[80] The Quarterly Review, for October, 1839, speaking of his motions for different papers, says, "What grounds he had for making them could only be imagined. They were, in fact, the kind of random motions with which a member fishes for abuses, but is still more anxious to catch notoriety." The italics are not ours.
[CHAPTER VII.]
SIR ROWLAND HILL AND PENNY POSTAGE.
Miss Martineau, in her history of the Thirty Years' Peace, narrates a somewhat romantic incident to account for Mr. Hill's original relation to our subject, tracing the fiscal reform with which his name is indissolubly connected to the "neighbourly shilling" well laid out of a "pedestrian traveller in the Lake District." Unluckily for the historian, the incident never happened to Mr. Hill. The repeated motions of Mr. Wallace in the House of Commons are proved beyond dispute to have brought home the subject to the consideration of many thoughtful minds, and amongst those, to one who had scholarly leisure and philosophical ingenuity to bring to its service.
Born in 1795, and for many years a tutor in his father's school near Birmingham, Mr. Rowland Hill was, at this time, the secretary of the Commissioners for conducting the Colonization of South Australia, upon the plan of Mr. Edward Gibbon Wakefield. At this post, according to the testimony of the commissioners themselves, Mr. Hill laboured unweariedly, "evincing," as they said, "considerable powers of organization." Mr. Hill, in one place,[81] gives a clear account of the way he prepared himself for the work he took in hand, when once his attention was arrested by the subject. "The first thing I did was to read very carefully all the reports on post-office subjects. I then put myself in communication with the hon. member for Greenock, who kindly afforded me much assistance. I then applied to the Post-Office for information, with which Lord Lichfield was so good as to supply me. These were the means I took to make myself acquainted with the subject." In January, 1837, Mr. Hill published[82] the results of his investigations, and embodied his scheme in a pamphlet entitled Post Office Reform: its Importance and Practicability. This, the first edition, was circulated privately amongst members of the legislature and official men; the second edition, published two months afterwards, being the first given to the world. The pamphlet, of which we will here attempt a résumé, immediately created a sensation; especially so in the mercantile world. Mr. Hill may be said to have started with the facts to which we have already adverted[83], namely, that the Post-Office was not progressing like other great interests; that its revenue, within the past twenty years, instead of increasing, had actually diminished, though the increase of population had been six millions, and the increase in trade and commerce had been proportionate. The increase in the ratio of stage-coach travellers was still more clear; but this fact need not be pressed, especially as one smart quarterly reviewer answered, that, of course, the more men travelled, the less need of writing.
From the data which Mr. Hill was enabled to gather—for accounts of any sort were not kept as accurately at the Post-Office then as now, and there were no accounts of the number of inland letters—he estimated the number of letters passing through the post. He then took the expenses of management and analysed the gross total amount. He proved pretty clearly, and as nearly as necessary, that the primary distribution, as he termed the cost of receiving and delivering the letters, and also the cost of transit, took two-thirds of the total cost of the management of the Post-Office. Of this sum, the amount which had to do with the distance letters were conveyed, Mr. Hill calculated at 144,000l. out of the total postal expenditure of 700,000l. Applying to this smaller sum the estimated number of letters—deducting franks and taking into account the greater weight of newspapers—he gave the apparent average cost of conveying each letter as less than one-tenth of a penny. The conclusion to which he came from this calculation of the average cost of transit was inevitable, and that was, that if the charge must be made proportionate (except, forsooth, it could be shown how the postage of one-tenth or one-thirty-sixth of a penny could be collected) it must clearly be uniform, and for the sake of argument, and not considering the charge as a tax, or as a tax whose end was drawing near, any packet of an equal weight might be sent throughout the length and breadth of the country at precisely the same rate.
