The engagement of Mr. Cole, applied for as above, was completed three days later; and thus I had the great satisfaction of retaining after my appointment aid which had been so highly serviceable before. Mr. Ledingham, also, was engaged, and fully justified Mr. Gardiner’s recommendation;[278] working with me through many years, first at the Treasury and afterwards at the Post Office, up to the commencement of his fatal illness, with intelligence, fidelity, and zeal.

About this time I began to experience somewhat of that kind of annoyance which my own proceedings during the last two years and a-half must have produced to the Post Office authorities, and in some measure to the Government of the day. I was now myself, in some sort, within the pale, and I began to find that through my difference of position there was a decided change in the sound produced by a knocking at the outer gate. Suggestions for improvement and applications on other subjects soon became numerous; and were sufficient to occupy much time, and to make me practically understand the nervous irritability produced in all Government departments by applications from without.

A day or two later I again visited the Post Office, and was present at the sorting of letters for the twopenny post. Here was anything rather than the pressure which I had observed in the evening sorting of the General Post letters, the force being evidently far too great for the work; so that at the rate at which I saw the letters sorted the average number per delivery, say six thousand, might have been sorted completely in the time occupied (about an hour and a quarter) by four persons; and yet the sorters formed quite a crowd. Of course I found in this fact additional reason for that union of the two divisions of letter-carriers which was an essential preliminary to the establishment of the district system.

Mr. Baring had expressed a wish that I should visit the French Post Office, which, he had been informed, was in some respects very well managed. Not to dwell too minutely on this inspection, I will only state some few of the results set forth in my report.

I found that the gross Post Office revenue of France was about two-thirds that of England; the expenses, about twenty per cent. more, and the net revenue somewhat less than one-half.[279]

The rates of postage I found to be about two-thirds of our rates for corresponding distances, but to vary for equal distances, not as with us, according to the number of enclosures, but simply [as I had proposed for England] according to the weight of the letter or packet.[280]

I found a kind of book post in use; the charges, however, being regulated not by weight, but by superficial measurement of the paper.[281]

Considering the small extent of Paris as compared with London, I found the number of Post Offices much larger, viz., 246 against 237.[282]

There was another point on which the French Post Office was—and, it must be admitted, still is—in advance of ours, viz., that it undertakes the transmission of valuables of small dimensions at a commission paid of five per cent. If the article be lost, the Post Office pays the price at which it was valued.[283]

An arrangement for transmitting money through the Post Office was, I found, in great use, or what I thought such, while our money-order system, owing to the high rates of charge and other causes had but a very limited operation; the yearly amount transmitted being less than half that in France.

Meanwhile, there had appeared in the “Quarterly Review” an elaborate attack, said to have been written by Mr. Croker, on my whole plan and all its supporters; the Mercantile Committee, the Parliamentary Committee, the witnesses, and, above all, the Government, receiving each a share of the reproaches which fell primarily upon myself. A few extracts from this article may still interest or amuse my readers.

It contains one statement of some importance, which, had I recollected it at the proper time, would have been useful in a recent discussion as to the origin of postage stamps:—

My statement that the Post Office revenue had remained stationary during the twenty years preceding the writing of my pamphlet is pronounced by the writer to be completely overthrown by the fact that the Post Office revenue had doubled during the fifteen years preceding that period.[285]

Expectation of moral benefits from low postage is thus met:—

The reader of the present day, whom dire necessity has accustomed to modern hardships, will be roused to a sense of his condition by learning that “prepayment by means of a stamp or stamped cover is universally admitted to be quite the reverse of convenient, foreign to the habits of the people,”[287] &c.

The attack was answered in the next number of the “Edinburgh Review” in an article written by my eldest brother, which thus concludes:—

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CHAPTER VI.
PENNY POSTAGE. (1839-40.)

