Part 17

+----------------------------------------------------------- | Miles. +-----+-----+-----+-----+-----+-----+-----+-----+-----+----- Weight.| 1-3| 4-6| 7-9|10-12|13-15|16-18|19-21|22-24|25-27|28-30 | | | | | | | | | | +-----+-----+-----+-----+-----+-----+-----+-----+-----+----- Pounds.| Gr. | Gr. | Gr. | Gr. | Gr. | Gr. | Gr. | Gr. | Gr. | Gr. 1 | 1 | 2 | 3 | 4 | 5 | 5 | 6 | 6 | 7 | 8 2 | 2 | 3 | 4 | 5 | 6 | 7 | 8 | 8 | 10 | 11 3 | 2 | 3 | 5 | 6 | 8 | 9 | 10 | 12 | 14 | 15 10 | 5 | 7 | 9 | 13 | 17 | 23 | 24 | 32 | 38 | 44 100 | 14 | 24 | 34 | 50 | 58 | 70 | 79 | 90 | 110 | 124 -------+-----+-----+-----+-----+-----+-----+-----+-----+-----+-----

The weight was calculated for each pound up to 10 pounds, then for 15 pounds and 20. For parcels weighing more than 20 pounds the rate increased for each 10 pounds.

4. Valuable goods, e.g. gold, silver, cloth of gold, brocade, were charged double the rate for commercial goods.

In 1741 a parcel rate was established in Brunswick and L[:u]neburg, based simply on weight and distance, without reference to the nature of the contents.[439]

The Prussian rates of 1712 continued in force until 1762, when a general revision of postal rates was necessitated by the financial difficulties resulting from the outbreak of the Seven Years' War. The rates for ordinary commercial transport in Prussia rose to such a degree that the post, still working on rates fixed in 1712, became the cheapest means of transport.

Consequently the parcel post traffic increased, but it was found that the expenses of the service were not covered by the revenue derived from the parcels. The rates were accordingly increased on the simple plan of raising them all by 100 per cent. (except in Ostfriesland, where the increase was 50 per cent.). A further revision of the rates was made in 1766. Apart from the fact that the rates were further increased, this revision was in many respects beneficial, since it introduced a uniform and definite rate for the whole country.[440] In 1770 the rates of 1712 were restored.

Up to this time the rates had been based partly on the actual length of the post routes, partly on the time occupied by the post-messengers in traversing the routes. They therefore varied according as the roads were good or bad.[441] In 1801 a mathematical measurement of the roads of Prussia was made, and thereafter the time factor was eliminated and the rates based on distance only. The distance was measured, not in a direct line, but by way of the post routes.

The events of the Napoleonic period resulted in a great increase of prices in Prussia, and in order to meet the additional expense of conducting the posts, the rates were increased by 50 per cent. between 1805 and 1811, but the general basis of charge remained unchanged. In 1824 important modifications were introduced. The discrimination according to the nature of contents of parcels was abolished, and the rates were based solely on considerations of weight and distance of transmission. Further, the distance between post offices was no longer to be reckoned according to the distance by way of the post routes, but according to the direct distance.[442] The general parcel rate was fixed at 3 pf. per pound for each 5 miles, with a minimum charge of twice letter rate for parcels not exceeding 4 pounds in weight, and three times letter rate for parcels weighing more than 4 pounds. In the case of several parcels directed to the same place, the postage was reckoned according to the total weight. The Postmaster-General was authorized to increase the rates in the event of a rise in the cost of forage.[443]

A special rate, in addition to ordinary postage, was also introduced in respect of parcels directed to or sent from offices for which no normal rate had been fixed. In 1826 a reduction of postage by 10 per cent. was authorized where the total yearly weight of parcels was between 10,000 and 20,000 pounds, and of 15 per cent. where the total yearly weight exceeded 20,000 pounds. This reduction was, however, abolished in 1848.

