BOOK III.

CONCLUSION.

"_He that dies in an earnest pursuit is like one that is wounded in hot blood; who, for the time, scarce feels the hurt; and therefore a mind fixed and bent upon somewhat that is good doth avert the dolours of death; but, above all, believe it, the sweetest canticle is_ 'Nunc dimittis,' _when a man hath obtained worthy ends and expectations_."--BACON.

CONCLUSION.

Sir Rowland Hill, at the time of his retirement, "remained," in the words of the Treasury Minute, "full as ever of ability, energy, and resources, and of disposition to expend them for the public good." He was broken down in health--broken down, not so much by the great work that he had done, as by the hindrances that, time after time, had been wantonly and cruelly piled up against him in the discharge of his duty. "Men will one day think of the force they squander in every generation, and the fatal damage they encounter by this neglect."[248] "He stands," wrote Mr. Gladstone a few months before he left the Post Office, "pre-eminent and alone among all the members of the Civil Service as a benefactor to the nation." He had not been two years in the service of his country when the Chancellor of the Exchequer of that day, "a man not of many words, or, in manner, of overflowing heart,"[249] told him that, were the Secretaryship to the Post Office vacant, he was the man whom he should recommend to fill it. In a most trying and severe apprenticeship he had proved his thorough fitness for the post, and had convinced Mr. Baring that there was, at all events, one inventor who could be a man of business.[250] But before long his force was squandered by Sir Robert Peel. For the next four years his work lay outside the Post Office. With the return of the Whigs to power, he was once more brought back to the great work of his life. Unhappily the squandering of force did not come to an end. Seven years more had to pass before he was made sole Secretary, and placed in a position of real and undoubted power. For these seven years he had been, to use his own words, "a general almost without an army." For the next six years his work went on smoothly and rapidly under a happy succession of able and high-minded Postmasters-General. But a change came all too soon. In the Post Office certainly he should have had no master over him at any time. There even the ablest of our statesmen might well have sat at his feet. "He is King of Postal Reform," wrote a Postmaster-General of a later date, "and I felt myself a very small subject in waiting upon him." But under the able chiefs under whom he served from 1854 to 1860 he worked with full contentment. This happy period came to an end, as has been seen, with the appointment of Lord Stanley of Alderley. His force was once more, and for the last time, squandered.

How strangely and how sadly was this man thwarted in the high aim of his life. He longed for power, but it was for the power to carry through his great scheme. For the mere shows--the trappings--of authority he cared but little. Such outward things dwelt not in his desires. "My plan" was often on his lips, and ever in his thoughts. His strong mind was made up that it should succeed. He looked upon it with all the fondness and the pride with which a father looks upon his only boy. Take it from him, and his life was done. There was in him a rare combination of enthusiasm and practical power--such a combination as the world has not often seen, and may not again see for many a long day. He had "the usual concomitant of great abilities, a lofty and steady confidence in himself;"[251] but together with this confidence was found a cautiousness that, for the most part, is only seen in those who are far too timid for any great undertaking. He clearly saw every difficulty that lay in his path, and yet he went on with unshaken firmness. To the simple pleasures of life he was by no means indifferent; but he had in his early years attained a thorough self-mastery. In everything but in work he was the most temperate of men. He never repined over the past, or, when once he had taken a step, fretted at the result. His health was greatly shattered by his excessive toils and his long struggles. For the last years of his life he never left his house, and never even left the floor on which his sleeping-room was. But in the midst of this confinement, in all the weakness of old age and sickness, he wrote, "I accept the evil with the good, and frankly regard the latter as by far the weightier of the two. Could I repeat my course, I should sacrifice as much as before, and regard myself as richly repaid by the result."

With these high qualities was united perfect integrity. He was the most upright and the most truthful of men. He hated By-ends and all his companions. He was often careless of any gain to himself, but the good of the state never for one moment did he disregard. He watched over the public money with a carefulness which few men show even in watching over their own private hoards. He was never even so much as tempted for a single moment to purchase popularity by swerving by a hair's breadth from the narrow path of duty. More than once a slight sacrifice of public money would have saved him from attack. To public censure he was by no means indifferent. He suffered beneath it even though he knew that it was unjust. Yet he was always ready to brave it in a good cause. One of the men who long served under him bore this high testimony to the character of his old chief:--"Sir Rowland Hill was very generous with his own money, and very close with public money. He would have been more popular had he been generous with the public money and close with his own." Of his generosity I discovered a striking instance in looking through his private Journal for his last year in office. For one of his subordinates, on whose ability and devotion to himself and zeal in the public service he set a high value, he had not been able to obtain from the Government the recompense which, in his opinion, that gentleman deserved. "I have compensated him to some extent," he records, "by a gift of £300." Beneath a manner that was cold beat one of the warmest and even tenderest of hearts. He had, in earlier life, known what it was to bear the proud man's contumely. The lesson that he had learnt in that hard school was one of forbearance. His rule was stern, yet never without consideration for the feelings of others. No one who was under him ever felt his self-respect wounded by his chief. It is not yet forgotten in the Post Office how, many years ago, one of the higher officers was summoned to the room of the Postmaster-General to give an explanation on some difficult matter. He found his Lordship and the Secretary sitting at the table, but he himself, though he was likely to be kept some time, was not invited to take a chair. Sir Rowland Hill stood up, and remained standing, till his Lordship requested both to be seated.

