Bankrupt and broken-hearted, Edmund Dummer died in April 1713, within eighteen months of the termination of his contract. It is his honourable distinction that he succeeded in all that he undertook for others, and that it was only in what he undertook for himself that he failed.

CHAPTER VIII

AMERICAN POSTS

1692-1707

American progress has long been the wonder of the world, and in nothing perhaps has it displayed itself more remarkably than in the matter of the posts. The figures which the United States Post Office presents to us year after year--figures as compared with which even those of the Post Office of Great Britain fall into insignificance--make it difficult to believe that only two hundred years ago an enterprising Englishman was struggling to erect a post between New York and Boston.

An Order in Council dated the 22nd of July 1688, after prescribing the rates of postage to be charged not only between England and the island of Jamaica, but within the island itself, ended with these words: "And His Majesty is also pleased to order that letter offices be settled in such other of His Majesty's plantations in America as shall by the said Earle of Rochester be found convenient for His Majesty's service, and the ease and benefitt of his subjects, according to the method and rates herein settled for His Majesty's island of Jamaica."

Nearly four years later, namely, in February 1692, Thomas Neale obtained a grant from the Crown authorising him to set up posts in North America.

The grant was secured by letters patent, which were to hold good for twenty-one years. Neale, who appears never to have set foot out of England, appointed as his representative in America Andrew Hamilton; or rather, as the patent required, Neale nominated and the postmasters-general appointed him. The patent also required that at the expiration of three years Neale should render an account showing his receipts and expenditure; but it was not until the year 1698 that this condition was fulfilled, and in the same year Hamilton came to England to report progress.

By this time a post, to run once a week, had been established along seven hundred miles of road, from Boston to New York, and from New York to Newcastle in Pennsylvania. What the postage rates were we do not know, except indeed that the charge on a letter between New York and Boston was 1s. On other points the account which Hamilton furnished on Neale's behalf gives full information. A salary of 20 a year is paid to "Mr. Sharpus that keeps the letter office at New York." Mr. Sharpus also receives two allowances, one of 110 a year "for carrying the mail half-way to Boston," and another of 60 "for carrying the mail from New York to Philadelphia." Of the former allowance, Hamilton states that after the 4th of November 1696 he "retrenched" it from 110 to 90.

There is also a salary of 10 "allowed to him that keeps the letter office at Philadelphia"; and "an allowance of 100 sterling per annum given by Mr. Neale himself to Peter Hayman, deputy-postmaster of Virginia and Maryland." Hamilton's own salary was 200, and his travelling expenses are thus stated in his account:--

To my expense of a journey from New York to Road Island, Boston, and eastward of it and back again, when I settled the Post Office there 50 0 0

To my expense of a journey from New York to Maryland and Virginia and back again to settle the office there 50 0 0

To several other journeys and incident charges relating to the Post Office 16 18 0

In America as in England, from the first erection of the posts, the correspondence went on steadily increasing year after year. Thus, in the first year beginning the 1st of May 1693 the "New York Post" produced 61; in the second, 82; in the third, 93; and in the fourth year, ending the 1st of May 1697, it produced 122. The same progress is to be seen in what were called the "Boston, Road Island, Connecticut and Piscataway Posts." In the first two years beginning also in May 1693 these produced 296 or at the rate of 148 a year; in the third year they produced 227; and in the fourth, 298. The returns of the Philadelphia post also kept improving; but here Hamilton encountered difficulties of management, as will be seen by his own entries:--

By the produce of the Philadelphia post from the 22nd of August 1693 to the 23rd of April 1694, at which time I was forced to change the Postmaster 10 9 6

By the produce of the same post from the 23rd of April 1694 to the 13th of February 1697, at which time I was forced to change the Postmaster again 105 3 7

The Virginia and Maryland posts were the single exception. Of these Hamilton records "The Virginia and Maryland posts never yielded anything, but cost Mr. Neale near 600." However much these posts might be improved, he dared not reckon upon the correspondence exceeding one hundred letters a year.

