Читать книгу Her Majesty's Mails - William Lewins - Страница 7

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It was reserved for the Stuarts to organize for the first time in England a regular system of post communication, the benefits of which should be shared by all who could find the means. England was behind other European nations in establishing a public letter-post. It was not until the foreign post had been in existence a hundred years, and until the foreigners had drawn particular attention to their postal arrangements by their constant disputes, that the English government established a general post for inland letters, similar to the one whose benefits "the strangers" had enjoyed even prior to the reign of Henry the Eighth. Little progress towards this end was made in the reign of the first James, if we except a better organization for the conveyance of official despatches. At the same time, it ought to be stated, that the improved organization here referred to was the groundwork for the subsequent public post.

One of the results attendant on the accession[10] of the Scotch king to the English Crown necessitated important improvements in the system of horse posts, for which it called loudly. Immediately on his accession, the high road from Edinburgh to London was thronged night and day with the king's countrymen. All ordinary communications fell far short of the demand; so much so, that post messengers riding from the Council at Edinburgh to the king in London, or vice versâ, were stopped whole days on the road for want of horses, which had been taken by the Scottish lords and gentlemen rushing forward to the English capital to offer their congratulations to his majesty. As a remedy, the lords of the English council issued a proclamation, calling upon all magistrates to assist the postmasters "in this time so full of business," by seeing to it that they were supplied with "fresh and able horses as necessitie shall require." They were to be "able and sufficient horses," well furnished "of saddles, bridles, girts and stirropes, with good guides to look to them; who for the said horses shall demand and receive of such as shall ride on them the prices accustomed" (Book of Proclamation, 1603-1609).

As the general intercourse between the two capitals now promised to be permanent, and travelling along the North Road increased rather than diminished, further general orders were published from time to time by royal proclamation. Two kinds of post were established during the reign of James the First, both being in operation together towards its close. They were known as the "thorough post," and "the post for the packet." The first, consisting of special messengers who rode "thorough post," that is, through the whole distance "with horse and guide," was established in 1603. The couriers were ordered to pay at the rate of "twopence-halfpenny the mile" for the hire of each horse, and to pay in advance. Further, they must not ride any horse more than one stage (or seven miles in summer, and six in winter), except "with the consent of the post of the stage at which they did not change." For the service of the second post, or "the post for the packet," every postmaster was bound to keep not less than two horses ready, "with furniture convenient," when on the receipt of a "packet" or parcel containing letters, from a previous stage, he was to send it on towards the next within a quarter of an hour of its receipt, entering the transaction in "a large and faire ledger paper book." As a further precaution, and in order to prevent the courier loitering on the road with any important despatch, each postmaster was required to endorse each single letter with the exact time of the messenger's arrival, just as we have seen in the case of the one found in the collection of Archbishop Parker's correspondence. For the purposes of this packet-post, we find it arranged that each postmaster should have ready "two bags of leather, at the least, well lined with baize or cotton, so as not to injure the letters." It also rested with the different postmasters to furnish the couriers with "hornes to sound and blowe as oft as the post meets company, or at least four times in every mile."[11] Thus arose a custom which, under slightly different circumstances, was strictly observed in the days of mail-coaches.

It will be readily observed that in the arrangements of the packet-post there was nothing to prevent its being extensively used, except the important restrictions which the King put upon its use. During the reign of James nothing but the despatches of ambassadors were allowed to jostle the Government letters in the leather bags, "lined with baize or cotton," of "the post for the packet." It was not until Charles the First had succeeded his father, that this post came to be used, under certain conditions, by merchants and private persons.