With the introduction of railways and the transformation of the transportation industry which ensued, the rates of 1824 were found to be too high. In 1842 they were accordingly reduced by one-half, experimentally, but only in respect of parcels sent on certain railway routes. In 1847 this reduction was extended to all railway routes,[444] and in 1848 the rate for parcels not conveyed exclusively on railway routes was reduced to 2 pf. per pound for each 5 miles. The distinction was, however, found inconvenient and was removed in 1852.[445] A general rate of 1-1/2 pf. per pound for every 5 miles was then established, with a minimum postage of twice letter rate, and a provision that odd ounces, which had previously been ignored, should be charged as a full pound, and that when several parcels were directed to the same address the postage must be reckoned for each parcel singly.

Under the German-Austrian Postal Union, established in 1850, it was at first arranged that separate parcel rates should be charged by each administration to and from the frontier, according to its own inland rates. Later the rate was fixed at 2 pf. per pound for each 5 miles, to be charged by each administration concerned in the transmission. In 1857 one definite parcel rate was established for the whole territory of the Union, graduated according to direct distance, viz. 2 pf. per pound for each 4 miles, with minima of from 1-1/2 to 7 sgr. The whole revenue from parcels was credited to a common fund and divided according to certain percentages.

A new parcel rate, based on weight and distance only, was established at the founding of the North German Union in 1867. The method of calculating the distance of transmission for the purpose of determining the postage charge was also modified. The then existing arrangement in Prussia, based on the regulations of 1824, provided that the rate should in all cases be reckoned according to the actual distance between the post offices concerned. Under this method, when a new post office was established, a parcel rate for every other post office must be calculated, causing much labour and wasting much time. This method was now abandoned. The whole territory of the North German Union was divided into imaginary squares, with sides 2 miles in length, the points of intersection of the diagonals being taken as the centres from which all distances were calculated.[446] The rates between any offices in two different squares were made identical. Such a method rendered unnecessary the calculation of a special rate of postage for every post office, and also rendered unnecessary any fresh calculations of rates in respect of any new post offices. The progression of distances was by stages of 5 miles up to 30 miles, of 10 miles from 30 to 100 miles, and of 20 miles thereafter, the increase in the length of the steps being justified on the ground that the cost of transportation does not increase in direct proportion to the distance.[447] The rate was 2 pf. per pound for each step in the scale of distances.

The rate of 1867 was applied to the Imperial Post Office by the law of 28th October 1871. This tariff, with its comparatively small progressions of distances, was found inconvenient, especially with the large growth of the traffic. The rates had, moreover, been found too high for small parcels sent over long distances. In point of fact, by far the greater part of parcels under the weight of 5 kilogrammes were less than 2-1/2 kilogrammes in weight. New parcel rates were accordingly introduced on the 1st January 1874.[448] For all parcels not exceeding 5 kilogrammes in weight, uniform rates were established, on the ground that an increase of postage according to the distance of transmission was unjustifiable in the case of light parcels.[449] For the first 10 miles the rate was 25 pf., and for all other distances 50 pf. A zone tariff based on six zones of distance was established for parcels of greater weight than 5 kilogrammes. For the first 5 kilogrammes such parcels were charged the uniform rate applicable to parcels not exceeding 5 kilogrammes in weight, and the following table shows the charges for the weight exceeding 5 kilogrammes:--

Distance. For each kg. after the first 5 kg. Zone I Not exceeding 10 miles 1/2 sgr. (5 pf.) " II From 10-20 miles 1 " " III " 20-50 " 2 " " IV " 50-100 " 3 " " V " 100-150 " 4 " " VI Over 150 " 5 "

For cumbrous and unwieldy parcels an additional charge not exceeding 50 per cent. of the ordinary postage might be made. With the increase of traffic it was found impossible to forward all the parcels by the postal trains, and the Post Office was only permitted to send a limited quantity of parcels by the ordinary express trains.[450] In 1880 it was arranged that parcels which must be delivered without delay--e.g. those containing fish or flowers--should be forwarded by express train on payment of a special fee of 1 Mark each. In 1886 this additional fee was made applicable to all urgent parcels, whatever the contents.

