perhaps to be expected in any case; but there were special circ.u.mstances which contributed to the result. Nearly five years had elapsed since the Royal Commission of Inquiry had reported upon the Post Office, and nothing had since been done to carry its recommendations into effect.

It is not difficult to understand this inaction. In Freeling's view the Post Office had been brought to a pitch of perfection such as it had never reached before, and he regarded it as little short of sacrilege that a body of outside novices should presume to lay its hands upon the sacred ark which he had now for more than a generation been moulding into form. Of the change of opinion which the labours of the Commission had wrought he appears to have been utterly unconscious. Hitherto the Post Office had been regarded as a marvellous mystery, which none but experts could understand. This mystery had now been invaded, and men were beginning to wonder, not, as in the past, at the things which the Post Office was able to do, but how it was that these things were not done better.

The Commission had also brought to light the existence of abuses, and these on one pretext or another had remained uncorrected. We will give a single instance. The Money Order Office had been established in 1792 with the object of facilitating the transmission of small sums from one part of the country to the other by means of orders drawn on the different postmasters. The plan was excellent and deserved success. The only objection to it was that the enterprise was a private one, undertaken by a few Post Office servants for their own benefit, and that to make it remunerative to the projectors required from the authorities an amount of favour which they had no right to bestow. Originally there had been no limit to the amount for which a money order might be drawn;[97] but long before 1829, in order to prevent interference with the banking interest, the limit had been fixed at 5:5s.; and the commission chargeable was at the rate of 8d. in the 1 on the sum remitted. Of this amount 3d. went to the postmaster who issued the order, 3d. to the postmaster who paid it, and the residue to the proprietors.[98]

[97] At the outset in 1792 the limit had indeed been fixed at 5:5s.; but even in the first year this limit was largely exceeded. During the three months ending the 10th of October 1800, 697 money orders were issued, viz. 220 in London and 477 in the country, representing an aggregate amount of 8863, or at the rate of more than 12 apiece.

[98] Among the records of the Post Office is still preserved a money order drawn by one postmaster upon another at the beginning of the century. A facsimile of it is given in the Appendix.

Seeing that the postage on a single letter between two towns no farther apart than London and Bristol was at this time 10d., it will be obvious that in respect to orders for small sums the enterprise would have been conducted at a loss unless the correspondence on money order business had been exempt from postage. And such indeed was the case. All letters pa.s.sing from London to the country were impressed with the official stamp, and those pa.s.sing from the country to London were enclosed in printed covers addressed to the secretary, and bearing, immediately below the secretary's name, that of the proprietors, "Stow and Company."

For correspondence between themselves on money order business the postmasters were supplied with franks sent down from London in blank.

Strongly as the Commission of Inquiry had animadverted on this abuse, nothing had been done to correct it, and the franking privilege was, for money order purposes, being as freely used as ever.

The returns which the House of Commons called for about this time, and the returns which the Post Office furnished, shew, more forcibly perhaps than anything else, in what direction men's minds were tending, and how hollow was the foundation on which a part of the Post Office system rested. More than sixty years had elapsed since the Law Courts decided that inhabitants of post towns were ent.i.tled to a gratuitous delivery of their letters. The House now inquired at how many post towns a charge on delivery was still being made, and by what authority. The return furnished by the Post Office shewed the number of towns to be eighty-nine, and after giving as the authority for the charge "immemorial usage," went on to state that "the payment is not compulsory if the parties choose to object."

It was still the practice to hold up to a strong lamplight every letter that pa.s.sed through the post in order to see whether it was a single or a double one; and the House called upon the Post Office to state by what authority this was done. The Post Office, having no authority to adduce, returned an evasive reply. The House next called for the number of persons who had been prosecuted in the course of the year for the illegal conveyance of letters. The Post Office return shewed that on this ground, during the last twelve months, as many as 341 prosecutions had taken place, many of them involving a large, and some of them a very large, number of persons, and that the cases were still more numerous in which, in order to avoid prosecution, the transgressors had submitted to fines. And how had the revenue been prospering meanwhile? A return called for by the House in April 1834 answers the question. During the last ten years, despite the increase of population, the net Post Office revenue had actually declined. In 1824 the receipts were 2,055,000 gross and 1,438,000 net, as against 1,391,000 net and 2,062,000 gross in 1833.

In 1834 Earl Grey was succeeded by Viscount Melbourne; and one of the first acts of the new Government was to appoint another Commission of Inquiry into the Post Office, with directions to ascertain and report how it was that the recommendations of the former Commission had not been carried out. These recommendations were now set down one by one, and the Post Office was called upon to explain, opposite to each, whether any and, if so, what steps had been taken to give effect to it.

