The Ship Letter Act of 1814 proved a complete failure. It contained no provision obliging private ships to carry letters, and the private ships between England and India were almost entirely in the hands of the East India Company. No wonder, therefore, that the Company, when asked whether it might be announced to the public that bags would be made up at the Post Office to be conveyed by their ships, replied in the negative. The Court of Directors, their letter said, are not without hopes that Parliament will consent to revise the Act, and meanwhile they "do not see fit to authorise the commanders or owners of any of their ships to take charge of any bag of letters from the Post Office subjected to a rate of postage for sea conveyance." Freeling was filled with dismay. "A vital impediment," he exclaimed, "to the execution of the Act."
The expectations of the India House were not disappointed. In the next session of Parliament the Act of 1814 was replaced by another which granted larger exemptions to the Company and disarmed its opposition. The later Act gave power to the Post Office to establish a line of packets to India and the Cape of Good Hope, and, until a line should be established, to employ as packets any ships it pleased, including ships of war. The mails were to go once a month. By packet—in which term is included the ship which the Post Office might be pleased to designate as packet for the occasion—the postage on a single letter was fixed at 3s. 6d.; by private ship it varied according to direction, outwards 1s. 2d. and inwards 8d.
Such were the main provisions of the Act of 1815; but there were others which introduced new principles. As a result of the action of the East India Company in the preceding year, it was now for the first time made compulsory upon private ships to carry letters when required to do so by the Post Office,[81] and the Post Office was empowered to pay for their carriage a reasonable sum. This sum was to go by way of remuneration to the owners of the vessels, and to be in addition to a gratuity of 2d. a letter which the commander was to receive as his own perquisite. A still more important provision, a provision which assuredly could not have emanated from the Post Office, was one in favour of newspapers. By packet the postage on a letter to India or the Cape weighing as much as one ounce was to be 14s.; on a newspaper of no greater weight, if stamped and in a cover open at the side or end, it was to be 3d. This was the first enactment that provided for newspapers going outside the limits of the United Kingdom for less than the letter rate of postage.
What was virtually a most interesting experiment was now about to be tried. To India and the Cape the Post Office had no packets of its own; and before private ships could be employed as packets, the consent of the owners had to be obtained and the amount of payment to be agreed upon. Practically, the Post Office was at the mercy of others. Mails had to be sent once every month; ships of war could not always be employed; and should the shipping interest combine, the postmasters-general would have to pay pretty much what owners chose to demand. To the credit of that interest nothing in the shape of combination took place. During the first sixteen months the mails were despatched five times by His Majesty's ships, four times by ships of the East India Company, and seven times by ships belonging to private owners. His Majesty's ships carried the mails, of course, without charge. The East India Company, with admirable generosity, placed their ships at the disposal of the Post Office and refused to receive any payment. And the ships belonging to private owners were engaged, the first of them for £500 and the other six for sums ranging from £50 to £150. Altogether, the sum expended during more than a year and a quarter in transporting the mails to India and the Cape of Good Hope did not exceed £1250; and the postage during the same period amounted to £11,658. In the following year, the year 1817, even better terms were obtained, the owners of private ships engaged as packets receiving in no case more than £125, and in one case as little as £25.
The East India Company's generosity was not reciprocated by the Post Office. His Majesty's ship Iphigenia, which was lying at Portsmouth, had been appointed to carry out the mails, and the India House had sent down its despatches to be put on board. In strictness these despatches should have been sent through the Post Office, inasmuch as the Iphigenia had been appointed a packet for the occasion; but as the India House paid no postage on its correspondence, whether sent by packet or by ships of its own, it was a mere technical irregularity.
Freeling maintained, however, that there was an important distinction which ought to be observed. It was true that no question of postage was involved. It was also true that the India House would have been at liberty to put its despatches on board the Iphigenia had she been sailing for India without being appointed a packet boat; but as she had been so appointed, the intervention of the Post Office was necessary, and without that intervention the commander ought not to have received them. Accordingly, Freeling urged upon the Government, though happily without success, that orders should be sent to Portsmouth to have the despatches removed from the ship to the local Post Office, to be there kept until instructions should be received from Lombard Street that they might be again taken on board.
On the close of hostilities in 1815 domestic matters began once more to occupy a place in men's thoughts; and it was next to impossible that the Post Office should escape attention. Its heavy and capricious charges, its high-handed proceedings, its disregard of the public requirements, its prosecutions, its constant indictment of roads which it largely used and yet contributed nothing to maintain, and, above all, the fact that its administration was virtually in the hands of one man, and that man not the nominal head, who could be reached by constitutional means—signs were not wanting that these and other matters had created an amount of dissatisfaction which must sooner or later find expression. Yet Freeling either could not or would not see. Were not his immediate superiors, the postmasters-general, satisfied with his management, so satisfied indeed that they seldom, if ever, found it necessary to pay a visit to Lombard Street? And had not the contributions which, under his guidance, the Post Office kept pouring into the Exchequer raised him high in the Chancellor's favour? If so, what more could a loyal and industrious public servant desire?
That Freeling was elated with what he considered his unbounded success is clear from a letter which about this time was written to the Treasury, enclosing a return of the Post Office revenue, and shewing how it had responded to the successive increases of rate which had been imposed during his tenure of the office of secretary. This letter, drafted by himself, as all the official letters were, though signed by the postmasters-general, concluded thus: "We flatter ourselves that we shall not be considered as exceeding the limits of our duty in drawing your Lordships' attention to a circumstance which has made a strong impression on ourselves in the course of our inquiry, namely, that the office of secretary during the whole of this flourishing period has been executed by the same faithful and meritorious servant of the Crown." The return, with a copy of this letter appended, was afterwards presented to Parliament.
There is no more tolerant assembly in the world than the House of Commons; and yet even the House of Commons is intolerant of egotism. It may have been, and probably was, a mere coincidence, but the fact remains that from the date of the presentation of this return Freeling's influence began to wane.