The tariff of 1873 has proved too high both for heavy and for very light parcels, and some curious anomalies result from the combination of zone rates and uniform rates. A parcel of 5 kilogrammes sent for any distance greater than 10 miles costs 50 pf. Eight parcels of 5 kilogrammes each could, therefore, for 4 Marks be sent for any distance; but if made up into one parcel of 40 kilogrammes the postage would be 7 Marks 50 for places in the third zone (20 to 50 miles), and for places in the sixth zone (over 150 miles) no less than 18 Marks.[451] It is therefore to the advantage of the public to divide a heavy parcel, though such a proceeding obviously increases the cost to the administration of its handling and transmission. The despatch of heavy parcels by post is naturally discouraged, and the proportion of such parcels is decreasing.[452] Of the total number of parcels sent by post in 1900, more than 88 per cent. were less than 5 kilogrammes in weight, and the number of greater weight than 10 kilogrammes formed less than 3 per cent. The average amount of postage per parcel on parcels falling in Zones III, IV, V, and VI is not appreciably greater than that on parcels falling in Zone II.[453] The number of heavy parcels in the higher zones is, therefore, negligible,[454] and is least in the highest zones.[455]

In the case of very light parcels also the rate is excessive. The number of parcels under 1 kilogramme in weight, which in 1870 formed about 30 per cent. of the total, fell in 1874 to 26.6 per cent., in 1878 to 21.8 per cent., and in 1910 to 12.616 per cent.[456] Similarly the rates for the longer distances are too high generally, and the number of parcels falling under the higher zone rates is extremely small. In 1887, 42.5 per cent. of the total number of parcels were delivered within the first zone, and 84 per cent. within the first three zones, those in the sixth zone forming only .064 per cent.[457] Notwithstanding these defects in the scheme of rates, the total number of parcels has largely increased,[458] and the cheapness of many of the rates has led to the development of a traffic in certain food-stuffs, and has encouraged numerous localized industries.[459]

In view of the small number of heavy parcels it has been suggested that the post should be restricted to parcels not exceeding 10 kilogrammes in weight, parcels of greater weight being left to the railways.[460] This would result in the exclusion of about 3 per cent. only of the parcels. The proposal is, however, objected to on the ground that the postal service for such parcels ought not to be withdrawn unless the railways can afford as punctual, speedy, and cheap a service as the Post Office;[461] an argument which is sound only if the present rate is profitable to the Post Office (which is doubtful), or otherwise so long as it is assumed that the Post Office ought to continue the present service for the public advantage, regardless of considerations of cost and revenue.

To meet the difficulty with light parcels a lower rate has been proposed for parcels under 1 kilogramme in weight, but a further modification in favour of parcels between 1 kilogramme and 5 kilogrammes in weight is deprecated as involving an undesirable complication of the uniform rates.[462] The parcel post business is conducted as part of the general Post Office business, and consequently it is not possible to eliminate from the general expenses of the whole service the expenses incurred in dealing with parcels. It cannot be said, therefore, whether either the light parcels or the heavy parcels, the short-distance parcels or the long-distance parcels, are or are not profitable to the administration, or, indeed, whether the parcel post service as a whole is a remunerative service or otherwise; but German writers on the subject hold the opinion that the cost of the service exceeds the revenue derived from it.[463]