My attention, on my return from France (in October of this year), was mainly directed to the means of introducing the system of penny postage as promptly as was consistent with safety, much care being obviously necessary to put the office in order for the expected flood of letters before the sluices were opened. The Chancellor of the Exchequer suggested that in the outset stamped letters should not be admitted later than 3 p.m.; the time to be extended when practicable. The heads of the two chief departments in the Circulation Office urged, as a preliminary, the erection of the galleries already spoken of; a measure to which I objected, both because of the time that it would take, and because I thought a large outlay at the chief office (the estimate, without including any arrangement for better ventilation, being as high as £8,000) would delay the establishment of those district offices on which I relied so much both for public convenience and for the maintenance of the revenue. As a temporary expedient, I suggested the use of a part of the Bull and Mouth Inn, which happened then to be vacant; a suggestion which, unluckily, found no favour at the Post Office; so that, as the Chancellor of the Exchequer could not make up his mind to adopt the district system, immediate alterations were resolved upon, at the reduced cost, however, of £6,000.

One cause of delay was found in an invitation issued by the Treasury, accompanied with the offer of reward, for plans of collecting the postage, whether by stamps or otherwise; a proceeding which precluded any positive action until all the plans, which poured in from various quarters, should have been duly examined. The communications were more than two thousand five hundred in number, and the Chancellor of the Exchequer, who had intended to read all himself, was obliged to delegate the task to the Junior Lords of the Treasury, who must have had dry work of it, as I better knew when a considerable portion of the work devolved ultimately upon myself. Foreseeing much delay, I suggested to the Chancellor of the Exchequer the expediency of allowing, in the first instance, prepayment by money, though, as I pointed out, this course might increase the difficulty of introducing the stamp.

A few days later, viz., on November the 2nd, I laid before the Chancellor of the Exchequer the sketch of a plan which I had devised for the gradual introduction of the new system. This was at once to introduce into the London district the penny rate for prepaid letters, and to abolish throughout the district the additional charge of twopence then imposed on every General Post letter delivered beyond certain limits. As to the rest of the country, I proposed immediately to fix fourpence as the maximum single inland rate; with the abolition of all anomalous charges, such as a penny for crossing the Menai Bridge, the halfpenny for crossing the Scottish border, and the penny for delivery beyond certain limits. These recommendations, after having been fully considered by the Post Office and the Treasury, were carried into effect on the 5th December.

The Chancellor of the Exchequer expressed doubts as to both the economy and the safety of prepayment; and though he admitted that stamps must be tried, and though I submitted an elaborate Report on the whole subject, his doubts grew yet stronger; but as I remained confident, he gave way, only declaring that he threw the responsibility of that part of the measure entirely upon me. Even had I felt any misgiving, it was now too late to draw back; but I accepted the responsibility with alacrity.

Amidst these proceedings there were one or two occurrences of some interest.

I received a letter from Mr. Cobden, from which I give an extract, showing that, however favourably I may have thought of my plan, his expectations far outran my own:—

The Chancellor of the Exchequer consulted me as to the policy of taking advantage of the willingness, as reported by Dr. Bowring, of the State of Hamburg to reduce the charge on English transit letters from fourpence to a penny in consideration of their letters being charged a penny for passing through England. I strongly advised that the treaty should be concluded forthwith, which was accordingly done.

When, however, I was consulted as to the policy of further reducing the inland rate on foreign letters generally, before negotiating similar reductions with foreign powers, I advised against that course, as likely to render such negotiations more difficult; and the project was abandoned.

The question of probable forgery of the stamp still causing much anxiety, various conferences were held on the subject. Not to go into tedious details, it may be mentioned that the three kinds of stamps now in use, though in very different degree, viz., stamped letter-paper, stamped envelopes, and adhesive stamps, were agreed upon, and obtained the approval of the Treasury.

In the minute establishing the fourpenny rate, care had been taken to show that the measure was only temporary, and merely intended to give needful practice in the new mode of charge, viz., by weight, before the great expected increase in the number of letters should occur. The explanation, however, did not give universal satisfaction, and I began now practically to feel how great an advantage had been neglected when Government declined to take up postal reform without awaiting the coercion of popular demand. The spontaneous reduction of the existing high rates to a maximum of even sixpence or eightpence, would have been welcomed with joy and gratitude; now so low a maximum as fourpence, though this was the lowest of all General Post rates when my pamphlet was published, was received with no small amount of dissatisfaction. Suspicions arose that the concession would go no further; Government was accused of an intention to cheat the public; and I, too, had a share in the accusation, being charged in some of the newspapers with having betrayed my own cause. Hitherto denunciations had fallen on me from above; my elevation to office now gave opportunity—speedily seized on—for attacks from below. I had learnt, however, before this time that all this was to be expected and endured; that the only chance of escaping obloquy is to avoid prominence; that the thin-skinned should keep within the pale of private life.