It was during the reign of James the First that the Government secured, and kept for a hundred years, certain privileges with respect to the hiring of post-horses. We have seen that the royal couriers, travelling with despatches by either of the two posts, had priority of claim to sufficient horses and proper accommodation on their journeys. They also settled, by order in Council, that any person, whether travelling on the business of the Government or not, should, if furnished with warrants from the Council, have prior claim to private individuals, over post-horses and proper entertainment, demanding them in the name of the King. In a warrant of Council, for instance, dated Whitehall, May 12, 1630, we find the Privy Council ordering all postmasters to furnish Sir Cornelius Vermuyden with horses and guides to enable him to ride post from London to Boston, and thence to Hatfield, where he was engaged in draining the royal chase for the King.[12]

Little as James the First did towards establishing an inland post, though with materials so ready to his hand, in the posts of which we have spoken, yet he deserves some credit for setting on foot a general post for letters to foreign countries. It would seem that the abuses complained of by English merchants, with regard to letters coming from abroad, had been lessened by the appointment of an English Postmaster for the Foreign Office, but not so with letters sent abroad: hence the independent foreign post projected by the King. In another of the very numerous proclamations of his reign, it is stated that the King had created the office of Postmaster-General for Foreign Parts, "being out of our dominions, and hath appointed to this office Matthew de Quester the elder, and Matthew de Quester the younger." The duties of this new office are stated to consist in the "sole taking up, sending, and conveying of all packets and letters concerning his service, or business to be despatched into forraigne parts, with power to grant moderate salaries." These appointments interfering in some way with his department, gave great offence to Lord Stanhope, the English "Chief Postmaster," and mutual unpleasantness sprung up between the officers of the two establishments. A suit was instituted in the law courts, and whilst it was pending, both offices got completely disarranged, some of Lord Stanhope's staff going without salary for as long as eight years; "divers of them," as we find it given in a petition to the Council, "lie now in prison by reason of the great debt they are in for want of their entertainment." The dispute was not settled until after Charles the First had become king—namely, in 1632—when Lord Stanhope was induced to retire from the service as "Chief Postmaster," the De Questers at the same time assigning the office they had jointly held to William Frizell and Thomas Witherings. A royal proclamation was thereupon issued, to the effect that the King approved of the above assignment. "The King," it went on to say, "affecting the welfare of his people, and taking into his princely consideration how much it imports his state and this realm, that the secrets thereof be not disclosed to forraigne nations, which cannot be prevented if a promiscuous use of transmitting or taking up of forraigne letters and packets should be suffered, forbids all others from exercising that which to the office of such postmaster pertaineth, at their utmost perils."

Witherings seems to have made good use of his time, for in 1635, or only three years from the date of his appointment, he saw the great necessity which existed for some improvement in the postal resources of the country, and proposed to the King to "settle a pacquet post between London and all parts of His Majesty's Dominions, for the carrying and recarrying of his subjects' letters." In this memorial, which justly entitles him to a front rank in the number of great postal reformers, Witherings stated some curious facts relating to the service of those days. "Private letters," it was said, "being now carried by carriers or persons travelling on foot, it is sometimes full two months before any answer can be received from Scotland or Ireland to London." "If any of his Majesty's subjects shall write to Madrid in Spain, he shall receive answer sooner and surer than he shall out of Scotland or Ireland." Witherings proposed that the existing posts should be used; that the journey between London and Edinburgh should be performed in three days, when—"if the post could be punctually paid—the news will come sooner than thought." Witherings' memorial had the desired effect on the Council, who at once set about making the machinery already in use applicable for a general post for inland letters. In 1635 they issued a proclamation, in which they state that there had not been hitherto any constant communication between the kingdoms of England and Scotland, and therefore command "Thomas Witherings, Esquire, His Majesty's Postmaster for forraigne parts, to settle a running post or two, to run night and day between Edinburgh in Scotland and the City of London, to go thither and back again in 6 days." Directions were also given for the management of the correspondence between the principal towns on the line of road. Bye posts shall be connected with the main line of posts, by means of which letters from such places as Lincoln, Hull, Chester, Bristol, or Exeter, shall fall into it, and letters addressed to these and other places shall be sent. Other bye posts are promised to different parts of the country. All postmasters on the main line of posts, as well as those of the bye posts, were commanded to have "always ready in their stables one or two horses." The charges settled by James I. were ordered to be the charges under the new system, "2½d. for a single horse, and 5d. for two horses per mile." In a subsequent proclamation two years afterwards, a monopoly of letter-carrying was established, which has been preserved ever since, in all the regulations of the Post-Office. No other messengers or foot posts shall carry any letters, but those who shall be employed by the King's "Chief Postmaster." Exceptions were made, however, when the letters were addressed to places to which the King's post did not travel; also, in the case of common known carriers; messengers particularly sent express; and to a friend carrying a letter for a friend. These exceptions, trifling as they were, were withdrawn from time to time, as the Post-Office became more and more one of the settled institutions of the country. As it was, the prohibitory clauses caused great dissatisfaction in the country. The middle of the seventeenth century was certainly a bad time for introducing a measure that should bear any appearance of a stretch of the royal prerogative. That no one but the servants of the King's Postmaster should carry private letters was regarded as an unwarrantable interference with the liberty of the subject; so much so, that in 1642 a Committee of the House of Commons was appointed to inquire into that part of the measure. The subject was also frequently mentioned in Parliament; notwithstanding which, the Government strictly adhered to the clause.[13]