There is only one more entry which we will quote from Hamilton's account. It is this:--

By cash which the Postmaster of New York gathered up upon the road in Connecticut for letters 6 16 0

Promising as the prospect was on the whole, Neale's receipts from the posts fell far short of his expenses in erecting and maintaining them.

His expenses up to May 1697 were 3817, and his receipts 1457, leaving him not only out of pocket to the amount of 2360, but with his means and his credit exhausted. It was admitted on all hands that the posts must before long become self-supporting, even if they should not prove remunerative. But meanwhile how were they to be carried on? Hamilton had his own plan to propose. This was first that within America the postage rates should be raised, and "that the post and his horse should go fferry-free"; and second, that between England and America rates should be settled, and that shipmasters should be required on the other as on this side of the Atlantic to take their letters at once to the Post Office of the port at which they first touched, and hand them to the postmaster, receiving as remuneration one penny a letter.

For inland letters the increased rates which Hamilton proposed were as follows, all but the first two entries being in his own words:--

Pence.

Where the distance from New York does not exceed 80 miles 6 Where it exceeds 80, and does not exceed 150 miles 9 To and from Boston and New York, 300 miles 12 To and from Boston and Jersey, 370 miles 18 To and from Boston and Philadelphia, 390 miles 20 To and from Boston and Annapolis in Maryland, 550 miles 36 To and from Boston and James Towne in Virginia, 680 miles 42 To and from New York and Annapolis, 250 miles 24 To and from New York and James Towne, 380 miles, and many broad and dangerous bays and rivers to be ferryed over 30

It may surprise our readers to learn that between England and America there actually existed, 200 years ago, what now is little more than the dream of the postal reformer,--an ocean penny postage. Yet such is the fact. In 1698 it was the custom of the masters of ships bound for America to hang up bags in coffee-houses, and any letters that might be dropped into these bags they carried, and were glad to carry, over for one penny or twopence a letter, according as it was a single or a double one. This custom, as Hamilton pointed out, was liable to abuse. In the first place, any one who had put a letter into a coffee-house bag might, under pretence of wanting his own letter back, possess himself of the letter of somebody else. And secondly, on arrival in America, the shipmasters being under no obligation to make a prompt delivery, were apt to deliver the letters, not when they reached a port, but when they were on the point of leaving it, and after they had disposed of their lading. All this would be remedied if rates of postage were settled between England and America. The letters would then be in the custody of the Post Office until delivered to the shipmaster, and the shipmaster would be bound to restore them to the same custody as soon as he arrived at his destination.

But Hamilton's main argument in favour of establishing sea-rates of postage was the impossibility of things remaining as they were. Neale was without resources, and the posts were not self-supporting. Unless, therefore, some means should be devised for increasing the receipts, the posts must be given up. Let sea-rates be imposed, and the receipts would be increased at once, for all letters from Europe, which on arrival in America were now being delivered by private hand, would then fall into the post, and be forced to pay American postage. It was true that between the mother country and her colonies a packet service did not exist, and that to impose a charge where no service was rendered in return would be contrary to Post Office usage; but the object to be gained was too important to allow this consideration to prevail. Such were the arguments by which Hamilton supported his proposal that on letters between England and America postage should be charged--of 6d.

for a single letter, 1s. for a double letter, and 1s. 6d. for "a packet."

There were one or two points on which Cotton and Frankland did not agree with Hamilton. Experience had taught them, as they stated on another occasion, that the way to improve the Post Office revenue was to "make the intercourse of letters easy to people." So now, in their representation to the Treasury, they condemned the inland rates which Hamilton proposed as altogether too high. They had been long enough at the Post Office, they said, to know that "the easy and cheap corresponding doth encourage people to write letters, and that this revenue was but little in proportion to what it is now till the postage of letters was reduced from 6d.[33] to 3d."

[33] This is an allusion to the period antecedent to 1657.

Hamilton had contemplated the pa.s.sing of a fresh Act of Parliament in order to impose sea-rates and to oblige shipmasters to give up their letters as soon as they reached port. Cotton and Frankland were not satisfied that a fresh Act of Parliament was necessary; nor did they express any opinion as to the particular rates which should be imposed.

