CHAPTER XV.

APPOINTMENT TO POST OFFICE (1846).

Although I was confident that the return of the Liberals to power was but a question of time, it followed so rapidly upon the events already mentioned as almost to take me, and I suppose many others, by surprise. After holding office somewhat less than five years, Sir Robert Peel found himself without adequate support in the House which had raised him to power, and on the 29th of the month in which I received my testimonial he resigned.

Although I became aware, by repeated conversations which I had had with my friend Mr. Hawes, who was a member of the new Government, that he confidently reckoned upon my recall, yet, knowing that he could have no direct power in the matter, I was desirous of further evidence as to the intentions of the new administration. Mr. Warburton, who was always believed to have great influence with Liberals in power as well as out of power, undertook to communicate with the Government. On July 30th he wrote word that he had had an interview with the new Chancellor of the Exchequer (Sir Charles Wood, now Lord Halifax), and would be glad to see me on the morrow. Of his oral communication I have retained no record, but according to my recollection the Chancellor had spoken of difficulties--had thought that the best post for me would be, not at the Treasury as before, but at the Post Office, into which, however, he did not yet see how my introduction could be managed without disturbance to the department. In short, the matter was a problem, and time would be required for its solution. I resolved, therefore, to make good use of the interim, and entering on the longest holiday I had ever known, went abroad for that change of scene and thought which alone could fit me for the arduous duties in which I expected soon to be engaged.

Meantime, some events of interest passed at home. On August 22nd Mr. Duncombe, in the House of Commons, again complained of the management of the Post Office. In the course of the debate Mr. Parker (Secretary to the Treasury) stated that the new Postmaster-General (Lord Clanricarde) had found "the whole establishment in a most unsatisfactory condition."[31] Mr. Hume, in terms highly complimentary to me, urged my recall. The Premier (Lord John Russell) admitted "that he was by no means satisfied with the state of the Post Office, nor did he think the plans of reform instituted by Mr. Hill had been sufficiently carried out;[32] and Mr. Warburton, referring to Lord John Russell's admission, strongly urged my reappointment to office.

My first intimation of this debate was received in a letter from Mr. Warburton, of which the following is the closing passage:--

"I think it manifest from this statement of Lord John Russell that a reform in the Post Office is meditated in good earnest.... You must be within call, if wanted."

On November 2nd, five days after my return from abroad, I received a letter from Mr. Warburton, of which the following is the substance. He had just seen Lord Clanricarde (at his request), who said that, knowing Mr. Warburton's interest in me and in Post Office matters, he wished to have some conversation with him before negotiating directly with me. There were difficulties in the way of giving me any high existing office in the Post Office, and objections thereto. The office of secretary, for instance, was so loaded with detail, that if given to me, whose office should be to advise, suggest, and consider of improvements, my utility would be destroyed. On the other hand, there were objections to an office of the nature held before, on account of antagonism with the Post Office. His lordship thought the fittest appointment would be one constituting me the adviser of the Postmaster-General. He thought that such an office, which every day's experience convinced him was necessary, might be constituted by himself at once. Mr. Warburton informed his lordship that, from some conversation he had had with me, he knew that I would not accept any office from the Government which might be regarded as a mode of putting me on the shelf; but that if an office of permanence and dignity, connecting me with the Post Office--not placing me under the secretary--and giving me sufficient weight to carry out my plans of improvement, were offered, it would be accepted; that the office suggested by his lordship wanted permanence. I might be dismissed, as before, by some cabal of the officers of the department. They would bide their time until a Postmaster-General should be appointed who would cashier me. If the office were ephemeral, I could be of no utility; resistance to my proposed measures would be protracted until they could be defeated by a change of dynasty. He added that, on his (Mr. W.'s) suggestion, Lord Clanricarde would have an interview with me on the subject. Mr. Warburton obtained Lord Clanricarde's permission to repeat to me what had passed.

Having procured an appointment with Lord Clanricarde, I called upon him two days later; but of my conversation with him on this occasion, and at a second interview, I have no further record than the following:--"Saw Lord Clanricarde twice during the negotiation; much pleased with his straightforward, business-like manner." I remember, however, that I suggested for his lordship's consideration the revival of the title assigned to Palmer, viz., Surveyor-General of the Post Office, and that in consequence of his inquiry as to the circumstances of Palmer's appointment, I undertook to send him a report on the subject.

