Altogether, when the 18th of December arrived, more than 1000 of hammered money was still outstanding in the postmasters' hands; and in every case the want of conveyance or the badness of the roads was a.s.signed as the cause.

The penny post office, since it had pa.s.sed into the hands of the Government, had undergone but little change. Its headquarters had been removed from Dockwra's house to seven rooms prepared for the purpose, not, indeed, at the Post Office in Lombard Street, where want of s.p.a.ce was already beginning to be felt, but probably in the immediate neighbourhood. It had also, in the language of the time, been eased from a mult.i.tude of desperate debts. But the conditions on which it was conducted remained as they had been,--the same limit of weight, the same frequency of delivery, and the same rule as to compensation in case of loss. Dockwra, with the view, no doubt, of propitiating the authorities, had provided for the conveyance to Lombard Street of all general post letters left at his receiving offices; and this duty, when he was dispossessed, pa.s.sed to the persons by whom those offices were kept. The result was not satisfactory. The receivers, in their desire to get the work done as cheaply as possible, employed to do it the most needy and most worthless persons, persons who could not get employment elsewhere.

At length the miscarriages and losses became so frequent that the Post Office appointed its own messengers to go round and collect the letters.

Nor is it by any means certain that the character of the receivers themselves was above suspicion. The plain truth is that they were, with few exceptions, keepers of public-houses. The collector who called there periodically to adjust accounts complained that often four and even five visits were necessary before he could obtain payment, and that the opportunity was taken to pa.s.s upon him bad money.

Times have changed indeed. With public-houses for receiving offices, with inn-keepers for postmasters, and with a considerable sum expended annually on drink and feast money, it can hardly be denied that the Post Office at the end of the seventeenth century was a good friend to the licensed victualler. At the present time no postmaster may keep an inn; no receiving office may be at a public-house; and not many years ago, when a hotel with its stock-in-trade was purchased with a view to the extension of the Post Office buildings in St. Martin's-le-Grand, some excellent persons were shocked because, under the sanction of the postmaster-general, were exposed for sale by auction some few dozen bottles of port.

Of the extent to which the penny post was used at this period we are not, so far as the suburbs are concerned, without some means of judging.

According to the original plan, which had been adhered to in its integrity, one penny was to carry a letter within such parts of London as lay within the bills of mortality. Beyond these limits one penny more was charged; and this penny, which was technically called the second or deliver penny, const.i.tuted the messengers' remuneration. As this soon proved to be more than enough for its purpose, the messengers were put on fixed wages, and the second pennies were carried to the credit of the Post Office. Of the amounts derived from this source during the sixteen years from 1686 to 1702 a record is still extant. The lowest amount for any one year was 310, and the highest 377, the average being 336. It would hence appear that for such parts of London as lay outside the bills of mortality, for what in fact were at that time the suburbs, the number of letters at the end of the seventeenth century was about 80,640 a year, or, counting 306 working days to the year, about 263 a day.

On one point the postmasters-general were determined, that the penny post office should not be let out to farm. All overtures to this effect they resolutely declined. The penny post and the general post had become so interwoven, and, outside London, so short a distance separated the limits within which the one ceased and the other began to operate, that it was considered of the highest importance, both on the score of convenience and as a protection against fraud, that the two posts should not be under different management. The same considerations were not held to apply to Dublin. In Dublin, rapidly as that city was now growing in size[19] and population, a penny post, it was thought, could not possibly answer. Yet in 1703 a spirited lady sought permission to set one up. This was Elizabeth, Countess-Dowager of Thanet. A desire to supplement a jointure, originally slender and now reduced by the taxation consequent on the war, was the simple reason a.s.signed for the enterprise, and yet with the highest professions of public spirit it might have been difficult to render to the community a more signal service. The Duke of Ormonde, who was then Lord Lieutenant, approved the proposal, and the postmasters-general had made preparations for carrying it into effect. The new post was to extend for ten or twelve miles in and around Dublin; no receiving office was to be within two miles of the first stage of the general post; the lease was to be for fourteen years; and one-tenth part of the clear profits was to go to the Crown. At the last moment, however, the Treasury withheld their a.s.sent, and for no less than seventy years from this time Dublin remained without a penny post.

