The actual arrangement for the coach had been made not through Palmer but through Bonnor, Palmer's lieutenant; and to him Walsingham now applied for further information. Bonnor's reply was a strange compound of candour and insolence. It was indeed not to be wondered at, he said, that his Lordship's indignation should be roused by the magnitude of the bill. Had the matter been left as originally settled under Mr. Palmer's orders, Wilson could never have made so monstrous a claim. By those orders he had been given to understand that, the coach being designed as a mere compliment to the King, not more than 1d. a mile would be allowed at the outside. And "so the undertaking stood 'till your Lordship ordered the circular letter to the horse-keepers respecting Sir George Baker's[63] being accommodated with the mail horses if he had occasion. Your Lordship will recollect that I remonstrated against it, and urged the impossibility of Wilson ever allowing his mail horses to be taken out of his stables for posting, and the regularity of the work destroyed, and the cattle drove along by people he knew nothing of; to which your Lordship was pleased to say that Wilson had no business to trouble his head about that; that, whatever his expenses were, he should be paid; and that no feelings of his about his horses or anything else should prevent the thing being done in the best possible style."... "Thinking as little in the delivery of the message as your Lordship did in sending it that such an advantage would be taken, I of course obeyed the directions, and it seems that this is the ground upon which the charge is made out as it is."
Walsingham was not satisfied, and resolved to contest the bill. Palmer now took alarm, and urged every consideration he could think of to dissuade Walsingham from his purpose. To have recourse to a Court of Law might seriously damage his infant undertaking. A legal dispute had been avoided hitherto, and, with a cunning and refractory set of persons such as the contractors were, might have the effect of raising the present terms of conveyance. These terms were low, lower than the Post Office was likely to obtain again; and the mail-coaches were running smoothly. It would be a thousand pities to introduce an element of disturbance. Besides, how unpleasant it would be to his Lordship to be subpœnaed as a witness; and, in the hands of an expert counsel, how supremely ridiculous the whole business might be made to appear! The King's jaunt with a mail-coach in attendance! For his own part, when he had been unfortunate enough to be imposed upon, he generally found it best to put up with the imposition and to take more care another time. Nor should it be forgotten that the matter might have been much worse. When first he had heard of the arrangement, he had rebuked Bonnor for his extravagance; and Bonnor had produced two letters from his Lordship in justification. These letters shewed not only that no expense was to be spared, but that it had originally been in contemplation to have two coaches, and that it was only owing to Bonnor's earnest expostulation that the idea of a second coach had been given up. Surely it was cause for congratulation that the bill was no higher. Had two coaches been established instead of one, Wilson might have clapped on another £1000. As the bill stood, it was a gross imposition, an imposition which must condemn him in the eyes of all honest men; and yet it would be pure madness to go to law. These arguments prevailed, and Walsingham abandoned his intention of contesting the bill. He did not at this time see, what he saw clearly enough some years later, that in retaliation upon himself for presuming to interfere Wilson had been cajoled or coerced into making an exorbitant demand, and that of the several persons who were concerned in the transaction Wilson himself was the least to blame.
This may be a convenient place to notice a point in which the practice of 1788 differed from that of the present time. It was only a few months after his return from Cheltenham that the King was taken with the serious illness which so nearly proved fatal. On the 9th of November the accounts from Windsor were such as to leave little room for hope. On the 10th intelligence reached the Post Office at three o'clock in the afternoon that, contrary to all expectation, the King was still living; and on the 14th a form of prayer was issued, to be used in all churches, for His Majesty's recovery. At the present time a circular of this kind would reach the Post Office already addressed to the persons for whom it was intended, and the Post Office would do nothing more than carry and deliver it like an ordinary letter. But such was not the case in 1788. The form of prayer, as it was issued by the printer, was sent to the Post Office in bulk, and the Post Office despatched fifty copies to the postmaster of each town with instructions to distribute them "with all possible expedition to the rectors, vicars, or resident ministers of your town and all places in your delivery." The point is hardly deserving of mention, for, of course, it would make little difference to the postmaster whether the copies were sent in bulk or as single letters. He would be bound to deliver them in either case. It is more worthy of note that, as the number of Post Offices in England was at this time only 608, and the area subordinate to each of correspondingly wide extent, to go over the whole of his delivery at one time as these instructions obliged the postmaster to do was no slight undertaking, and one which, owing to the paucity of letters, he had probably not been required to perform on any previous occasion. In this instance, however, we may feel sure that a sense of loyalty alone precluded all disposition to murmur. With far other feelings, it may well be believed, was an order regarded which had been issued rather more than thirty years before. The year 1756 was a year of scarcity; and, under direction from Whitehall, postmasters were to frequent the local markets and to ascertain and report the price of corn. This is the first instance on record of postmasters having been employed outside their own proper duties as such. It may be added that two years later the Duke of Newcastle sent down in hot haste to Lombard Street to inquire the latest prices, when it was explained to His Grace that, despite the course which had been adopted in 1756, the Post Office was not an office for the collection of agricultural returns.