The first rates of postage for the new service were fixed at twopence, for a single letter, for any distance under 80 miles; 4d. up to 140 miles; 6d. for any longer distance in England; and 8d. to any place in Scotland. Of course the distances were all reckoned from London.

The control of the English letter-office was entrusted to the Foreign Postmaster-General, who had suggested the new undertaking. Witherings held the joint offices for five years, when in 1640 he was charged with abusing both his trusts, and superseded by Philip Burlamachy, a London merchant. It was arranged, however, that Burlamachy should execute the duties of his offices under the care and inspection of the principal Secretary of State. And now began a quarrel which lasted incessantly from 1641 to 1647. When the proclamation concerning the sequestration of his office was published, Witherings assigned his patent to the Earl of Warwick. Mindful of this opportunity, Lord Stanhope, the "Chief Postmaster" under the King's father, who had surrendered his patent some years before, now came forward and stated that the action had not been voluntary, but, as we learn from his petition to the House of Lords, he "was summoned to the Council table, and obliged, before he was suffered to depart, to subscribe somewhat there penned upon your petitioner's patent by the Lord Keeper Coventry." Lord Stanhope found a staunch friend and adherent in Mr. Edmund Prideaux, a member of the House of Commons, and subsequently Attorney-General to the Commonwealth. Two rival offices were established in London, and continued strife was maintained between the officers of the two claimants. On one occasion, Prideaux himself helped to seize the Plymouth mail which had just arrived in London, and was proceeding to the office of the Earl of Warwick near the Royal Exchange. Burlamachy and the Government failed to restore peace. In the Commission on the Post-Office, to which we have already referred, the subject was taken up, but the resolution of the Committee only rendered matters more complicated. The Committee, though Prideaux contrived to be made Chairman of it, declared that the sequestration of two years before "was a grievance and illegal, and ought to be taken off," and Mr. Witherings restored to office. The Commission decided against the Government, both as regards the sequestration and the monopoly of letter-carrying, which the King proclaimed in 1637. Both questions were left in abeyance for two years, when, in 1644, the Parliamentary forces having begun to gain an ascendancy over those of the King, the Lords and Commons by a joint action appointed Edmund Prideaux, the Chairman of the Committee of 1642, "and a barrister of seven years' standing," to the vacant office. It is somewhat amusing to note how the monopolizing tendencies of the Crown, denounced but two years ago by the Parliament, were now openly advocated and confirmed by an almost unanimous vote of both Houses. The resolution establishing Prideaux in the office states,[14] that the Lords and Commons, "finding by experience that it is most necessary for keeping of good intelligence between the Parliament and their forces, that post-stages be erected in several parts of the kingdom, and the office of Master of the Post and Couriers being at present void, ordain that Edmund Prideaux shall be and hereby is constituted Master of the Posts, Couriers, and Messengers." Prideaux must have been an energetic and pains-taking manager. He was very zealous and greatly improved the service, "establishing," says Blackstone, "a weekly conveyance of letters to all parts of the country, thereby saving to the public the charge of maintaining postmasters to the amount of 7,000l. per annum." It seems to have been clearly seen in Parliament that the Post-Office would eventually pay its own expenses, and even yield a revenue; for, in deciding on Prideaux's proposal, their object is stated quite concisely in one of the clauses sanctioning it:—"That for defraying the charges of the several postmasters, and easing the State of it, there must be a weekly conveyance of letters to all parts of the country." For twenty years previously the establishment of the post had been a burden to the extent of three or four thousand pounds a year on the public purse. Prideaux at first was allowed to take the profits of his office, in consideration of his bearing all the charges. In 1649, five years after his appointment, the amount of revenue derived from the posts reached 5,000l. and a new arrangement was entered into. The practice of farming the Post-Office revenue began from the year 1650, and lasted, as far as regards some of the bye posts, down to the end of the last century. In 1650 the revenue was farmed for the sum of 5,000l.