One or two of them had indeed been adopted--such, for instance, as the recommendation that Post Office servants should cease to deal in newspapers--but only under compulsion. Others affecting the internal administration of the Post Office were certainly not feasible. But there remained not a few which, while excellent in themselves, had been discarded on the merest pretext.

The Commissioners had recommended that the "early," that is the preferential, delivery of letters should be discontinued. The Post Office replied that it was impossible. The Commissioners had recommended that, instead of the receiving houses for general post letters being separate and distinct from those for the letters of the twopenny post, every receiving house should take in letters of both kinds. The Post Office replied that the existing arrangement was the best adapted not only to the convenience of the public but to the business of the department. The Commissioners had recommended that the letter-carriers, instead of being separated into general post, twopenny post, and foreign letter-carriers, should all form one corps and deliver letters of every description. The Post Office replied--a reply all the more extraordinary inasmuch as the very arrangement which the Commissioners recommended was already in force both in Edinburgh and Dublin--that "it would be productive of the greatest confusion and delay."

The last of the recommendations to which we shall refer was that "the total charge upon all letters should be expressed in one taxation." The Post Office replied that it was "not possible for country postmasters to know the precise line of demarcation between the general post and twopenny post deliveries." In other words, no postmaster could know what, in the case of letters for London--and, it might have been added, for any other town than his own--the proper charge should be. This was no pretext. It was, on the contrary, perfectly true; and perhaps no more striking testimony could be afforded to the unsoundness of the system then in vogue.

It is impossible to conceive that on Freeling's part there can have been anything in the shape of contumacy, still less of defiance; but we are by no means sure that the House of Commons did not incline to that view.

Be that as it may, however, the Post Office was in bad odour, and an unfortunate series of incidents which occurred about this time little tended to remove the unfavourable impression which the unwillingness to carry out the Commissioners' recommendations had created. The House, at the instance of the Select Committee on Steam Navigation, had called for a return of the casualties which within a given period had happened to the Irish packets. The return furnished by the Post Office omitted two accidents in which one of the members of the Committee had himself a.s.sisted; and the Committee forthwith ordered the attendance of a witness from the Post Office to explain the omission. Another return contained obvious errors, and was sent back to the Post Office to be corrected.

But the two returns which excited most comment referred to the mileage allowance received by the mail-coach contractors, and to the Money Order Office. As regards the mileage allowance the only reply vouchsafed by the Post Office was that it "has not the means of furnishing any account of the amount paid." The return as regards the Money Order Office was still more unfortunate. The ground on which this office had been condemned by the Revenue Inquiry Commissioners was that it was carried on for the benefit of individuals, and yet in so far as its correspondence was exempt from postage, at the expense of the revenue.

Several years had since pa.s.sed, and the House, not doubting that the abuse had been corrected, called for a return shewing the amount of postage derived from letters containing money orders, and to what purpose it was applied. "The Money Order Office"--thus ran the return which the Post Office furnished--" is a private establishment, and the business is carried on by private capital under the sanction of the postmaster-general; but as no accounts connected in any degree with it are kept at the Post Office, no return can be made by the postmaster-general to the order of the House of Commons." The House was highly incensed, and ordered that, both as regards the Money Order Office and the mileage allowance, proper returns should be rendered at once.

The energy of the new Commission had now nearly brought the Post Office into trouble. The contract for the supply of mail-coaches was in the hands of Mr. Vidler of Millbank, who had held it for more than forty years, and little had been done during this period to improve the construction of the vehicles he supplied. Designed after the pattern in vogue at the end of the last century, they were, as compared with the stage-coaches, not only heavy and unsightly but inferior both in point of speed and accommodation. Moreover, the charge made for them, namely, 2-1/2d. a mile in England and 2d. a mile in Scotland, was considered to be high; and the Commissioners, altogether dissatisfied with the manner in which the contract had been performed, arranged with the Government not only that the service should be put up to public tender, but that Vidler should be excluded from the compet.i.tion. This decision was arrived at in July 1835, and the contract expired on the 5th of January following. To invite tenders would occupy time, and, after that mail-coaches would have to be built sufficient in number to supply the whole of England and Scotland. A period of five or six months was obviously not enough for the purpose, and overtures were made to Vidler to continue his contract for half a year longer. Vidler, incensed at the treatment he had received, flatly refused. Not a day, not an hour, beyond the stipulated time would he extend his contract, and on the 5th of January 1836 all the mail-coaches in Great Britain would be withdrawn from the roads.

