CHAPTER XVII.

EFFORTS FOR IMPROVEMENT IN POSITION. (1848-9.)

In the narrative of the proceedings of the year 1848 I have reserved to the last some that were of great importance to myself, and I venture to think, through me, to the public service. The discordant action in the secretarial department, so often referred to in these pages, so difficult to prevent where there were two co-ordinate authorities dealing apart with the very same affairs, and unfortunately so needlessly aggravated in a variety of ways, continued throughout the year with but little abatement, and with no prospect of cure. Not only, as already shown, did it seriously impede, and in some important cases even stop, the progress of improvement, but it acted also so injuriously on my own health as at times to make me even doubt the possibility of my remaining at my post.

Before, however, the effect on my health became too manifest to allow of neglect, the two-fold evils of my position, the realisation of all the unpleasant anticipations with which I had entered on my office, had led me to seek the early fulfilment of those expectations held out to me in the beginning, without which I should not have entered on my arduous task. In reply to my inquiry as to the term necessary for demonstrating my power of dealing with details there had been loose mention of six months.[56] At the end of that period, viz., in May, 1847, having become firmly convinced that the existing evils admitted but of one cure, I had made my first move in that direction. I had told the Postmaster-General that, after six months' trial, I was convinced that Colonel Maberly and I could never work cordially together. Some time afterwards, being called on to prepare scales for salaries, I again pressed my views. I told the Postmaster-General that, as the scales I had to propose would disappoint existing expectations and probably increase an insubordinate spirit already showing itself amongst the men, the work could not be safely attempted under divided responsibility, unless there were a harmony of action of which I saw not the least hope. I added that, much as I desired to take part in carrying out my plan, I was so deeply impressed with the dangers to which I had referred, that I thought it would be better to leave the executive entirely with Colonel Maberly than to continue on the present footing. The Postmaster-General, although apparently not viewing the matter in so serious a light as myself, seemed uneasy at my persistence, and said he must consult the Chancellor of the Exchequer.

About a month later, Mr. Thomas Young, the Receiver-General, having entered into conversation with me on the subject, and learnt my views and feelings thereon, counselled patience, but assured me that he knew the feeling at the Treasury, and that I might calculate on the desired change before the end of the next session. After the lapse of another month the Postmaster-General, in reply to inquiry, told me that he had spoken to the Chancellor of the Exchequer, but without definite result. He added, however, that, as I had to see the Chancellor on other business, I had better discuss the matter with him myself, and go fully into the subject. I accordingly saw the Chancellor of the Exchequer at the earliest opportunity. After having discussed with him my more immediate business, which related to my undivided control of the Money Order Department, a point on which I was fortunate enough to obtain his concurrence, I deemed it inexpedient to enter on further measures, especially as he was much pressed for time. I told him, however, that I thought it right to say that the step about to be taken would necessarily lead to further measures; on which he said, "I have no objection to that."

Meantime I had the satisfaction to remark various indications of that increased confidence in myself, on which, of course, the desired promotion must be based. Early in the year 1848, however, I saw reason to apprehend that, without prompt action on my part, I myself might be subject to ejection. The clerks in the money-order division of the Secretary's department were alarmed by information that attempts were making to remove me, and all under me, to the Money Order Office over the way, a change which would have put my retention of office quite out of the question. The clerks, whose salary and position would have suffered by this removal, memorialized the Postmaster-General on the subject. Upon speaking to Lord Clanricarde, I learned that some such suggestion had been made, but presently abandoned. I took advantage of the alarm to obtain for those under me full security as to their position and salary.

Some months later, circumstances again led me to mention my claim. Increase of business in the London district requiring an increase of force, and this appearing to contradict the expectations I had held out, I was sent for to the Treasury, where I saw Mr. Parker:--

"_May 12th._--I thought it necessary to speak plainly as to the causes of their not having been realised, and said that so long as they continued Colonel Maberly in office they must not expect any decided retrenchment, and that, had I supposed that he would have retained his position so long, I never would have undertaken my present duties. He seemed sorry to have provoked these statements, and remarked that great savings had been effected in the Money Order Office; to which I replied that it was because that department had been freed from Colonel Maberly's influence."

Some weeks later, I received for my plan the marked approbation of the highest authority in the Government:--

"_June 21st._--Lord John Russell, last night, in the House of Commons, in enumerating the measures which had resulted from the Reform Bill, spoke as follows of penny postage (the extract is from the _Times_ of to-day): ... 'Whilst these great changes have been made, other measures have been adopted, such as the reduction of the postage of letters to a penny (Hear! from Colonel Sibthorpe, in a tone which provoked considerable laughter). I was about to allude to the reduction of postage in a parenthesis with other measures, but I really think that, viewed as a great social change, nothing more beneficial has taken place in later times (Hear, hear). When you contemplate the enormous increase which has taken place in correspondence, you may estimate the number of persons who were deprived of the benefit of communicating with their friends, and of offering the interchange of domestic affections (Hear, hear). I really think that we cannot overestimate all the advantages which have resulted from that act (Cheers).'"