December the 5th, the day appointed for the first change, was of course passed in considerable anxiety as to the result, but of necessity I had to await the next morning for the satisfaction of my curiosity. The following is from my Journal, December 6th:—

When it was found that the immediate increase was so very moderate, the moment had arrived for exultation in those who had predicted failure; and, like Sir Fretful Plagiary, I was fortunate enough to have more than one “damned good-natured friend” to keep me sufficiently informed of the jubilation.

Whilst, as I have said, angry voices arose at the limited extent of the first reduction, there were at least some persons who, being out of the reach of general information, received the change much as I had once hoped the whole public would do, viz., as a great and unexpected boon. A poor Irishman, for instance, who brought a letter to the Chief Office, with one shilling and fourpence for the postage, upon having the shilling returned to him, with the information that the fourpence was all that was required, broke out in acknowledgment to the window-clerk with a “God bless your honour, and thank you.”

About a week after the change, I had the satisfaction of hearing from Messrs. Bokenham and Smith, the two heads of the Circulation Department, as follows:—

Three days later I proposed to the Chancellor of the Exchequer that the penny rate should come into operation in three weeks from that day; the prepayment to be made in money until the stamps, now in preparation, could be issued; and the abolition of franking to take place as soon as prepayment should be made compulsory. Mr. Baring approved generally of the plan, but preferred to extend the time to a month, and to abolish franking at once; the former modification being of little moment, the latter, as may be inferred from the event, a very judicious change.

Two days afterwards—that we might complete the necessary arrangements without loss of time—the Chancellor of the Exchequer, on leaving Downing Street, took me with him to his house at Lee, where, after dining, we set to work, and, continuing without interruption, finished our task about one in the morning. When I rose to retire, somewhat fatigued with my long day’s work, I observed, to my surprise, that my host, opening his Treasury box, began to take out papers as if for immediate examination. Upon my expressing surprise, and a hope that he was not going to work more that night, he told me that he should not sleep till all were dealt with. If I had ever supposed that Chancellors of the Exchequer led an easy life, I had abundant opportunity, now and afterwards, for disabuse.

The 10th January,[288] 1840, was determined upon as the day when penny postage should be established throughout the whole kingdom.

I proposed that the scale of weight, as applied to high-priced letters (foreign and colonial), should ascend throughout by the half-ounce. Mr. Baring was favourable to this arrangement, but it was abandoned for the time at the desire of Colonel Maberly, who maintained that trouble would arise from the minuteness of the grade; and, in fact, it was not adopted till more than twenty years afterwards.

Meanwhile, the examination of the multitudinous devices for producing an inimitable stamp having at length been completed, I was called on to prepare a minute on the whole subject, preparatory to issuing orders for the execution of the work. The mode of proceeding in such cases may surprise the uninitiated as much as, in the outset, it had surprised me. By this time, however, I had fallen into the routine. Accordingly, I put my own views on the matter, modified by what I had gathered in conversation with my official superior, into the mouths of “My Lords,” submitting the draft to the Chancellor of the Exchequer for his comments, in accordance with which I altered again and again until he was satisfied; soon learning that when this point was gained, the consent of “My Lords” was as prompt and certain as the facing of a company at the command of the captain.

Few fictions, I suppose, are more complete than the minutes purporting to describe the proceedings of the Treasury Board. There was certainly a large and handsome room containing a suitable table headed with a capacious arm-chair, the back bearing a crown, and the seat prepared, as I was informed, for the reception of the Sovereign, whose visits, however, scarcely seemed to be frequent, as the garniture was in rags. On this table, according to the minutes, the Chancellor laid such and such papers, making such and such remarks; sometimes the First Lord of the Treasury appeared as taking a part, though only on occasions of some little importance, such, for instance, as my appointment; then deliberation seemed to follow, certain conclusions to be arrived at, and corresponding instructions to be given. This had a goodly appearance on paper, while the simple fact was that, two or three Junior Lords being seated for form’s sake, papers were read over which were to go forth as the resultant minutes of the said meeting, but which, having all been prepared beforehand, had received the signature of the Chancellor of the Exchequer, or of one of the Secretaries of the Treasury, the attending Lords giving their assent, as a matter of course, without a moment’s thought or hesitation. Once, indeed, while I was yet very new, I did venture to go so far as to inquire, in somewhat hesitating language, whether I was to complete the minute then in hand before it received the confirmation of the Board; nor shall I readily forget the look of perplexity which followed the question. When my meaning was at length perceived, such answer was given that the inquiry never had to be repeated.