They recommended, however, the appointment of an officer whose duty it should be "to take care of" all letters for America, and to put them into a special bag to be sealed with the office seal. Public notice should at the same time be given prohibiting the collection of such letters by other persons. To the shipmaster to whom the bag might be delivered the inducement to take it without delay to the Post Office of the port at which he should first arrive would be that he would there receive one penny for each letter the bag might contain. Hitherto, under the coffee-house arrangement, the penny had been paid in England; for the future, it would be paid in America. In other words, the shipmaster, instead of receiving his recompense in advance, would receive it after his work was done and only provided it was done properly.

On one point the postmasters-general held a decided opinion. Towards the support of the posts the Government of New York had made an annual contribution of 50, in consideration of which the Government letters appear to have been carried free; but otherwise Neale's undertaking had not received from the authorities that countenance and support which, in Cotton and Frankland's opinion, were essential to its success. They expressed themselves convinced that, for want of due encouragement, the posts would never prosper in private hands, and recommended that they should be transferred to the Crown.

Whether any, and if so, what action was taken upon the postmaster-general's representation we do not know. There is some reason to think that between England and America sea-rates of postage were settled, as had been done a few years before in the case of Jamaica; but we possess no certain information on the point. All we know is that, upon Neale being informed of the postmaster-general's opinion that the inland posts should be transferred to the Crown, he immediately offered to surrender his patent, and that the offer was not accepted. The payment he demanded was either a capital sum of 5000 or else 1000 a year for life or for the unexpired term of his grant.

Hamilton returned to America. The next we hear of him is in 1700. Neale was then dead, having shortly before his death a.s.signed his interest in the posts as security for his debts. To Hamilton he owed 1100, and to an Englishman of the name of West he owed for money advanced 200; and into the hands of these two persons, in default of any one willing to act as Neale's executor or administrator, the posts now came. In April 1703 Hamilton also died; and for three or four years his widow carried on the posts at her own charge.

In 1706 Mrs. Hamilton and West urged that their patent, which had seven and a half years yet to run, might be enlarged for a further term of twenty-one years, and that they might have permission to set up packet boats between England and America. To this Cotton and Frankland were opposed, being still of opinion that the posts should not remain in private hands; and they recommended, as a more politic measure, that the patent should be purchased for 1664, a sum which the patentees had expressed themselves willing to accept. Whether this was the sum actually given we know not; but in the following year the patent was surrendered and the posts of America became vested in the Crown.

In connection with the transfer John Hamilton, Andrew's son, was appointed to his father's place of deputy postmaster-general, and this appointment he retained until 1722, when he resigned. It was then and not until then that the posts became self-supporting. "We have now,"

write the postmasters-general on the 10th of August in that year, "put the Post Office in North America and the West Indies upon such a foot that for the future, if it produce no profit to the revenue, it will no longer be a charge to it, but we have good reason to hope there will be some return rather from thence."

Such, hardly 200 years ago, were the humble beginnings of a Post Office with which, in the magnitude and diversity of its operations, no other in the world can now compare.

CHAPTER IX

THE POST OFFICE ACT OF 1711

In 1707, on the pa.s.sing of the Act of Union between England and Scotland, the first step taken by the postmasters-general was to alter the colours of the packets. The cross of St. Andrew, with its blue ground, united with the red cross of St. George, now became the national ensign; and the packets no less than the ships of the Royal Navy were under obligation to carry it.

The Post Office in Scotland was at this time held in farm at a rent of 1194 a year. The lease expired on the 11th of November, and from that date the postmasters-general held themselves responsible for the Scotch no less than the English posts. They at once proceeded to frame an establishment. George Main, the farmer, was appointed deputy-postmaster of Edinburgh at a salary of 200, this being the amount which one year with another he had made out of his contract. Three persons were appointed to a.s.sist him, an accomptant and two clerks. These, with three letter-carriers at a crown a week each, and a postmaster at the foot of the Canongate, const.i.tuted the Edinburgh establishment.

In the country there were thirty-four postmasters, of whom only twelve were paid by salary, the remaining twenty-two receiving as their remuneration a certain proportion of the postage on inland letters.