* * * * *

IV

MINOR RATES

(I) BOOK POST

UNITED KINGDOM

In 1847 Sir Rowland Hill proposed the provision of special facilities for the transmission by post in the United Kingdom of books and other printed matter. He thought such a concession expedient as a matter of policy, especially in view of the "state of the public mind on the important subject of education." A low rate of postage would facilitate the transmission of scientific and literary reports and other documents "tending to the extension and diffusion of knowledge," and would be highly prized by the Literary and Scientific Societies, which were a feature of those days. Private families, especially the rural clergy, would also in that way be enabled to obtain valuable publications otherwise, to them, unattainable. Sir Rowland Hill recognized that there were objections to the granting of a special rate for a special class of matter; but he argued that, in effect, the proposal was nothing more than an extended application of an existing principle, applied to newspapers and Parliamentary Proceedings, and (in regard to certain places abroad) ordinary periodical publications.[464]

The rate proposed was 6d. per pound, which was virtually the rate charged on newspapers, with this difference to its advantage, that, whereas 6d. paid on newspapers would represent six packets to be dealt with separately, 6d. paid under the proposed book post rates would be in respect of one packet only. The high minimum charge of 6d. was proposed as a security against fraud: with such a minimum there would be no temptation to send a packet as a cover for a written communication. As a measure of economy it was proposed to send the packets by the day mails as far as possible, by this means avoiding loading heavily the important night mail trains and adding to their cost; and it was anticipated that the rates proposed would yield some profit to the revenue.

Objection was raised on the ground that the post ought to be confined to small packets as far as possible, and should convey large letters and packets only when necessity was urgent: heavy packets would impede the work of the Post Office, and would cause inconvenience in many ways, especially as regards foot-messengers;[465] but, as it was not thought likely that any very great number of book packets would be posted, the objection was not upheld, and the cheaper rate was introduced. At first various restrictions were imposed, and considerable public dissatisfaction resulted, especially in regard to certain of the regulations. These regulations were consequently relaxed in 1853 so as to allow practically any printed matter to pass at the book rate. In 1855 the rate was reduced,[466] and in 1856 circulars were admitted at the privileged rate. As a result of this the number of book packets increased rapidly. In 1855 the total number was 3,000,000; in 1856 the number increased to 6,000,000; and in 1862 reached 14,000,000. In 1866 the rates for heavier packets were further reduced. The rate for packets over 8 ounces in weight became 1d. for each 4 ounces, instead of 2d. for each 8 ounces.

In 1870, when the 1/2d. rate for newspapers and for postcards was established,[467] an important change in the book post was made. As the result of pressure from the public and a vote in the House of Commons in favour of a reduction, carried against the wishes and recommendation of the Government,[468] the rate on book packets was reduced to 1/2d. for every 2 ounces.

Since 1870 the regulations governing admission to the book post have been modified from time to time, chiefly in the direction of enabling the formal documents of commerce to pass at the reduced rate. All documents admitted to the privilege must conform to certain requirements, and it is obvious that all such documents must be open to inspection by the Post Office. It is therefore an indispensable requirement that the documents be sent in open covers. Thus arises that curious distinction between the "closed" post and the "open" post, a lower rate of postage being given to packets containing articles or documents of a certain description, on condition that the contents are open to inspection by the postal authorities.

In 1897 the ordinary letter rate was made 1d. for the first 4 ounces, and 1/2d. for each additional 2 ounces. The book post, therefore, disappeared, except as regards packets not exceeding 2 ounces in weight; and in 1904 its name was changed to the "Halfpenny Packet Post." It is available for practically all the formal documents of commerce, and, in addition, many other packets of miscellaneous character, and remains a most important branch of Post Office traffic.[469] In 1913-14 the number of halfpenny packets (excluding postcards) was no less than 1,172 millions, or about one-fifth of the total number of packets passing by post in the United Kingdom.

When on the 1st November 1915 the postage on letters over 1 ounce in weight was increased, the book post was re-established as it had existed prior to 1897, except for unimportant modifications of the regulations. It had been proposed to abolish altogether the 1/2d. rate of postage,[470] but in view of strong representations from the printing trade, and of the hostility of the general public, this proposal was abandoned.