With regard, however, to the competing plans for collecting the postage, though valuable suggestions were afforded by several, no one was deemed sufficient in itself. In the end there were selected, from the whole number of competitors, four whose suggestions appeared to evince most ingenuity. The reward that had been offered was divided amongst them in equal shares, each receiving £100.

By this minute the plan of prepayment was at length definitely adopted, as was also the use of stamps; and this in the three forms which I had recommended before the Treasury issued their invitation for suggestions; together with the addition recommended at the same time, that stamps should be impressed upon paper of any kind sent to the Stamp Office by the public. It was also ordered that the penny rate should be adopted forthwith; the stamps to be introduced as soon as they could be got ready. Charge by weight having been previously adopted, there was now added the rule doubling the charge on letters not paid for in advance.

The Queen having been graciously pleased (and here the words were no mere form) to abandon her privilege of franking, thus submitting her letters to the same rule as those of her humblest subject, it was determined that all other such privilege should cease at the same time. And here it may be observed, that though the obligation then extended to all Government offices, viz., to have their letters taxed like those of private persons, might seem to be only formal, since their so-called payment of postage was little more than matter of account between one department and another, yet, as no department likes to see its postage charge in excess, it constituted, in effect, to a considerable extent, a real check.[289] At the same time, it was essential for showing the real earnings of the Post Office.

In anticipation of a large influx of letters, it was ordered that, for a time, the free receipt of letters at the London offices should cease one hour earlier than before, with a corresponding arrangement at the country offices; but that the time for the receipt of late letters should extend to as late an hour as before.

The warrant for this minute appeared in a supplementary Gazette the same evening, December 28th; and this is the last event I have to mention in the year 1839, the third of the penny postage movement.

A question soon arose as to the hour for posting newspapers, a subject accidentally omitted in the minute. Here I may observe that, though I was constantly striving to anticipate all contingencies, and that for the most part with success, it would now and then occur that something escaped observation, and that, in a minute elaborately framed to meet all cases, some little flaw would still appear to give trouble. Often, however, the explanation was that a draft liable to extraneous modification would sometimes be materially changed by the substitution of a phrase, which, without careful comparison with the whole document, seemed a just equivalent for that which it replaced. However, as already said, here was certainly an omission. I had supposed that no change would be made in respect of newspapers, while Colonel Maberly considered these as included in the term letters. While we were discussing the point before the Chancellor of the Exchequer, Colonel Maberly contending that the restriction would be indispensable, I urging that it would be very unpopular, we were interrupted by the Chancellor, who meantime had been opening his letters, and now suddenly exclaimed, “My Exchequer Bills are at one per cent. premium; so I don’t care for a little unpopularity.” And thus the matter ended.

All being resolved upon, we did not hold it necessary to pursue the cautious policy observed on some previous occasions, but took means to make the coming change as widely known as practicable. Accordingly, a form of notification having been agreed upon, I ordered half-a-million of copies to be printed, and at the same time inserted a short advertisement in every newspaper throughout the kingdom.

On the day before that appointed for the establishment of Penny Postage, came information as to the effect of the fourpenny rate, showing that the numerical increase in the letters affected by the reduction was, for England and Wales, 33 per cent.; for Scotland, 51; and for Ireland, 52; the increase on the whole being 36 per cent.

At length the great day arrived. The following are the entries in my Journal:—

I must not omit to mention that I received a large number of letters—mostly from strangers—but all dated on this, the opening day, thanking me for the great boon of Penny Postage.

