United Kingdom
In 1847 Sir Rowland Hill proposed the provision of special facilities for the transmission by post in the United Kingdom of books and other printed matter. He thought such a concession expedient as a matter of policy, especially in view of the "state of the public mind on the important subject of education." A low rate of postage would facilitate the transmission of scientific and literary reports and other documents "tending to the extension and diffusion of knowledge," and would be highly prized by the Literary and Scientific Societies, which were a feature of those days. Private families, especially the rural clergy, would also in that way be enabled to obtain valuable publications otherwise, to them, unattainable. Sir Rowland Hill recognized that there were objections to the granting of a special rate for a special class of matter; but he argued that, in effect, the proposal was nothing more than an extended application of an existing principle, applied to newspapers and Parliamentary Proceedings, and (in regard to certain places abroad) ordinary periodical publications.[464]
The rate proposed was 6d. per pound, which was virtually the rate charged on newspapers, with this difference to its advantage, that, whereas 6d. paid on newspapers would represent six packets to be dealt with separately, 6d. paid under the proposed book post rates would be in respect of one
packet only. The high minimum charge of 6d. was proposed as a security against fraud: with such a minimum there would be no temptation to send a packet as a cover for a written communication. As a measure of economy it was proposed to send the packets by the day mails as far as possible, by this means avoiding loading heavily the important night mail trains and adding to their cost; and it was anticipated that the rates proposed would yield some profit to the revenue.
Objection was raised on the ground that the post ought to be confined to small packets as far as possible, and should convey large letters and packets only when necessity was urgent: heavy packets would impede the work of the Post Office, and would cause inconvenience in many ways, especially as regards foot-messengers;[465] but, as it was not thought likely that any very great number of book packets would be posted, the objection was not upheld, and the cheaper rate was introduced. At first various restrictions were imposed, and considerable public dissatisfaction resulted, especially in regard to certain of the regulations. These regulations were consequently relaxed in 1853 so as to allow practically any printed matter to pass at the book rate. In 1855 the rate was reduced,[466] and in 1856 circulars were admitted at the privileged rate. As a result of this the number of book packets increased rapidly. In 1855 the total number was 3,000,000; in 1856 the number increased to 6,000,000; and in 1862 reached 14,000,000. In 1866 the rates for heavier packets were further reduced. The rate for packets over 8 ounces in weight became 1d. for each 4 ounces, instead of 2d. for each 8 ounces.
In 1870, when the ½d. rate for newspapers and for postcards was established,[467] an important change in the book post was made. As the result of pressure from the public and a vote in the House of Commons in favour of a reduction, carried against the wishes and recommendation of
the Government,[468] the rate on book packets was reduced to ½d. for every 2 ounces.
Since 1870 the regulations governing admission to the book post have been modified from time to time, chiefly in the direction of enabling the formal documents of commerce to pass at the reduced rate. All documents admitted to the privilege must conform to certain requirements, and it is obvious that all such documents must be open to inspection by the Post Office. It is therefore an indispensable requirement that the documents be sent in open covers. Thus arises that curious distinction between the "closed" post and the "open" post, a lower rate of postage being given to packets containing articles or documents of a certain description, on condition that the contents are open to inspection by the postal authorities.
In 1897 the ordinary letter rate was made 1d. for the first 4 ounces, and ½d. for each additional 2 ounces. The book post, therefore, disappeared, except as regards packets not exceeding 2 ounces in weight; and in 1904 its name was changed to the "Halfpenny Packet Post." It is available for practically all the formal documents of commerce, and, in addition, many other packets of miscellaneous character, and remains a most important branch of Post Office traffic.[469] In 1913-14 the number of halfpenny packets
(excluding postcards) was no less than 1,172 millions, or about one-fifth of the total number of packets passing by post in the United Kingdom.
When on the 1st November 1915 the postage on letters over 1 ounce in weight was increased, the book post was re-established as it had existed prior to 1897, except for unimportant modifications of the regulations. It had been proposed to abolish altogether the ½d. rate of postage,[470] but in view of strong representations from the printing trade, and of the hostility of the general public, this proposal was abandoned.