Thus, three had one-half of this postage, one had one-third, and eighteen had one-fourth. The highest salaries were given to the postmasters of Haddington and c.o.c.kburnspath, who received 50 apiece, the reason being no doubt that these two towns were on the direct line of road between Edinburgh and London. At Aberdeen, the postmaster's salary was 28; at Glasgow, 25; at Dundee, Montrose, and Inverness, 15; and at Dumfries and Ayr, 12. Runners[34] at a fixed charge were maintained between town and town--as, for instance, between Edinburgh and Aberdeen at 60 a year, between Aberdeen and Inverness at 30 a year, and between Inverness and Thurso at 18 a year: but except at Edinburgh there was no letter-carrier, and except between Edinburgh and Berwick there was no horse-post north of the Tweed. The establishment charges for the whole of Scotland, Edinburgh included, were less than 1000 a year.

[34] These runners or post-boys carried the mail through the whole journey, resting by the way. It was not, according to common repute, until about the year 1750 that the mail began to be carried from stage to stage by different post-boys.

But something more was necessary than to frame an establishment and to alter the colours of the packets. Serious doubts had arisen whether, as the law stood, the postmasters-general of England were competent to deal with the posts of Scotland; and, this vital consideration apart, between the two divisions of the kingdom certain inequalities existed which only fresh legislation could redress. Under the Scotch Act of 1695 the postage on a single letter between Edinburgh and Berwick was 2d. Under the English Act of 1660, 2d. would carry a single letter from Berwick northwards for only forty miles, and considerably more than forty miles separated Berwick from Edinburgh. This difference arose no doubt from mere inaccuracy of reckoning on the English side; and yet it was one which nothing less than a new Act, an Act by the united Parliament, would adjust.

It is the more singular that at this time the postmasters-general should not have taken steps to promote legislation, because, in connection with the English no less than the Scotch Post Office, there were several matters on which fresh legislation had become necessary. The statute on which the very existence of the Post Office itself depended had been found difficult to deal with, on account of its loose and ambiguous wording. The postage to America and the West Indies rested on no legal sanction. For the pence paid upon ship-letters the postmasters-general had no authority to produce, and the auditors had threatened to disallow, the payment. Even the penny post was of doubtful legality. The Courts had indeed decided that Dockwra's undertaking was an infraction of the rights of the Crown; but they had not decided, nor had they been called upon to decide, whether in the hands of the Crown the same undertaking would be legal. The law, as it stood, prescribed no postage lower than twopence. By the penny post the postage was one half of that amount.

With these and other matters requiring adjustment, it might well be supposed that the postmasters-general would have been glad of the opportunity which the Act of Union afforded to set their house in order.

Yet, so far from taking any steps in that direction, they now remained perfectly pa.s.sive. Of the reason for this inaction we are not informed; but we venture to suggest an explanation. Cotton and Frankland were advocates of cheap postage. Should fresh legislation be entered upon, what guarantee had they that postage would not be made dearer? So far, indeed, as they could judge, such was much more likely than not to be the case. As early as William's reign they had been asked to estimate how much an additional penny of postage would produce; and the necessities of the Civil List which had prompted the inquiry had since become more and more pressing.

It is not impossible that there was another, though subordinate, reason.

Between Whitehall and Lombard Street communications had been pa.s.sing from time to time, which might fairly raise the presumption that advantage would be taken of any fresh Act to insert a clause under which all Post Office servants, the postmasters-general included, would be disfranchised. Cotton and Frankland, who still retained their seats, the one for Cambridgeshire, and the other for the borough of Thirsk, were not the men to be deterred by personal considerations from doing what they conceived to be their duty; but if on principle they objected to an increase in the rates of postage, it was little calculated to reconcile them to a measure which they regarded as mischievous that, as a probable consequence of its introduction, they would lose their seats. But be the reason what it might, the fact remains that, whereas at one time they were continually suggesting the propriety of fresh legislation in order to clear up ambiguities in the existing statute, no such suggestion had been recently made, and they now remained perfectly silent.