In the year 1649 the Common Council of London deliberately established a post-office for inland letters in direct rivalry to that of the Parliament. But the Commons, although they had loudly denounced the formation of a monopoly by the Crown, proceeded to put down this infringement of the one which they had but lately secured to themselves. The City authorities, backed, as they were in those days, by immense power, stoutly denied that the Parliament had any exclusive privilege in the matter. They could see no reason why there should not be "another weekly conveyance of letters and for other uses" (this latter clause most probably meaning conveyance of parcels and packets). Though pressed to do so, "they refused to seek the sanction of Parliament, or to have any direction from them in their measure."[15] "The Common Council," it is further stated by way of complaint, "have sent agents to settle postages by their authority on several roads, and have employed a natural Scott, who has gone into Scotland, and hath there settled postmasters (others than those for the state) on all that road." Prideaux took care to learn something from the rival company. He lowered his rates of postage, increased the number of despatches, and then resolutely applied himself to get the City establishment suppressed. Prideaux, who had now become Attorney-General, invoked the aid of the Council of State. The Council reported that, "as affairs now stand, they conceive that the office of Postmaster is, and ought to be, in the sole power and disposal of Parliament." After this decision the City posts were immediately and peremptorily suppressed, and from this date the carrying of letters has been the exclusive privilege of the Crown. Though the Government succeeded in establishing the monopoly, public opinion was greatly against the measure. The authorities of the city of London, as may well be imagined, were incessant in their exertions to defeat it, not only at that time, but on many subsequent occasions. Pamphlets were written on the subject, and one book, especially, deserves mention, inasmuch as its author bore a name now memorable in the annals of the British Post-Office. In 1659 was published a book, entitled John Hill's Penny Post; or a vindication of the liberty of every Englishman in carrying merchants' or other men's letters against any restraints of farmers of such employment. 4to. 1659.

Under the Protectorate, the Post-Office underwent material changes. Whilst extending the basis of the Post-Office, Cromwell and his Council took advantage of the State monopoly to make it subservient to the interests of the Commonwealth. One of the ordinances published during the Protectorate sets forth that the Post-Office ought to be upheld, not merely because it is the best means of conveying public and private communications, but also because it may be made the agent in "discovering and preventing many wicked designs, which have been and are daily contrived against the peace and welfare of this Commonwealth, the intelligence whereof cannot well be communicated except by letters of escript." A system of espionage was thus settled which has always been abhorrent to the nature and feelings of Englishmen. But perhaps we ought not to judge the question in the light of the present day. And we would do justice to the Council of the Commonwealth. The Post-Office now for the first time became the subject of parliamentary enactments, and the acts passed during the interregnum became the models for all subsequent measures. In the year 1656 an Act was passed, "to settle the postage of England, Scotland, and Ireland," and henceforth the Post-Office was established on a new and broad basis.[16] It was ruled that there "shall be one General Post-Office, and one officer stiled the Postmaster-Generall of England, and Comptroller of the Post-Office." This officer was to have the horsing of all "through" posts and persons "riding post." "Prices for the carriage of letters, English, Scottish, and Irish," as well as foreign, and also for post-horses, were again fixed. All other persons were forbidden "to set up or employ any foot-posts, horse-posts, or packet-boats." Two exceptions, however, were made under the latter head, in favour of the two universities, "who may use their former liberties, rights, and privileges of having special carriers to carry and recarry letters as formerly they did, and as if this Act had not been made." The Cinque Ports also must "not be interfered with, and their ancient rights of sending their own post to and from London shall remain intact."