I learnt that on the first evening of the penny rate, notwithstanding the crush and inconvenience, three hearty cheers were given in the great hall for Rowland Hill, followed by three others for the officers of the department.

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CHAPTER VII.
STAMPS. (1840.)

As the arrangements for printing the stamps advanced, it became apparent that it would be necessary to appoint some well-qualified person to superintend the process, manage the machinery, &c. My thoughts turned to my brother Edwin;[292] and my recommendation being favourably received, and the consequent inquiries being answered as satisfactorily as I was well assured they must be, the Chancellor of the Exchequer informed me, about a fortnight later, that he had made the appointment. The salary he mentioned was £500 or £600 a-year; but, at my brother’s wish, I informed him that the smaller sum would be preferred, provided that the sacrifice might avail to secure him efficient assistance; an arrangement to which the Chancellor readily consented.[293] This appointment promised no small relief to me; as hitherto much of the time urgently demanded for more important business had been necessarily given to merely mechanical arrangements, since I could not and did not find in uninterested persons those zealous efforts and that watchful care which were essential to combined rapidity and security.

Much, however, still, and indeed for a long time afterwards, inevitably devolved upon me, which would be commonly supposed to be altogether out of my range. Naturally I was regarded by everybody as responsible for an innovation made on my advice. It would be beyond measure tedious to describe or even enumerate, the efforts and precautions for which I was called upon to give efficiency to the operation of my plan, and at the same time secure it against that various trickery to which innovation necessarily opens the door. Of course, too, each novelty in proceeding was admitted with more or less difficulty. Thus, for instance, though it was obviously desirable that the paper to be used as covers should, before issuing, be cut into the proper shape (machine-made envelopes were not yet thought of), yet that preliminary was objected to, because of the additional trouble it would give, not only in cutting, but also in counting. It really cost me a considerable portion of three several days, to say nothing of some trial of temper, to carry the point.

Towards the end of the following month (April) Mulready’s design, together with the stamps intended for Post Office use, was formally approved. Of this design I may remark, that though it brought so much ridicule[294] on the artist and his employers, yet it was regarded very favourably, before issuing, by the Royal Academicians, to whom it was presented when they assembled in council. Neither is the discrepancy hard to explain, since that which is really beautiful so often wearies by endless repetition.[295] I will mention here that the public rejection of the Mulready envelope was so complete as to necessitate the destruction of nearly all the vast number prepared for issue. It is a curious fact that a machine had to be constructed for the purpose; the attempt to do the work by fire in close stoves (fear of robbery forbade the use of open ones) having absolutely failed.

Of course my watch on the number of letters was unceasing, the result being very variable; sometimes encouraging, and sometimes so unsatisfactory as to cause me no small uneasiness; a feeling not much soothed by information that the plan, as I was informed in confidence by Mr. Gordon (Secretary to the Treasury), was already pronounced at the Post Office a total failure.

On March 12th the first parliamentary return on the subject was obtained; when it appeared that the increase in the number of chargeable letters was somewhat less than two and a quarter-fold. Certainly I had expected more, and was obliged, in my disappointment, to fall back on my general confidence in the soundness of my views, deriving, however, some encouragement from finding that the average postage, instead of being only 1¼d., as I had calculated, proved to be nearly 1½d.; a difference which, however trifling in appearance, would, when multiplied, as it already had to be, by a hundred and fifty millions, tell sensibly in the result. This, also, enabled me to correct my calculation as to the increase in the number of letters necessary to sustain the gross revenue; which I now reduced from five-fold to four and three-quarters-fold; a reduction fully justified eleven years later by the result.[296]

A Treasury Minute of April 22nd appointed the 6th of the following month as the day when prepayment by stamps should begin; the alternative of prepayment in money being left for the present, so as to allow time for the public to fall quietly into the new practice. Mr. Baring, indeed, having but little faith in the expected preference of the public for stamps, offered to promote their use by making them the only means of prepayment; but, independently of my confidence in their acceptability, I preferred that the two modes, money and stamps, should contend for public favour on equal terms.

A difficulty, however, arose here, for which I was quite unprepared, and which may still excite wonder. Objection was raised in the department to the sale of stamps at the three Chief Offices, viz., of London, Dublin, and Edinburgh. I can only suppose that official dignity was touched, the feeling excited being such as might arise on board a man-of-war at a proposal to intrude bales of merchandise on “Her Majesty’s Quarter-deck.”