[19] Writing in 1709, Mr. Manley, the postmaster-general's deputy in Dublin, says, "There are not less than a thousand more houses now than there were at my first coming here [_i.e._ in 1703]. Besides, there are many new streets now laid out and buildings erecting every day."

Of the internal affairs of the Post Office during the first fifteen years of Cotton and Frankland's administration of it little need be said. At first their only a.s.sistant was a clerk at 40 a year to copy their letters. In 1694 they procured a new appointment to be created, the appointment of Secretary to the Post Office. The Secretary to the Post Office at the present time has duties to discharge, of the variety and importance of which his mere t.i.tle gives a very inadequate idea. In 1694 he was little more than a private secretary. One thing indeed he had to do, to which a private secretary of our own time might perhaps demur. During the night, if an express were wanted, he had to rise from his bed and prepare the necessary instructions. The salary of the appointment, originally 100, was raised to 200 in 1703. In this year a solicitor was appointed, also at a salary of 200.

Two years later a transaction was completed on which the postmasters-general had long set their hearts. This was the purchase of a part of the Post Office premises in Lombard Street. As far back as 1688 Sir Robert Viner, the owner, had offered the freehold for sale, but the Revolution had put a stop to further proceedings. In 1694, after Sir Robert's death, his nephew and executor again proposed to sell, and Sir Christopher Wren, on behalf of the Crown, surveyed the property with a view to its purchase. On examination, however, the t.i.tle proved to be defective, and it was not until 1705, after the defect had been remedied by Act of Parliament, that the Crown secured the freehold for the sum of 6500. At the present time it matters not where Post Office servants reside, so long as they attend punctually. At the beginning of the eighteenth century it was considered important on account of the unseasonable hours of attendance that they should reside "in and about"

the Post Office. The Post Office was, in effect, a barrack, and, except the premises in Lombard Street, there were none in the immediate neighbourhood that would well answer the purpose. Hence the anxiety to purchase the freehold; and the anxiety was all the greater because it had been threatened that if not purchased by the Crown the property would be sold to the speculative builder or, as he was then called, the projector.

CHAPTER VII

COTTON AND FRANKLAND

_Packet Service_

1686-1713

Of the packet service prior to 1686 we have no particulars; but that some such service had long existed, though probably on a very limited scale, hardly admits of a doubt. To Ireland, as to other parts of the kingdom, a regular post had been established in 1635; and it is difficult to suppose that a mail on arriving at Holyhead would be left to a chance vessel to carry it across the Channel. The probability of some organised means of transport is still stronger in the case of Dover. Dover was the town through which all letters for the Continent pa.s.sed; and our trade with the Continent had for a century and more been considerable. Hence it was that the post through the county of Kent had been carefully nursed while as yet no other part of the country had any post at all. But if, as seems certain, both Dover and Holyhead were packet stations long prior to 1686, it is almost equally certain that these were the only two in the kingdom.

In that year the arrangements, whatever they were, for carrying the mails between England and France came to an end, and a new service was established between Dover and Calais and between Dover and Ostend or Nieuport. This was succeeded in the following year by a similar service between England and Holland. Both services were to be carried on by contract. In the one case the contractor was to receive 1170 a year, and also to have the management of the letter office at Dover. In the other the payment was to be 900 a year, for which sum three hoys were to be maintained, two of sixty and one of forty tons, and carrying six men each. For the service to Holland the packet stations were, on this side of the water, Harwich, and, on the other, the Brill.

To the letters which came to this country by regular packet must be added those that were technically termed ship letters--letters which were brought by ships arriving at uncertain times from any part of the world. These letters, according to the provisions of the Act of 1660, were to be given up to the postmaster at the port of arrival, so that they might be forwarded to London, and thence despatched to their destination after being charged with the proper amount of postage. In this particular, however, the Act proved of little effect. Masters of ships were offered no inducement to deliver the letters to the postmaster, and incurred no penalty for omitting to do so. The Post Office was then in farm; and desirous as the farmers were to make what they could out of their undertaking, they soon found that it would be well worth their while to incur some expense which should secure obedience to the law. Accordingly they undertook that for every letter which a shipmaster should bring to this country, and deliver to the postmaster at the port of arrival, he should receive the sum of one penny. This was the origin of ship letter money--a form of payment which has since received legal sanction, and exists at the present day.