On the following day, I received a letter from his lordship, in which, after expressing a wish to hear my more considered opinion of the proposal which he had intimated to me, he continued as follows:--

"I assure you that I am convinced such an appointment as that I wish you to hold--we will not quarrel about a _name_ for it--would afford the best possible opportunity (under all existing circumstances) for carrying out steadily, safely, and constantly, every possible improvement in the Post Office, in conformity with your plan and general views."

Objection having arisen to the revival of Palmer's official title, and my position being, as I well knew, matter of grave importance to my efficiency in office, I wrote to Mr. Warburton on the 17th, but was prevented by his illness at the time from receiving that immediate assistance which in health he was always so ready, I might say so eager, to give.

Meantime, the negotiation was carried on by Mr. Hawes, who was at once a member of the Government, and exceedingly zealous for my interests; but in the course of it a vexatious mistake occurred, which was by no means without injurious effect. Knowing how difficult it would be for me, after all that had passed, to co-operate either harmoniously or successfully with Colonel Maberly, I urged the importance of the step actually taken eight years later, viz., of removing him to some other office. To this it was replied that there was no post available for the purpose, save at lower salary than he was then receiving; and as the loss involved was said to be £300 a-year, I expressed my perfect willingness to sacrifice that sum for the purpose of indemnification. My salary at the Treasury, it may be remembered, was £1,500 a-year (the same as that of the Secretary to the Post Office); and I now said that I was ready to accept £1,200, provided only that my position were such as would enable me to carry out promptly and efficiently the remaining parts of my plan. Unluckily for me, it came to pass that, while my offer as to salary was caught at, the accompanying stipulation was somehow set aside; the definite proposal being that I should take office as Secretary to the Postmaster-General with a salary of £1,200 a-year; thus placing me in a lower position than that which I had previously occupied at the Treasury. When I pointed out this to Mr. Hawes, he expressed his regret at the perverse form the thing had taken, but saying that the error could not now be retrieved, gave it as his earnest advice that I should accept the proposal as it stood. Upon my objecting to this, he urged that the arrangement was but temporary; for that as soon as I should have demonstrated my fitness for the entire control of the department, I should doubtless be placed at the head. As I still resisted, his urgency increased. He warned me that, if I now declined, my plans might remain for ever incomplete, for that no second opportunity was likely to be offered; and he concluded with the words, "Let me implore you to accept it." To such an exhortation from a kind and valued friend I could not return an abrupt answer, and though grievously disconcerted at what had occurred, I promised to consider the matter.

Here, then, I found myself in a painful dilemma. On the one side I was called on to accept a lower position than before, and thus to maintain from inferior ground a contest which had almost worn me out when the ground was equal; to consent to carry out my plans, if at all, through wearisome controversy, over factitious obstacles, and by reluctant hands; perhaps to break down in the trial, and thus leave my work still undone. On the other hand, could I let slip this, my sole chance, as it appeared, of at least attempting to complete the great task on which I had entered? Could I disappoint the friends who had striven so earnestly on my behalf, and for the promotion of my great object? Could I forget the noble subscription raised for me by the public, and seem to show, by my acts, that I preferred emolument to achievement, or doggedly stood out for unimportant distinctions of title or position?[33] The question was a very difficult one, and though, after much consideration, I felt inclined to give way, I resolved first to consult all such of my brothers as were within reach. The result in each case was curiously identical, though for some reason, now forgotten, I had to consult them severally. Each began with an indignant ejaculation at the terms as they stood, and a declaration that they could not be accepted; but each, after hearing the matter to the end, came to the conclusion that, unworthy as was the treatment to which I was subjected, it would not do to forego what might prove to be my only opportunity of completing my great work. Since my own conviction accorded with theirs, I wrote to Mr. Hawes in acceptance of the offer. As the letter fully sets forth my reasons for this step, I give it in extenso:--

"Brighton, November 23rd, 1846.

"MY DEAR HAWES,--You will be glad to learn that I have decided to accept the offer of Government of a permanent appointment as secretary to the Postmaster-General, at a salary of £1,200 a-year.

"The opinion so strongly expressed by Mr. Warburton and yourself as to the necessity for so doing, backed as it now is by that of Mr. Samuel Jones Loyd, has overborne my own objections, though I cannot say that it has removed them, as I still feel great apprehension that, notwithstanding the promises of support which I have received from the Postmaster-General and the Chancellor of the Exchequer, I shall have to encounter that opposition which has hitherto been so successful in retarding the progress of penny postage, and on some occasions in resisting the most positive orders of the Treasury.