At the Restoration this settlement of the Post-Office was confirmed in almost all its particulars. The statute 12 Car. II. c. 35 re-enacts the ordinance of the Commonwealth, and on account of its being the earliest recognised statutory enactment, is commonly known as the "Post-Office Charter." It remained in full force until 1710. The following is the important preamble to the statute in question: "Whereas for the maintainance of mutual correspondencies, and prevention of many inconveniences happening by private posts, several public post-offices have been heretofore erected for carrying and recarrying of letters by post to and from all parts and places within England, Scotland, and Ireland, and several posts beyond the seas, the well-ordering whereof is a matter of general concernment, and of great advantage, as well for the preservation of trade and commerce as otherwise."

It does not appear why Prideaux's connexion with the Post-Office was dissolved, nor yet exactly when. Probably his more onerous duties as first law officer of the Government demanded all his time and energy. However it was, we hear no more of him after his victory over the then formidable City magnates. During the remaining years of Cromwell's life, the revenues of the Post-Office, wonderfully augmented by Prideaux's management, were farmed for the sum of 10,000l. a year to a Mr. John Manley. During Manley's tenure of office, the proceeds must either have increased with marvellous rapidity, or the contracts were under estimated; for when, in 1659, Manley left the Post-Office, he calculated that he had cleared in that and some previous years the sum of 14,000l. annually. A Parliamentary Committee instituted a strict scrutiny into the proceeds of the office in the first year of the Restoration, at which period it became necessary that a new Postmaster-General should be appointed. It was agreed by the members of this Committee to recommend that a much higher sum be asked from the next aspirant to the office, inasmuch as they found that Mr. Manley, instead of over-estimating his receipts, had erred on the other side, and that they could not have come far short of the annual sum of 20,000l. The result of the Committee's investigation was, that Mr. Henry Bishop was only appointed to the vacant place on his entering into a contract to pay to Government the annual sum of 21,500l. In estimating the increase of Post-Office revenue from year to year, it must be borne in mind that a considerable item in the account was derived from the monopoly in post-horses for travelling, which monopoly had been secured under Cromwell's ordinances, and re-secured under 12 Car. II. c. 35. By this Act, no traveller could hire horses for riding post from any but authorized postmasters.[17] This statute remained in force, under some limitations, till 1779.

Many matters of detail in the arrangements of the Post-Office were discussed in Parliament during the first three years of the Restoration. Long-promised bye-posts were now for the first time established; the circulation of the letters, meaning by that the routes the mails shall take, and many such subjects, best settled of course by the authorities, weary the reader of the Journals of the House of Commons about this date. In December, 1660, for instance, we find the House deliberating on a proviso tendered by Mr. Titus to the following effect:—"Provided also and be it enacted, that a letter or packet-post shall once every week come to Kendal by way of Lancaster, and to the town of Penrith in Cumberland by way of Newcastle and Carlisle, and to the City of Lincoln and the borough of Grimsby likewise;" and we are glad to find that this reasonable proviso, to give these "out-of-the-way places" the benefit of a weekly post, was agreed to without cavil. We notice one important resolution of the session of this year, setting forth that, as the Post-Office Bill has been carried through the Houses satisfactorily, "such of the persons who have contributed their pains in improvement of the Post-Office, be recommended to the King's Majesty for consideration, to be had of the pains therein taken accordingly." Let us hope (for we find no further mention of the matter) that all concerned got their deserts. Tardy as the English people were, compared with their continental neighbours, in rearing the institution of the post, the foundation of an establishment was now laid which has, at the present time, far distanced all competitors in its resources and in the matter of liberal provisions for the people. Even before the days of penny postage, the Duke of Wellington, than whom no man was supposed to know better the postal regulations of the Continent, gave it as his deliberate opinion, that "the English Post-Office is the only one in Europe which can be said to do its work." In rewarding, therefore, those who contributed so much to this success at this early period of the history of the establishment, King Charles would simply pay an instalment of the debt which future generations would owe to them.