It was into the port of London that ship letters chiefly came, and here the number which found their way to the Post Office in Lombard Street was seriously affected by the establishment of the penny post. That this was only natural will appear from a simple ill.u.s.tration. From Ma.r.s.eilles to London the postage was 1s. for a single letter. On one hundred such letters, therefore, the charge would be 5. But if, instead of taking these hundred letters to the General Post Office, a shipmaster on his arrival in the Pool dropped them into the penny post, they would all be delivered for 8s. 4d. It is true that he would thus lose his gratuity of one penny a letter; but the difference between the two rates of postage was such as to leave an ample margin of profit, even after making him full--and more than full--compensation for his loss. Indeed, if he had been bent on cheating his employer as well as the Post Office, he might with very little risk of detection have put the whole of the difference into his own pocket. In 1686 the number of ship letters accounted for to the Post Office was 60,447,[20] a number which, forming as it did the basis of a payment, may be taken as absolutely correct, because the Post Office would take good care not to pay more, and shipmasters not to receive less, than was absolutely due. It is to be regretted that no similar account is forthcoming for previous years, so that it might be seen what was the extent of the influence which the penny post exercised; but that this influence was considerable is certain from the continual references made to it by successive postmasters-general during a long series of years. It is to be observed, however, that they always speak of it as a thing that was past and gone, a thing baneful enough while it lasted, but as having been of only short duration. The explanation is no doubt to be found in the fact that in 1696 two officers were appointed, whose duty it was to collect letters from all vessels arriving in the port of London. The boat employed in this service had a.s.signed to it special colours of its own, on which was depicted a man on horseback blowing a post horn.[21]

[20] "To divers Masters of Shipps for 60447 letters by them brought from forreigne parts this year at one penny each according to the usage--251:17:3."--Extract from writ of Privy Seal for pa.s.sing the accounts of "our Right Trusty and Right well-beloved Couzen and Councellor Lawrence Earle of Rochester, Late our High Treasurer of England."

[21] "This is to give notice that Lancellot Plumer and William Barret are appointed by the Postmaster-General of England to receive all such letters and pacquets from masters of ships and vessels, mariners and pa.s.sengers as shall be by them hereafter brought in any ships or vessels into the Port of London, to the end the same may be delivered with speed and safety according to their respective directions and the laws of this kingdom; and that all masters of ships or vessels and all mariners and pa.s.sengers may the better take notice thereof, the Right Honourable the Lords of the Admiralty have directed that the boat employed in this service do carry colours, in which there is to be represented a man on horseback blowing a post horn."--_London Gazette_, No. 3247, from Monday 21st December to Thursday 24th December 1696.

In 1689, on the breaking out of the war with France, the Dover boats ceased to run, and, in order to provide for the letters to Spain which had hitherto pa.s.sed through that country, a service was established between Falmouth and the Groyne. On this service two boats were employed of two or three hundred tons each. They carried from eighty to ninety men besides twenty guns, and ran once a fortnight.

The Harwich boats were at the same time increased both in number and in strength. The three hoys were replaced by four boats--boats of force as they were called, carrying fifty men each. It may well be believed that, with so large a crew under his command, the captain of a well-armed vessel was loth to confine himself to the monotonous task of carrying the mails to and fro, and went in quest of adventure. But be that as it may, William, who since his accession to the throne had taken an extraordinary interest in the Harwich service, was not satisfied with the performances of these boats. It was his opinion that the first requisite in a mail packet was speed and not strength. Strength might indeed enable it to engage an enemy, but speed would enable it to avoid one. Accordingly, by the King's direction, the Post Office with the a.s.sistance of Edmund Dummer, the Surveyor of the Navy, built four small boats of its own--boats "of no force," but remarkable for their speed.