"You are aware that, with a view to neutralize, or at least diminish, this formidable opposition, I was willing to sacrifice a large proportion of my own salary, in order to enable the Government to offer Colonel Maberly his full salary as a retiring allowance. It is not for me to discuss the reasons which have led to Colonel Maberly's retention in office, but it obviously is my duty carefully to consider how far such retention ought to influence my own conduct.

"This difficult question has occupied my mind for several days, and the result, I am sorry to say, is a confirmation of the opinion which I expressed to you and Mr. Warburton when the offer was first communicated to me, namely, that, under the circumstances of the case, to accept office would expose the improvements which remain to be effected to a serious risk of failure, and thus perhaps bring discredit on the general plan as well as on myself; and consequently that I should best consult the public interest and my own by respectfully declining the offer of Government. I need not tell you that I am most anxious for an opportunity of completing my plan, and that throughout these negotiations I have proposed no conditions, except that I should have the authority requisite to secure the success of the measure. Much will undoubtedly be done by making my office permanent, and by placing me in immediate communication with the Postmaster-General, as well as the Treasury; but I fear this is not enough. I think Colonel Maberly should have been induced to resign. I see almost insuperable difficulty in attempting to collect information and to issue instructions otherwise than through the general secretary's office, and yet, judging from past experience, it appears hopeless to look for his voluntary co-operation, while his position makes him too strong to be effectually coerced. But assuming that Colonel Maberly must remain in office, then I think that my appointment should have been one of at least equal rank with his. This point, as will be seen by the published correspondence, was fully considered when I went into the Treasury, and the reasons which then existed, the strength of which was in effect admitted by Mr. Baring, apply with at least equal force now.

"These are my own views on the subject, and I think it best to state them without reserve; but seeing that Mr. Warburton, Mr. Loyd, and yourself entertain a different opinion, that you all express a strong conviction to the effect that if this opportunity of completing my plan be lost no other will be afforded me, that public opinion would not support me in declining the offer, and that I may look forward to a probable reorganization of the Post Office, and, if I show that I possess the requisite administrative powers, to promotion, at no distant period, to a position of higher authority--I am naturally led to distrust my own opinions, and to adopt the safer guidance of my kind and able advisers.

"After an interval of four years, during which my attention has necessarily been devoted to other matters, I am therefore about to enter on my arduous task. I shall look forward with as much hope and as little apprehension as I can; but if improvement in the mechanism and in the revenue of the Post Office should be less rapid than I had anticipated under the impression that opposing influences would be removed, I cannot doubt that Government and the country will do me the justice to bear in mind the peculiar difficulties of my position, and to recollect that, whatever circumstances limit my power, they to the same extent limit my responsibility also.

"Though the fact does not at all touch the public ground to which, in considering this question, I have endeavoured to confine my attention, I may be excused for mentioning that my acceptance of the appointment, accompanied as it must be by the abandonment of my present occupation, will be attended with an increase of labour and a sacrifice of income.

"I am sure you will excuse my troubling you with this letter. My object is, first, to give you the earliest intimation of my decision, and, second, to place on record the circumstances of the case while they are fresh in our memories. To any other member of the Government than yourself I could not speak in so unreserved a manner.

"I remain, &c., &c., "ROWLAND HILL.

"P.S.--... November 24th.--I have kept back my letter in order that I may show it to Mr. Warburton, who authorizes me to say that he approves of it."

Two days afterwards I received a letter from the Postmaster-General, requesting that I would call upon him on the following Saturday. Having meantime inquired of Mr. Warburton whether there were any further information which he thought it important for me to receive before this interview, I had a letter from him, in which he mentioned that he had told Lord Clanricarde of my acceptance of the offer made by Government, accompanying his announcement with the remark that those whom I had consulted had been in doubt as to the advice they should give, fearing that Colonel Maberly would be able to thwart me in my exertions. Mr. Warburton's letter then proceeded as follows:--

"That the objections had been overcome by the promises of support which had been given both by his lordship and the Chancellor of the Exchequer, and by the assurance of the latter that, if you proved yourself an able administrator, you were to look forward to promotion."

A few days later, having in the meantime called on the Postmaster-General, I received my formal appointment. As I had again cast in my lot with the Post Office, I withdrew, of course, from my previous employments, resigning all my directorships, already three in number.

I was now in my fifty-second year, and in the tenth from that in which I first took Post Office reform seriously into my thoughts. I need not say that the interval had been a period of very hard work, that a decade in my life was in every sense gone; in short, that I was already somewhat old for the heavy work of reform that still lay before me.