* * * * *

FRANCE

Particulars of the earlier rates of postage charged on printed matter in France cannot now be ascertained, but they appear always to have been lower than the rates for letters. Before the Revolution an octavo book could be sent for any distance for 12 sous, and the postage on circulars was less than a centime.[471]

By the decrees of 17-22 August 1791, a rate for daily newspapers of 8 deniers the sheet was established, and a rate of 12 deniers the sheet for other newspapers and for periodical publications. During the succeeding years the rates were modified a number of times. In 1796 the following rates were established:--

4 centimes the sheet for newspapers; 5 centimes the sheet for unbound books, catalogues, and prospectuses.[472]

A distinction was always made between ordinary printed matter and periodical publications.

In 1827 the size of the sheet which was the basis of the charge was fixed at 25 square decimetres. The system of charge by weight was applied to printed matter in 1856, with the following rates:--

1 centime for each 5 grammes up to 50 grammes 10 centimes from 50 to 100 grammes 1 centime for each 10 grammes beyond 100 grammes.

These rates were increased by some 50 per cent. in 1871. After the establishment of the Universal Postal Union the rates in the internal service were in some cases higher than those in the international service, and it became advantageous to commercial men to post their packets abroad. The French administration were then required under the international convention to distribute them in France without receiving any postage.[473] This anomalous situation was put an end to in 1878, when the following rates were established:--

When sent under band--

1 centime for each 5 grammes up to 20 grammes 5 centimes from 20 grammes to 50 grammes; 5 " for each 50 grammes or fraction of 50 grammes thereafter.

When sent in open envelopes--

5 centimes for each 50 grammes or fraction of 50 grammes.

The rates have since been reduced, and are now as follow:--

2 centimes for packets not exceeding 15 grammes in weight 3 " between 15 grammes and 50 grammes 5 " " 50 grammes and 100 grammes 5 " for each 100 grammes or fraction of 100 grammes thereafter.

The number of packets of printed matter has increased rapidly, as the subjoined table shows:--

Number of Packets of Ordinary Printed Matter

1877 195,148,116 1883 315,315,725 1889 406,252,198

The administration are given power to delay the despatch or transmission of packets of ordinary printed matter should circumstances render that course desirable.

In 1827 a special rate of 5 centimes for those delivered locally, and 10 centimes for others, was conceded to certain formal printed documents, such as notifications of births, marriages, or deaths. In 1856, to these were added prospectuses, catalogues, prices current, and _cartes de visite_. These documents must be sent under band or in open envelopes. The special rates on these classes of packets have been continued. Under an order of the 26th November 1909 the rate for _cartes de visite_ was made 2 centimes when sent under band, but formulas of courtesy must not appear on the cards. _Cartes de visite_ sent in open envelopes are still charged 5 centimes.

* * * * *

GERMANY

In Prussia the order of 1712 did not provide a special rate for ordinary printed matter sent by letter post. A reduced rate of two-thirds that for ordinary merchandise was, however, provided for books and other similar matter,[474] under the name of _Schriften- und Aktentaxe_, when sent by parcel post.[475]

In 1821 special rates were prescribed for various classes of printed matter sent under band (_Versendung unter Kreuzband_), viz. books, music, catalogues, prospectuses, prices-current, printed circulars, as follow--

For each ordinary sheet of printed matter or for eight sheets small octavo size 8 pf. For a half sheet 5 pf. " quarter sheet 4 pf. " sheet of music 10 pf. " half sheet " 5 pf.[476]

The sheets were to be sent under band, and the name of the sender and the number of sheets were to be written on the outside. The sending of written matter in such packets was forbidden, under penalty of a fine of ten times letter postage on a packet of the same size. In 1824 the rate for matter sent under band (printed lottery winning lists, etc., were now included) was made a quarter letter rate, and, like other rates, was made chargeable according to direct distance of transmission. When, in 1850,[477] the rates for letters were revised and reduced, the rate for matter sent under band was continued at a quarter letter rate, and became (for 1 loth Zollgewicht = 1-1/8 loth Prussian)--