The change was not carried out without much grumbling. The boats were low built, and, except in the calmest weather, shipped a good deal of water. The sailors complained that they seldom, from one end of the voyage to the other, had a dry coat to their backs. The absence of any armament was still more unpalatable to them. They dared not leave the harbour, at least so they said, when the enemy was to windward; and, as though to confirm their words, they sometimes after leaving returned. We shall probably do them no wrong if we distrust these excuses. No British sailor, or soldier either, cares to turn his back on the foe, and that this was expected of them, that they were required to run and not to fight, we suspect to have been the real grievance. Eventually, but not until some had refused to serve and others had deserted, matters quieted down. An increase of wages was given all round, raising the pay above that given in the Royal Navy, and, in order to compensate for the additional cost, the complement of the crew was reduced from thirty to twenty-one. It is a striking confirmation of the soundness of William's view that during the next twenty-four years, although no less than nineteen of them were years of war, only two of these boats were taken.

Until 1689 the Harwich packets had been self-supporting, the receipts from freight and pa.s.sengers being enough to cover the cost. In that year, as a consequence of the war, the fares were raised. Pa.s.sengers to Holland who had hitherto paid 12s. were now to pay 20s., and those who had paid 6s. were to pay 10s. Recruits and indigent persons pa.s.sed free.

In 1695 the carriage of goods and merchandise was prohibited. This prohibition afterwards became common in times of war, but in the present instance it was imposed in the vain hope of stopping the exportation of silver. In exchange for silver, gold had long been pouring into the country, as much as 200 ounces coming by a single packet; and advices had been received from Amsterdam and Rotterdam that future consignments would not be restricted even to that quant.i.ty. The reform of the currency, which alone could check this movement of the precious metals, was expeditiously accomplished; but the prohibition against the carriage of merchandise remained.

On the conclusion of peace in 1697 the service between Dover and Calais and between Dover and Ostend recommenced, but only to be discontinued again on the resumption of hostilities in 1702. During these five years the relations between the English and French Post Offices had at no time been friendly, and latterly had become very highly strained. Under the terms of a Treaty concluded with France in 1698, the mails, as soon as they arrived on this side at Dover and on the other at Calais, were to be forwarded to the respective capitals by express. England faithfully fulfilled her part of the engagement. By France the engagement was treated as a dead letter. The mails from England, on their arrival at Calais, instead of being forwarded to Paris by express, were kept back for the ordinary post; and this post went only once a day, leaving at three in the afternoon. If, therefore, the packet arrived at four or five o'clock, the letters were detained for the best part of twenty-four hours. At Lyons the letters between England and Italy were being treated after much the same fashion. On arrival in that town--such at least was the complaint in the city--instead of being forwarded with all despatch, they were forwarded seldom in due course and sometimes not at all.

M. Pajot was then director of the French posts; and in this capacity he had signed the Treaty. In vain Cotton and Frankland called his attention to the breach of its provisions. Their letter was not even acknowledged.

For the transit of British mails across French territory England had agreed to pay to France the sum of 36,000 livres[22] a year, and a remittance in payment of the instalment due was sent to Paris; but not even of this could an acknowledgment be obtained. Let the nature of the communication to him be what it would, Pajot maintained an obstinate silence. When war broke out afresh, all intercourse between the two Post Offices had ceased for nearly three years, and the debt due to France had acc.u.mulated to the amount of 105,600 livres.

[22] Equal, at the then rate of exchange, to 2437:10s.

The cessation of the Dover packets in 1702 was soon followed by that of the packets between Falmouth and the Groyne, but the want of any regular means of communication with the Peninsular proved so inconvenient that, before many months had pa.s.sed, the service was re-established in a slightly altered form. The boats, instead of stopping short at the Groyne, were to run on to Lisbon; and two years later their number was increased from two to five. This increase was due to political rather than commercial reasons. It is true that an important commercial treaty was about this time concluded with Portugal; but, what was considered of far greater moment, the Archduke Charles after pa.s.sing through London had recently proceeded to that country in furtherance of his pretensions to the throne of Spain. It was at once resolved that communication with Lisbon should henceforth be weekly instead of only once a fortnight, and for this purpose less than five boats were deemed insufficient.