The justice and propriety of a uniform rate was further shown, but in a smaller degree, by the fact that the relative cost of transmission of letters under the old system was not always dependent on the distance the mails were carried. Thus, the Edinburgh mail, the longest and most important of all, cost 5l. for each journey. Calculating the proportionate weight of bags, letters, and newspapers, Mr. Hill[84] arrived at the absolute cost of carrying a newspaper of an average weight of 1½ oz. at one-sixth of a penny, and that of a letter of an average weight of ¼ oz. at one-thirty-sixth of a penny. These sums being the full cost for the whole distance, Mr. Hill assumed, fairly enough, that the same rating would do for any place on the road. It was admitted on all hands, that the chief labour was expended in making up, opening, and delivering the mails; therefore the fact whether it was carried one mile or a hundred made comparatively little difference in the expenditure of the office. The expenses and trouble being much the same, perhaps even less at Edinburgh than at some intermediate point, why should the charges be so different? But the case could be made still stronger. The mail for Louth, containing as it did comparatively few letters, cost the Post-Office authorities, as the simple expense of transit, one penny-farthing per letter. Thus, an Edinburgh letter, costing the Post-Office an infinitesimal fraction of a farthing, was charged one shilling and three-halfpence to the public, while a letter for Louth, costing the Post-Office fifty times as much, was charged to the public at the rate of tenpence! Nothing was clearer, therefore, that if Mr. Hill's propositions were opposed (and his opponents did not advocate the payment according to the actual cost of transit), that those who were adverse to them must fall into the absurdity of recognising as just an arrangement which charged the highest price for the cheapest business! At first sight it looked extravagant, that persons residing at Penzance or near the Giant's Causeway, at Watford or Wick, should pay equal postage for their letters. The intrinsic value of the conveyance of a letter, it must be admitted, is a very different thing from its cost, the value being exactly equal to the time, trouble, and expense saved to the correspondents, of which, perhaps, the only measure appeared to be the actual distance. Looked at more narrowly, however, in the clear light of Mr. Hill's investigations, it became obvious that it was really "a nearer approximation to perfect justice"[85] to allow distant places to feel the benefits of the measure; passing over the little inequalities to which it might give rise; while all might pay such a sum as would cover the expenses in each and every case.[86]
Mr. Hill succeeded likewise in proving many of the facts adverted to in the preceding chapter. He showed that the high rates were so excessive (not only varied according to distance, but doubled if there was an enclosure, with fourfold postage if the letter exceeded an ounce in weight) as greatly to diminish, where they did not absolutely prevent, correspondence. Not only so, but the high rate created an illicit traffic, involving all classes of the country in the meshes of a systematically clandestine trade. These facts and their results on the public revenue shine out of the pamphlet as clear as noonday.
But this was not all. The expenses of the department, or the secondary distribution, might be much reduced by simplifications in the various processes. The existing system resulted in a complicated system of accounts, involving great waste of time as well as offering inducements to fraud. The daily work of exposing letters to a strong light, in order to ascertain their contents, also offered a constant temptation to the violation of the first duty of the officers of the State, in respect to the sanctity of correspondence. If, instead of charging letters according to the number of sheets or scraps of paper, a weight should be fixed, below which, whatever the contents of a letter, a certain rate be charged, much trouble would be saved to the office, not to speak of any higher reason. Again, he suggested that if anything could be done to expedite the delivery of letters by doing away with the collection of postage from door to door, a great object would be gained; that five or six times the number of letters might be delivered with the existing machinery, and this even in less time than under the old system. The only requisite was, that some plan for the prepayment of letters should be devised, so that the Post-Office might be relieved from the duty of charging, debiting, &c. and the letter-carriers from collecting the postage. The Post-Office authorities had had the question of prepayment, by means of some kind of stamp or stamped covers, under consideration prior to this time. The Commissioners of Post-Office Inquiry deliberated on the measure in the early part of 1837 (after Mr. Charles Knight had suggested a penny stamp, or stamped cover, for collecting the now reduced postage on newspapers), considering it very favourably. Hence it arose that that part of the proposals relating to prepayment by stamped labels or covers, formed part of Mr. Hill's scheme, and was considered with it.