He had not the fault of most enthusiasts, who look in others for a zeal as ardent as that which animates themselves. He found it somewhat hard, indeed, to understand how any one could be indifferent to the statistics of Penny Postage, and help watching the rise in the number of letters and the postal revenue with as much interest as Englishmen, on a wet day, watch the rise in the weather-glass. But though he did not ask for the same enthusiasm in those who were set under him, he did look for the same carefulness, the same exactness, the same integrity, and the same constant thought for the public good. He forgot that they had not been trained in the same stern school with himself, and he failed to make due allowance for the weakness of man's nature. By asking too much from men he got from them, perhaps, less than they might otherwise have given. Yet the better natures were not a little raised by the high standard of duty that he ever set before them. He left behind him, in all ranks of the service, a strong sense of public duty, which has managed to outlive even the evil days which came after him.

The history of his declining years I shall but touch on. His work was well-nigh done on the day when he left the Post Office; yet prolonged rest gave him back some small part of his old strength. "Much improved during the winter," he noted down at the end of his first year in retirement; "rest and cool weather suit me." In his labours as a member of the Royal Commission on Railways[252] he showed that his mind, however much it had been strained, had yet lost none of its clearness. Not less did it show its power in the years when he was employed in writing "The History of Penny Postage." He managed, he could long boast, to keep himself "_au courant_ with the progress of science and mechanical invention." For a while he had strength enough from time to time to attend the meetings of the Political Economy Club. From a short paper that he drew up I extract the following passage:--

"When I became a member of the Political Economy Club, I soon marked a questionable assumption there--viz., that whatever is in accordance with the laws of political economy is necessarily right and expedient, and _vice versâ_. Question on this point happened to be raised one evening by a remark from a member that the position maintained on one side in the debate then going on was hostile to general happiness; the answer to which was, not that the objector was mistaken, but that the objection was irrelative; seeing that the aim of political economy was not the general happiness, but the wealth of nations. I took the liberty to point out that while political economists might, of course, define their science as they pleased, they must remember that under such restriction its unaided conclusions could not claim to guide legislative action; since it was at least conceivable, and perhaps not improbable, that in certain cases the course most tending to a nation's wealth might differ from that most tending to its weal. I am much inclined to think that neglect of this distinction is amongst the causes which have at different times brought this important science into discredit, led the world to regard its professors as hard--nay, heartless--and in a measure invalidated their plea that they are not inventors, but only discoverers; that they create no laws, but merely set forth the logic of facts. So far, however, as I can observe in my retirement, such distinction is in the way to acquire recognition."

He took a strong interest in politics; and no long time before his death he was heard to say that he should gladly live two or three years longer, that he might see how the arrangements made under the Treaty of Berlin would work. It was, however, in watching the operations of the Post Office that his chief interest still lay. I remember how I called upon him one day about eighteen months before his death. On my coming into his room he turned with a smile of pleasure to his son, who happened to be present, and said, "Has your cousin heard of the discovery?" I pricked up my ears, and at once thought of some curious old family record that might have been found hidden away in an old chest or cupboard. "This year," he continued, with proud exultation, "the postal revenue is larger than the revenue produced by the income tax. I was quite startled to find this out." Many years earlier he had written to tell his brother how he had met Garibaldi. "On Thursday (April 21, 1864) Caroline (Lady Hill) and I dined at Fishmongers' Hall 'to meet Garibaldi.' I was a little afraid of the undertaking; but I enjoyed the meeting, and am, to say the least, none the worse for it. I had some conversation with Garibaldi about the state of the Italian Post Office; but it was evident that he felt but little interest in the matter. There is something very pleasing, not to say fascinating, in his appearance and manner." Mr. M. D. Hill replied, "I was very glad to hear you were able to go to the Fishmongers', and very much amused to find that you consulted Garibaldi on Italian Penny Postage. When you go to heaven, I foresee that you will stop at the gate to inquire of St. Peter how many deliveries they have per day, and how the expense of postal communication between heaven and the other place is defrayed."