But of all the packet services in existence at the beginning of the eighteenth century none perhaps possesses more features of interest than the service to the West Indies. In James the Second's reign a Post Office had been established in Jamaica, and rates of postage had been settled not only within the island itself but between the island and the mother country. This was a new departure. In the original scheme of postage as propounded by Witherings no charge had been imposed except in return for some service. The same principle had been scrupulously adhered to in the Acts of 1657 and 1660. Under these Acts, except where a service was rendered or where payment for a service was made to another country, no charge was provided for. Yet between England and Jamaica, although the Crown was not at the cost of maintaining means of transport, postage rates were fixed of 6d. a single letter, 1s. a double letter, and 2s. an ounce. This was a pure tax, and the precedent, bad as it was and of questionable legality, was soon extended to the case of letters to America.

The war of 1702, while deranging other services, called the service to the West Indies into being. The West India merchants, a designation even then in vogue, were a large and important body, and, as opportunities of intercourse by private ship became rare and uncertain, a demand arose for some established means of communication. With the a.s.sistance of Dummer, Surveyor of the Navy, sloops were provided to carry mails to the Plantation Islands, and by way of helping to defray the cost, the postage rates were increased by about one-half. The vessels sailed at uncertain intervals, but otherwise the service was performed with regularity, the voyage out and home occupying from 90 to 116 days.

Dummer was so well satisfied with the result of his management that, rather than continue as mere agent for the postmasters-general, he desired to perform the service on his own account. For the sum of 12,500 a year he undertook to provide a monthly communication, and for this purpose to build and equip five boats of 140 tons each, and carrying twenty-six men and ten guns. These boats were to have two decks, and any of them that should be lost or taken by the enemy were to be replaced at his own cost. Of the 12,500 no more than 4500 was to be paid down. Freight, which was limited to five tons out and ten tons home, pa.s.senger fares, and postage were to go in part payment, and from these Dummer expected to make up the difference. Postage alone he set down at 6000; and that it might produce this sum he made it an express stipulation that the rates to the West Indies should be raised to the same level as those to Portugal, namely 1s. 3d. a single letter, 2s. 6d.

a double letter, and 6s. an ounce. To double the postage, he took for granted, was to double the returns. Abler men than he and men living nearer to our own times have fallen into the same error; but seldom, probably, has it been sooner or more strikingly exposed.

The new rates came into operation in England in March, and in the West Indies in April. The effect of the alteration, as would now be predicted with confidence, was only slightly to increase the amount of postage and largely to reduce the number of letters. It is so seldom that in matters of this kind cause and effect are brought into such close approximation, that we offer no apology for giving the postage which the correspondence produced immediately before and immediately after the change:--

_To the West Indies._

Date on which the Packet sailed from England. Amount of Postage.

Jan. 25, 1705 44 1 4 Feb. 22 " 59 10 7 Mar. 29 " 100 5 3 (New rates) Apr. 26 " 129 2 6 May 31 " 93 7 9 June 28 " 75 19 3 July 26 " 62 2 0

_From the West Indies._

Date on which the Packet arrived in England. Amount of Postage.

Feb. 10, 1705 316 19 0 Apr. 18 " 622 11 6 (New rates) Aug. 6 " 629 15 6 Sept. 3 " 384 19 6 Oct. 1 " 369 6 6

Of course, the mails immediately after the change would carry what may be called surprised letters, letters which had been posted before the issue of the new regulations or before these regulations had become generally known; and the mail arriving in August would bring also the letters which had acc.u.mulated since the preceding April.

What at the present time is calculated to excite surprise is not that the aggregate amounts of postage should not have increased in proportion to the rates, but that these amounts should have been as high as they were. Trade with the West Indies was, no doubt, considerable. And yet, after making ample allowance on that score, of what sort can the correspondence have been to produce postage of between 300 and 400 by a single mail; and why should the amount in one direction have been nearly five times as heavy as the amount in the other? The answer, we think, is to be found in a letter which the postmasters-general wrote about this time. A small box for the Commissioners for the Sick and Wounded had come from Lisbon charged with postage of 26:2s. From this charge the Commissioners sought to be relieved on the ground that the box contained nothing but office accounts, which, besides being of no intrinsic value, were on Her Majesty's business. To such arguments, however, the postmasters-general turned a deaf ear. With the contents of the box they were not concerned. All they knew or cared to know was that it weighed eighty-seven ounces, and this weight, at the rate of 6s. an ounce, gave 26:2s. Forego the charge in the present instance, and how, they asked, could charges be any longer maintained on other packets not less on Her Majesty's business than this box, packets from the Prize Office, the Salt Office, the Customs and the Navy, and also, they added, on the large bundles of muster-rolls from the regiments stationed in the West Indies? In short, we entertain little doubt that the postage by the homeward mails was largely derived from official correspondence, correspondence which at the present time bears no postage at all.