The more, however, I felt gratified with this evidence of increased confidence on the part of the Government, the more anxious was I made by a communication received three days afterwards:--

"_June 24th._--The Postmaster-General told me in confidence that Ministers had determined to resign if beaten on the Jamaica question, now pending--a result which he thought probable; his object in telling me this appeared to be to enable me, as far as possible, to prepare for the change. I repeated what I have before told him, that his own resignation would in all probability be followed by mine, for that, judging from former experience, I was sure that unless I was well backed by the Postmaster-General, ---- would so conduct himself as to render my position unbearable. He replied that he had no doubt I should have much opposition to contend with, not only from ----, but from the heads of the other departments, who to a man were opposed to reduction. I reminded the Postmaster-General of his minute, prescribing a course of proceeding on my part much more restrictive than the actual practice of the office, and stated that, should he resign, ---- would, I felt sure, endeavour to enforce the regulations to the letter. I also inquired if the Postmaster-General would have any objection to modify his minute in accordance with the practice of the office. To this I understood him to assent. He says there will be plenty of time, after the question of resignation is settled, to attend to such matters. Lord St. Germans, he thinks, would be his successor. He has noticed that Lord St. G. has rarely deviated from Maberly's advice."

"_June 28th._--E. H., A. H., F. H., and I, met to consult on the steps to be taken in consequence of the Postmaster-General's communication of the 24th, and decided what should be done. These family consultations are a great aid to me. Wrote a minute, modifying the one [alluded to above]."

"_June 29th._--Called on the Postmaster-General at his house, and had a very satisfactory interview. He is fully satisfied as to my administrative powers, and offers to leave a memorandum for his successor (should the Ministry resign, of which there is now less probability), expressing his high opinion thereon. Fully admits that the prospect of promotion held out when I entered on office had reference to my succeeding Maberly. That all doubt of my ability to manage the department had long ceased, and that he had repeatedly expressed himself to other members of the Government quite ready to conduct the Post Office with my aid only; that he expected a vacancy in some other department would have been found for M. before this, but that his present post was so good a one that it was difficult to find another equally good, and that Parliament and the public would not justify their allowing so young a man as M. to retire upon a pension. I proposed, as an intermediate step, that I should be declared joint secretary with M.; but, as I could not accept any advance of salary so long as I was postponing the consideration of others' salaries, my salary should continue at its present amount till the general adjustment should take place.... Finally, he promised to consider my proposal, and to consult the Chancellor of the Exchequer thereon."

"_June 30th._--The danger of resignation is past; the Ministers had a majority of 15 last night. Gave the Postmaster-General the minute (June 28th), but he defers decision thereon, there being now no haste."

I did not altogether concur in the propriety of delay, feeling as I did that every day was bringing new evils. After narrating other proceedings at this interview, my Journal thus continues:--

"Called his [the Postmaster-General's] attention to the great increase of expenditure, shown by an account just rendered for the last half of 1847. It is at the [annual] rate of nearly £100,000."

In the following August the question was again forced upon me, by a demand of the Chancellor of the Exchequer for the complete consolidation of the two corps of letter-carriers;[57] a measure involving also the establishment of hourly deliveries and district offices, all important features of my plan. Knowing that the required change, which, unless made with the greatest care, would inevitably excite great discontent among the clerks, sorters, letter-carriers, and others, could not be safely attempted under present arrangements, I again spoke to the Postmaster-General on the subject of my promotion, but obtained no satisfactory reply.

Checked and encumbered too as my progress had been, a review of it made about this time showed that, however imperfect in its great features, it was nevertheless, in the aggregate, greater than I myself had been conscious of. In fact, I found that most of the improvements included in the list of agenda, which I had laid before the Committee of 1843, were either completed or at least in progress. Still, as I felt it indispensable that my greater reforms also should go forward, I continued from time to time to urge that important change which the condition of my engagement gave me a right to demand; and as the year drew to its close without any step being taken in reference to my claims, I naturally became more impatient. Instead of the six months which had been spoken of as my probable time of probation, two whole years had now elapsed. I could not but regard this interpretation of the virtual promise as more than sufficiently loose.

After careful consultation with my brothers, I resolved on making a formal application upon the subject. In my letter, which is given in the Appendix (A), after referring to past difficulties and previous applications, as also to the distinct expectation which had induced me to accept my present post, after appealing to his lordship as "to my having made every possible effort to surmount and avoid the obstacles incident to my present position," I submitted a list of the chief improvements (all of them, however, of a comparatively minor character) which, under his lordship's authority, I had been able to effect in the postal service. I then described the improvements effected in the Money Order Department, expressing my confident expectation that in the course of the year it would become self-supporting,[58] and that by additional measures, then in progress, it would in time be made to afford a satisfactory profit. I adduced the facility with which the necessary changes, many of them difficult and complicated, had been effected in this department since it came under my immediate and exclusive direction, as affording fair presumption that with similar means at my command a like success might be obtained elsewhere. I remarked that my appointment to this department had been avowedly to ascertain my competency for practical management, and submitted that by the results such competency was proved.