It is a common practice to laugh at public offices for their rigid adherence to routine. This, we think, is not quite reasonable. No doubt it is calculated to excite ridicule, and indeed to irritate beyond all endurance when a course obviously proper in itself is condemned because, forsooth, there is no precedent for it; and we are by no means sure that some public servants would not be all the better for taking to heart the maxim—Wise men make precedents, only fools require them. But, without the order and regularity which a strict adherence to routine can alone produce, the business of a Government department must inevitably drift into a state of hopeless confusion. This is a truth which persons outside the public service have always found it hard to accept; as well indeed as persons inside who have entered late in life or after their habits are formed. Palmer was of the latter class; and a striking instance now occurred of his inability to adapt himself to the requirements of his new situation. Walsingham had asked whether the surveyors were keeping their journals regularly. These officers, besides a small salary, were now receiving an allowance of one guinea a day when travelling; and not only was a journal indispensable in order to shew whether they had been travelling or not, but the keeping of one had been made an express condition of the allowance being given. No subordinate cared to pass on the inquiry to Palmer, implying, as this might seem to do, a doubt. Walsingham had no such scruple and wrote to Palmer asking that the journals might be sent to him for examination. Palmer's reply will explain how it is that the records which now exist respecting himself and his achievements are so surprisingly few. There were no journals, he said. The surveyors' own letters, with their bills of expenses attached, were sufficient evidence of the journeys they had made. And these bills and letters, he added, as soon as the charges which they represent have been paid, "are and must be useless paper, for if I did not constantly clear my office both of their as well as my own and the other officers' rubbish, I should be buried under it." The auditors of the imprests had recently made good progress, but, fortunately for the Post Office, they were still many years in arrear.[64]
Among Walsingham's correspondents was George Chalmers, a merchant of Edinburgh. Chalmers was no mere maker of crude and impracticable suggestions. He had thirty years before been instrumental in shortening the course of post between Edinburgh and London. Before 1758 the Great North Mail, as it was called, went three days a week and occupied eighty-seven hours in going from London to Edinburgh, and 131 hours in going from Edinburgh to London. Thus, a mail leaving Edinburgh at twelve at night on Saturday did not reach London until eleven o'clock on Friday morning. Chalmers, in a paper of singular ability, dwelt upon the absurdity of the various detentions, ranging from three hours at Berwick to twenty-four hours at Newcastle, which made the course of post longer by nearly two days in one direction than in the other, and shewed how, by avoiding these unnecessary delays and getting rid of a diversion of twelve miles to York, the distance might be accomplished between London and Edinburgh in eighty-two hours, and between Edinburgh and London in eighty-five. The plan was adopted, and some years later, in recognition of its merits, Chalmers received from the Government a gratuity of £600. More recently he had prevailed upon the Post Office to increase from three to six days a week the service between London and Edinburgh, and from Edinburgh to the principal towns in Scotland; and in London, at his suggestion, the letter-carriers who collected letters by the sound of bell, or bellmen as they had begun to be called, were being employed after nine o'clock at night.
It was not, therefore, as a novice in Post Office matters that Chalmers now entered into correspondence with Walsingham. His present representation was in the nature partly of a suggestion and partly of a complaint. He had been staying some time in London, and was surprised to find that at the capital of the first commercial nation in the world the Post Office closed as early as seven o'clock in the evening. He contended that it ought not to close before ten. But it was in respect to his own native city of Edinburgh that he felt and expressed himself most warmly. Edinburgh was without a penny post. He was himself an old man or he would undertake to farm one, although, in his judgment, the farming of such an institution, until at least it was well established, was not for the public interests. But surely, whether farmed or not, a penny post should be opened without delay, and on his return to Edinburgh he would let Walsingham know how this could best be done. Nor was the want of such a convenience by any means the chief thing of which the inhabitants of Edinburgh had to complain. Since 1758 their post had not gone out until eight o'clock at night. Now, to suit Palmer's arrangements, it went out at half-past three in the afternoon; and, more than this, the diversion to York, which it had cost such pains to get rid of some thirty years before, had been revived. Thus, between Edinburgh and London the course of post was actually longer now than before the introduction of mail-coaches by as much as five hours. Were a little more consideration to be given to the correspondence of the country and a little less to the convenience of passengers, more than these five hours might be saved. At all events the mails might start from Edinburgh at eight o'clock as before, and from London at ten, and yet arrive at their destination no later than now. For himself, he thought it hardly decent that passengers should be allowed to travel by the same coaches as the mails, and predicted that a time would come when the mails would have coaches to themselves. Much of this, Chalmers added, he had pointed out to Palmer some time before, and the only result was an angry letter which had terminated a friendship of years. Even as he now wrote, another letter had come to hand in which Palmer told him, almost in so many words, to mind his own business.