The good fortune which had attended Dummer while acting as manager for the postmasters-general entirely deserted him as soon as the service came into his own hands. During the first twelve months the postage fell short of his expectations by about one-third; and freight and pa.s.sengers, which he had estimated to produce 2000, produced little more than one-sixth of that amount. Nor was this the worst. The very first packet that sailed under his contract was taken by the enemy.

Another, not many months later, was cast away on the rocks off the Island of Inagua; and a third fell into the hands of a privateer in the Channel. A series of disasters which would have daunted most men seems only to have inspired Dummer with fresh energy. Of the ultimate success of his undertaking he entertained no doubt. He held as strongly as we can hold at the present day, that trade and correspondence act and react upon each other; and that these should thrive he considered nothing more to be necessary than speed and regularity of communication.[23] With good heart, therefore, he applied himself to replace the boats which had been lost, fully determined that on his part no efforts should be wanting to supply the conditions on which alone he conceived success to depend.

[23] "It being a certain maxim," he wrote to the postmasters-general on the 15th of February 1707, "that as Trade is the producer of correspondence, so trade is governed and influenced by the certainty and quickness of correspondence."

The packet stations at this time were four in number. Dover was closed.

Harwich and Falmouth were in full activity. Holyhead was a mere home station for the transmission of the Irish correspondence; and, the service being under contract, suffice it to say that the mails to Dublin went twice a week and were transported with marked regularity. Of the Harwich and Falmouth stations, managed as they were by the postmasters-general, we propose to give some account.

Each station was presided over by an agent, whose province it was to see that the packets were properly equipped and victualled, to arrange the order of sailing, to keep the captains to their duty, and generally to maintain order and regularity among the unruly spirits of which the establishment was composed. The outward mails, on their arrival from London, were to be despatched, if for Holland or for Portugal, immediately, and if for the West Indies, within two days; and, as soon as they were put on board, weights were to be attached to them so that they might be sunk at once if in danger of being taken by the enemy. So important was this precaution held to be that, although enjoined in the general instructions, it was continually insisted upon in particular cases. "Be sure," write the postmasters-general to one of their agents, "that before the captain sails, he prepares everything to sink the mail in case he shall be attacked by the enemy that he can't avoid being taken"; and to another, "We would have you take care to affix a sufficient weight to the mail so soon as 'tis on board"; and to a third, "We do not doubt but the mails will be ready slung with weights sufficient to sink them in case of danger of falling into the enemy's hands." Another rule to which the postmasters-general attached great importance was that more than two mails were not to go by the same boat.

This rule, however, could not always be observed, for the boats had an awkward habit of finding themselves on the wrong side, and, by the time one had arrived, there was an acc.u.mulation of mails to be disposed of.

The inward mails, as soon as they reached the port of arrival, were forwarded to London by express. From Harwich the letters for the Court, or State letters,[24] as they were now beginning to be called, were sent in advance of the ordinary mail, arrangements having been made at the Brill to put these letters into a special bag by themselves. From Falmouth, where no provision had been made for distinguishing one cla.s.s of correspondence from another, the same express carried the whole.

When, as was sometimes the case, packets of doc.u.ments reached the port unenclosed with the rest of the letters, these were to be chained to the "grand mail"; and on the label was always to be inserted the number of pa.s.sengers that had arrived by the boat, so that the postmasters along the line of road might know for how many persons they had to provide horses. Between Falmouth and London the mails when sent express travelled at the rate of about five miles an hour; and this speed appears to have been regularly maintained. Expresses to carry a single letter or a message, or to overtake the Lisbon mail, were continually pa.s.sing to and fro, and these of course went faster. From Harwich the mails would sometimes reach London in eleven hours, being at the rate of six and a half miles an hour; but on this line of road there was so much irregularity that the time ordinarily occupied in the journey cannot be stated with certainty.[25]