A man less loyal than Freeling or endued with less generous instincts might have felt a twinge of satisfaction at this result of interference with what he considered his own domain. But such emotion, if indeed he felt it, was not suffered to appear. With a difficulty to overcome, some of his old energy returned, and when the 5th of January arrived there was not a road in the kingdom from Wick to Penzance on which a new mail-coach was not running.

It was now that the mail-coaches reached their prime. Eight or nine miles an hour had hitherto been their highest speed, and now, with vehicles of lighter build, the speed was advanced to ten miles an hour and even more. Truth compels us to add that while the fastest mail-coach on the road, the coach between Liverpool and Preston, travelled at the rate of ten miles and five furlongs an hour, a private coach accomplished within the hour rather more than eleven miles. This was the coach between Edinburgh and Aberdeen, of which Captain Barclay of Ury was the proprietor. Besides coachman and guard it carried fifteen pa.s.sengers, namely, four inside and eleven outside, while a mail-coach carried four in and four out or eight altogether. Nor would Captain Barclay admit that, in order to attain this high rate of speed, recourse need be had to anything like furious driving. Nothing more, he maintained, was necessary than to keep the horses at a "swinging trot."

Freeling's success in averting a breakdown with the mail-coaches did little or nothing to arrest the tide which had set in against him. After exercising an influence such as probably no civil servant had exercised before, he found himself discredited and the object of vehement and not over-scrupulous attack. Of the ministers under whose orders he had acted not a few had pa.s.sed away, and none were in a position to share his responsibility, while their successors only knew him as identified with a system which had become unpopular. Owing to an unusually rapid succession of postmasters-general,[99] he was without even the solace and support which a chief of some years' standing might have given him.

Single-handed, the old man had maintained a gallant defence; but his spirit was now broken. In the midst of his exertions to prevent any interruption of travelling facilities the House of Commons had called for a return which was calculated to wound him deeply. This return implied not only that he had been guilty of gross mismanagement, but that his salary was higher than he was ent.i.tled to receive, that he was drawing unauthorised emoluments, and that the Post Office was made subordinate to his personal interests.

[99] Five within a single year. The Duke of Richmond ceased to be postmaster-general in July 1834; and he was followed by Lord Conyngham, Lord Maryborough, Lord Conyngham a second time, and Lord Lichfield, the last of whom was appointed in May 1835.

To the outside world Freeling maintained much the same demeanour as before, and few would have suspected the weight that pressed at his heart; but in the solitude of his study he was an altered man. There he brooded over the past and contrasted it with the present. Notes jotted down haphazard on official papers that chanced to be on his table reveal the inner workings of his mind. We know few sadder records. He recalls the time when Governments consulted him and he stood high in favour with the public. He cannot forget how, in the course of debate in the House of Commons, his own proficiency and devotion to duty were urged as reasons for not retaining the second appointment of postmaster. In the recollection of those happy days he endeavours to find consolation for the calumny and detraction of the present. He repudiates as unfounded the charge that he has long ceased to consult the interests of the public, and affirms that in this cause he has of late years laboured even more abundantly than he did of old.

Then there is a break, after which he takes up his pen again. "Cheap postage,"--to this effect he writes. "What is this men are talking about? Can it be that all my life I have been in error? If I, then others--others whose behests I have been bound to obey. To make the Post Office revenue as productive as possible was long ago impressed upon me by successive ministers as a duty which I was under a solemn obligation to discharge. And not only long ago. Is it not within the last six months that the present Chancellor of the Exchequer[100] has charged me not to let the revenue go down? What! You, Freeling, brought up and educated as you have been, are you going to lend yourself to these extravagant schemes? You, with your four-horse mail-coaches too. Where else in the world does the merchant or manufacturer have the materials of his trade carried for him gratuitously or at so low a rate as to leave no margin of profit?"

[100] The Right Hon. Thomas Spring Rice.

Here the ma.n.u.script abruptly ends. It is dated the 24th of June 1836.

Within sixteen days from that date Francis Freeling was no more.

We have done. From 1836 downwards the story of the Post Office is told, far better than we could tell it, in the Autobiography of Sir Rowland Hill and the reports which, since 1854, the department has issued annually. The story of the preceding period is less well known, if indeed it be known at all. To tell the earlier story--to trace the Post Office from its humble beginnings down to the time when the ill.u.s.trious reformer took it in hand--this has been the extent of our object, and no one perhaps is more conscious than ourselves how imperfectly it has been accomplished.

APPENDIX

SUCCESSION OF POSTMASTERS-GENERAL FROM 1660 TO 1836

From 1660 to 1667 the Post Office was in farm, the farmers being--