In explanation of the exemption, Howe stated that for ten years before he purchased the Nova Scotian, the proprietor, Joseph Howe, had assisted him in the management of the office for eleven months while the deputy postmaster general was in England, taking full management of the provincial system. For these services Joseph Howe had asked no compensation, and the deputy postmaster general had therefore taken no remuneration for mailing the newspapers.[272]
There were only two towns in the province where letters were delivered by carriers—Halifax and Yarmouth. In Halifax, the city was divided between two carriers, whose pay consisted of the fees they were entitled to take from the recipients of the letters they delivered, at a penny a letter. They attempted to charge the same sum for the delivery of each newspaper, but many persons would not pay the fee. The carriers received £2 10s. and £2 a week respectively. Yarmouth also had two carriers, whose penny fees gave them each about £12 10s. a year.
The relations between the deputy postmaster general and the provincial government were the subject of much critical comment on the part of Page. The fact that the government contributed to the maintenance of the less remunerative routes and post offices gave the executive and the assembly a colour of title to interfere in the management of the post office, which was exercised, in Page's opinion, beyond all due bounds.
The governor's secretary was in the habit of giving Howe orders, and if Howe showed any hesitation in complying with them, he became offensively peremptory. Investigations into complaints against postmasters were taken into the hands of a committee of the assembly, in disregard of Howe's authority. As it appeared to Page, there was a determined effort to set aside the authority of the postmaster general and to take over the management of the system by the government. Howe at Page's instance, took a firm stand and informed the governor that, in case of conflict between the directions he received from England, and those given by the governor, it was the directions from St. Martins-le-Grand he was bound to obey.
The disappointment in the general post office over the failure of the plan to remove the difficulties with the government of Nova Scotia, which was largely due to the hopeless complication of the accounts, changed the attitude of the officials at home towards Howe from one of good will to one of censure, which reached the point that nearly determined them to dismiss Howe.
Page pointed out the injustice of such a step. Howe's position was one in which it was impossible to escape criticism from either the provincial authorities or his official superiors, whose views were frequently in sharp antagonism to one another. The part of the provincial system under Howe as deputy of the postmaster general in England had its accounting scheme, and the part, which was maintained by the legislature, had another, separate and distinct.
But the passing of letters between the recognized post offices and those established by the legislature, gave rise to accounts between the two systems under Howe's management, which it was practically impossible to adjust satisfactorily, unless by the adoption of a give-and-take system, to which neither the general post office nor the legislature showed any disposition.
Howe's death in January 1843 closed the question as to whether or not his administration was deserving of censure. It also brought to an end an era, within which the postal service had expanded from the single route extending from Halifax to Annapolis and Digby, over which the mail courier travelled but once a month, to the network of routes whose ramifications covered every part of the province.
Judged by the only possible test, the administration of the Canadian service under Heriot, Sutherland and Stayner, the administration of the two Howes must be pronounced a conspicuous success. The deputies in Canada were faithful to their superiors in London, but they were so at the expense of the popularity of the postal service in the provinces.
The Howes managed to extend their service equally with their Canadian colleagues, and at the same time held the good will of the authorities in the province. Howe was a man who left no enemies. The governor, in discussing the postal difficulties of the province with Page, expressed the utmost good will for Howe himself, the only ground of complaint against him being an embarrassing intimacy with the members of the legislature.