After adverting to some of the most important and pressing improvements remaining to be made, to the opposition which these had always encountered, to the cautious and tentative process by which alone they could be effected, to the impracticability of carrying on this without "immediate confidential and uninterrupted intercourse with those most conversant with details, or on whom the duty of immediate execution would devolve," or without "the exercise of an influence and authority limited only by due subordination to" his "lordship," I again urged the fulfilment of the expectation held out to me. I strengthened my claim by reference to symptoms of dissatisfaction in the public with the slowness of progress, natural enough in its ignorance of the difficulties under which I laboured, but through which I was exposed to attacks which I might not repel, and suffered in my reputation while quite unconscious of blame.

This letter was promptly acknowledged as follows:--

"Dublin, January 6th, 1849.

"MY DEAR SIR,--The subject of your letter of the 3rd is a matter for more than mere departmental consideration, and all I can do upon it is to communicate it to the authorities at the Treasury. I shall do so without delay.

"Most truly yours, "CLANRICARDE."

Three days later I learnt from the Postmaster-General that it had been forwarded to the Premier, Lord John Russell; and about a month afterwards I heard in like manner that it was then in the hands of the Chancellor of the Exchequer. Instead, however, of a reply, positive or negative, to my application, I received from the Postmaster-General's private secretary a letter addressed to his lordship from the Chancellor of the Exchequer, demanding the consolidation of the two corps of letter-carriers, referring to a promise of such improvement alleged to have been made two years before, and speaking of its non-fulfilment as discreditable to the department. I need not say that in such promise I at least had had no share; but as the obstacles to this very measure had been set forth in my recent letter, I was obliged to conclude that this letter, though forwarded as already mentioned to the Chancellor of the Exchequer, remained unread by him.

A few days afterwards, however, the Postmaster-General told me that he and Lord John Russell had talked over my letter, but the reported result was only the old conclusion, viz., delay till a suitable vacancy should be found elsewhere for Colonel Maberly. I suggested two several expedients which were not adopted. In short, nothing whatever was done, and though no attempt was made, either then or at any other time, to show any flaw in my claims, I found nothing but delay. I certainly had as yet no suspicion of the extent to which this delay would be carried.

Ten days later the Chancellor of the Exchequer again, in a private note to the Postmaster-General, returned to the charge, protesting that no jarring between Colonel Maberly and me could justify the delay, but still showing no sign of having read my letter. It was easy to suppose the Chancellor of the Exchequer unable to discover of himself the mode in which jarring between Colonel Maberly and me rendered it impracticable to effect what he desired, and to understand how press of business and variety of occupation might have prevented his noticing or remembering my explanation on the subject. Unfortunately his want of information, however accounted for, could not remove obstructions nor avert dangers; and thus, while he applied his spur, I could not induce him to remove the curb. My only resource was again to seek a hearing; and accordingly I wrote to my immediate official superior what was nevertheless intended rather for the Chancellor of the Exchequer himself.

After mentioning that I had in vain sought by reconsideration to find means of accomplishing in my present position even part of what was desired, I suggested that, to remove all obstacles to my promotion, Colonel Maberly should be allowed to retire on full salary, I undertaking all his work in addition to my own, without any present increase of emolument; Colonel Maberly to be of course ready to fill any satisfactory vacancy in another department whenever it occurred. Thus, with full allowance for such augmentation to my salary as might then take place, there would still be a large saving to the revenue. The reply to this letter, though expressed with Lord Clanricarde's usual kindness, was a request for its withdrawal; a request with which, after a week's consideration and consultation with friends, I thought it best to comply. I notified, however, that I still urged my claim as stated in my previous letter.

Meantime doubt revived as to the stability of the Ministry:--

"_May 7th._--The Postmaster-General expresses doubt as to the result of this debate [the Navigation Laws], on which the existence of the Ministry depends. He says, however, that in the event of their resignation, there will be ample time to consider any arrangements similar to those discussed at the time of the last ministerial crisis for making my position in the office more satisfactory."

With the importance of the relief to be derived from the long-sought change in my position I was again impressed by failure of health. Towards the end of May I became so unwell as to be very unfit for work, and was obliged to remain almost entirely at home. Some weeks later I again fell ill, and was for a week absent from the office, getting with difficulty through some little work at home. Early in August, however, the parliamentary session having closed, I was able to take more rest, and though repeatedly interrupted by recalls either to the Post Office or the Treasury, I was nominally at holiday for a whole month, and really passed nearly a fortnight at Ramsgate. Before leaving town, however, I again wrote to the Postmaster-General. (See Appendix B.) In his reply (Appendix C), Lord Clanricarde repeated his former objections to moving in the matter, and said he saw no reason to believe that the Treasury would take at that moment any steps to place me in the position I desired to hold.[59]

"_September 12th._--The Postmaster-General came to the office for the first time since our recent correspondence. His manner was most hearty and friendly, so much so as to render it almost impossible to discuss any question otherwise than in the most amicable manner. His stay was so short that I could barely get through the most pressing business; it is understood, however, that we are to talk over the correspondence when he comes next."

On further consideration, I determined to take no further action at present; and, indeed, my attention was soon afterwards engrossed in other matters.