The issue of stamps, however, began, as appointed, on the 1st of May. Great, I had the satisfaction of hearing, was the bustle at the Stamp Office; the sale on this one day amounting to £2,500. It was clear, therefore, that this practice, so “inconvenient and foreign to the habits of Englishmen,” was at least to have trial. So far all was well; but now began a series of troubles, against which I had striven to provide, but necessarily through the instrumentality of others little interested in their prevention.

Six days later, I received information that no stamps had been issued to any of the receiving-houses in London. On inquiring into the cause of this omission, I found that in the Treasury letter, giving instructions on the subject, the important word not had been omitted, so that whereas the minute directed that the issue should not be delayed on account of certain preliminaries, the letter directed that it should.

Two days later, a new difficulty appeared. The objection raised at the Stamp Office to perform the duty of cutting up into single covers the entire sheets which came from the press, had prevented the construction of proper machinery for the purpose; and now a contest arose between two departments, the Stamp Office persisting in issuing the sheets uncut, and the Post Office very properly refusing to supply its receivers with them until cut. The consequence of this antagonism was that the cutting had to be carried on throughout the following Sunday. I secured, however, an additional machine for the Monday, and the promise of another for the Wednesday. Nevertheless, the delay produced considerable dissatisfaction; the stamps issued having fallen, to a great extent, into the hands of private venders, who naturally took advantage of the demand to sell at a profit.

A week later, the issue threatened to come to a standstill; the Post Office, though it had in writing undertaken the duty of distributing the stamped covers, now declaring such distribution beyond its power. My inquiries merely produced a repetition of this declaration; the nature of the obstacle I failed to learn. As I was unwilling to call in the authority of the Chancellor of the Exchequer, who, indeed, at this time was so much occupied as to be almost inaccessible, I could but urge and remonstrate; and it was some time before this produced the desired effect. Even a month after the first issue, the London receivers remained still unsupplied, the Post Office alleging that it could not obtain stamps, and the Stamp Office declaring that it had complied, and more than complied, with all requisitions. The only thing beyond doubt was that blame rested somewhere; but where, it was hard to discover; the more so, as each department was too much out of temper to allow of easy interrogation. I scarcely need add that troubles more or less similar to these continued to arise from time to time.

Meanwhile, the actual production could scarcely keep pace with the public demand; the less so as this took the unexpected form already implied; adhesive stamps so fast rising in preference, that the great stock of covers which had been prepared proved of comparatively little value. The presses actually at work were producing more than half a million of stamps per day, but this was insufficient, and sudden addition was not practicable, since, by a relay of hands, the work was already carried on by night and by day without intermission. Of course, such pressure was not without its evils; some of the work being inaccurately and even carelessly executed, so that I began to fear that forgery might be successfully attempted. My apprehensions, however, happily proved groundless; only two attempts, so far as I know, ever having been made, and both of a very bungling character, though in one the author was cunning enough to escape personal detection. In the other, which occurred in Ireland, the offender was convicted and punished; the detection occurred through the fact that a young man had written to his sweetheart under one of the forged stamps, and enclosed another for her use in reply.

Amidst these anxieties another arose, which proved far more durable and more troublesome. This proceeded from the difficulty of making the obliteration of the stamp complete and effectual. All the penny stamps, it must be observed, were at this time printed in black; the obliterating ink being red; used, I suppose, because that colour had long been employed in the Post Office to indicate prepayment. Of course the danger was, first, lest obliteration should be omitted; and, secondly, lest the effacing marks should afterwards be removed. Even on the first point there was a good deal to complain of in the outset; so much so that a certain amount of discredit began to attach to stamps as a whole. The Post Office replied to complaints by saying that every care was taken; and no doubt serious difficulties would arise in introducing a new mode, where so many persons were concerned; these, too, being spread far and wide over the kingdom.

An extract from my Journal, a few days later, shows how matters were getting on:—

Seven days later I find the following entry:—

This took me next day to the Post Office, where I remained during the two busiest hours of the day, witnessing operations. I give the following extract:—