Walsingham was at this time at Old Windsor. Hither it was his habit to repair whenever he had anything of more than ordinary interest to engage his attention; and such was the case at the present moment. He had recently had lent to him, under a pledge of the strictest secrecy, a copy of the Report of the Royal Commission which had sat upon the Post Office in the preceding year; and this Report he was now having copied under his own eye with a view to the preparation of an elaborate criticism upon it. But though absent from London he relaxed not his hold upon the Post Office for a single moment. Each morning's post brought to Lombard Street its own budget of drafts, to be written out fair, of questions to be answered, of scoldings to be given, and of instructions to heads of departments in the minutest details of their duty. Walsingham absent was a far more important personage than Carteret present; and a mandate from Old Windsor superseded any that might be given on the spot. It was while Walsingham was thus engaged that he received one morning from Palmer a few hurried lines, of which the last were as follows: "You ought not, meaning as well as you do, to be unpopular anywhere. Nor must you. You fret me now and then, tho' you don't intend it, and I am angry with myself for it." A visit from Palmer on the following morning, especially as that morning was Sunday, was little calculated to lessen the surprise with which Walsingham must have read this letter. The truth is that Palmer had repaired to Windsor with the intention of resigning his appointment; but the courteous reception he met with from Walsingham disconcerted his plan, and he returned to London as he had come, with the letter of resignation in his pocket.
The reasons which Palmer afterwards gave for his conduct on this occasion throw a flood of light upon his character. These reasons were: 1st, That Walsingham was ready to listen to proposals for improving the Post Office, come from what quarter they might, thus leaving it to be inferred, as Palmer put it, either that he was himself incompetent to effect improvements or else that there was a sinister design to detract from his reputation. 2nd, That from himself, though vitally interested in its contents, a report was being kept which clerks from his own office had been sent down to Windsor to copy. 3rd, That the same feeling of distrust was evidenced in the constant pressure which was being put upon him to require the surveyors to keep journals. How hollow these reasons were, a very little consideration will shew. In the course of the correspondence with Chalmers, on which the first of Palmer's reasons was obviously founded, Walsingham had been careful to state that, while ready to consider proposals for establishing a penny post in Edinburgh, he must decline to interfere with any of Palmer's arrangements. The second reason, though more plausible, was the merest pretext. Not a month before, with the full knowledge of what was going on at Windsor, Palmer had offered to send down, if required, the whole of his office to assist. And more than this. Although Walsingham could not in honour disclose a document which had been lent to him under a pledge of secrecy, Palmer must have been perfectly well acquainted with so much of the Report of the Royal Commission as dealt with his own undertaking, for it is beyond all question that this part of the Report had been written by himself. There was no other man living who was capable of writing it; and even if there had been, the opinions, the recommendations, the mode of expression, the disparagement of Ralph Allen, all of which are common to the Report and Palmer's private writings, unmistakably betray the author. The third reason requires little remark. Walsingham would have neglected his obvious duty if he had not taken steps to establish some check upon the travelling expenses claimed by the surveyors; and the experience of the hundred years which have since elapsed has failed to devise any better check than the journal. The keeping of the journal, moreover, had been an express condition imposed by the Treasury when the allowance of a guinea a day was authorised.
Walsingham treated Palmer on this occasion with great kindness. Rightly judging that jealousy was at the root of the whole matter, he followed up the conversation which had taken place at Windsor by a letter, in which he exhorted Palmer to speak out, to declare his sentiments freely, and to dismiss idle apprehensions. Then came a full statement from Palmer, written, as he expressly declared, "not as a justification but as an apology for my suspicions," and explaining the object and the motives of his visit on the preceding Sunday. "Your habits are not my habits," he concluded; "I would give a great deal for but a part of your correctness and inveterate attention to business and accounts." Walsingham's reply, which came by return of post, was an invitation to dinner. Palmer accepted it, and the courteous and hearty welcome he received called forth his warmest acknowledgments.
The duty of the mail guards, as their title implies, was to guard and protect the mails. This body of men, as it existed during the first forty or fifty years of the present century, was one of which the Post Office might well be proud. The very nature of their employment engendered in them a habit of self-reliance and an independence of character which invested them with a peculiar interest. But it was not always so. When mail-coaches were first established, Palmer had it in contemplation to employ retired soldiers as mail guards, on the ground that soldiers would be accustomed to firearms; but constitutional objections prevailed and the contractors who furnished the mail-coaches with horses were required also to furnish firearms arms and the men to use them. The result was not satisfactory. For economy's sake men were employed of little or no character, and the weapons with which they were supplied were of the most worthless description. More than worthless, they were dangerous. "Cheap things;" they were declared to be, "that burst and often did mischief." Accordingly, at Palmer's suggestion, the Post Office undertook to appoint its own mail guards. Honest and faithful as these men always were, it was only by degrees that they grew into the fine body they afterwards became. At first the novelty of their position led them into little excesses such as were never heard of in later years. Thus, a statute passed in 1790 imposed a penalty of 20s. on any mail guard who should fire off the arms with which he was entrusted for any other cause than the protection of the mail; and even this enactment appears to have been insufficient to correct the abuse against which it was directed. "These guards," writes Pennant two years later, "shoot at dogs, hogs, sheep, and poultry as they pass the road; and even in towns, to the great terror and danger of the inhabitants."[65]