When, by the establishment of School Boards, primary education was so widely extended, he foresaw at once the effect that would be thereby produced on the postal revenue. "Is there," he wrote, "in addition to the moral, intellectual, and commercial benefits more directly aimed at, any set-off to this increased expense? For this I naturally turn to its effect on the number of letters, which will obviously be enlarged by diffusion of the power to write and read; though the extent to which this will operate is at present matter for conjecture rather than for estimate. I hold it, however, not quite impossible that in this manner the outlay will eventually repay itself, though I am by no means so sanguine as to expect so rich a result." That knowledge might be more readily brought within the reach of all, he was eager to see a reform of what, to use his own words, "is grossly misnamed orthography." "For myself," he writes, "I frankly confess that I have always made it a practice to have a spelling dictionary at hand, and have not infrequently to turn to its pages. My education must, then, it will be said, have been defective! True enough! but of how many has the education been more defective! And even in those who have attained proficiency, how great has been the sacrifice of time else applicable to beneficial study!"

While his mind thus constantly turned to any subject that in any way bore on his great plan, he found, unhappily, much that distressed him in the government of the Post Office. He grieved over the changes that after his retirement were too often made in disregard of the great principles on which he had steadily acted.[253] More than once he addressed warnings to the government. But at the very close of his Journal he records,[254] "I have made myself seriously ill--having brought on renewed threats of apoplexy--by what I have already done." He could do no more. He had lifted up his voice, and lifted it up in vain. There was happily another side to this sad picture. Wrong-doings and blunders he could often forget, while he contemplated the perfection with which the great machine still worked, though there was no master-hand to govern it. He had the delight, too, of watching his plan as it spread from country to country. "In some respects," to quote the words that Mr. Gladstone used on his death, "his lot was one peculiarly happy even as among public benefactors; for his great plan ran like wildfire through the civilised world, and never perhaps was a local invention (for such it was) and improvement applied in the life-time of its author to the advantage of such vast multitudes of his fellow-creatures." He had aimed at doing something for the world, and he lived to know that his success had been far greater than his hopes, and that the world was not ungrateful.

In the quiet course of his private life there is but little on which I shall dwell. Each year saw his range narrowed more and more till at last he was confined to one floor. In an interesting paper, which he drew up in the summer of 1874, he thus describes the state of his health:--

"Some description of my present illness, and of the causes thereof, may perhaps prove useful to young persons who may be inclined to follow a career with energy beyond their strength.

"My present position is this:--The ordinary state of my health does not prevent considerable enjoyment of life, provided that I take certain precautions and observe certain rules which experience has dictated, and, further, that I am not disturbed by others; but herein lies the difficulty. To control myself is easy enough, but effectually to control others is beyond my power.

"Under the former head, I find that any kind of locomotion, except within certain narrow limits, invariably proves hurtful--producing pain in the head, a feeling of incapacity for self-guidance, and, if persisted in, downright vertigo--the most perfect rest during some hours being necessary to restore me to the normal state. It is more than five years since I was in a railway-carriage, and I dare not venture on a further trial, even could I get to the stations, which, with a few unimportant exceptions, are beyond my reach; my drives, even under the most favourable circumstances, being limited to twenty or, at the utmost, to twenty-five minutes. Soon after its completion I managed to reach the Holborn Viaduct; but the Thames Embankment and the new Post Office I have never seen. As to walking, a few yards to and from the carriage is all that I can attempt. In my own rooms, indeed, and in an adjoining balcony constructed for the purpose, I am able, at certain hours, neither long after nor shortly before a meal, to pace a little every day. The restriction is not owing to any lack of muscular strength, but simply to the painful effect on my head."

It was, he says, so far back as the year 1839 that he could trace the first indications of this coming inability to walk. It had grown upon him till, about the year 1868, he fell into the state which he has thus described, from which he never recovered. "This is the more remarkable," he adds, "because, when a young man, I was the best walker of the brotherhood, and could 'do' my thirty miles a day for, I believe, any number of days in succession." He managed, nevertheless, for many years to dine with the Royal Society Club.

"I cannot explain, fully at least, why I can visit one club and not the others, the distance from home being practically the same for all. One reason, no doubt, is the pleasure and excitement afforded by meeting men of eminence whose conversation greatly interests me. Another, the rest and reinvigoration resulting from the dinner; and lastly, and perhaps chiefly, that the meetings are so frequent as to admit of my selecting days when the weather, my health, and all other circumstances are favourable."

He next describes the mode in which he suffered through the action of others:--

"The disturbances from which I most frequently suffer are noises, especially when unexpected; as, for instance, the sudden opening or closing of a door, the dropping of any article on the floor.... Some protection is afforded me by increasing deafness, whatever the inconvenience of such infirmity. Again, I am painfully sensible to a shake so slight as to be imperceptible to one in ordinary health; such, for instance, as is produced by any one walking across the room save with an almost cat-like tread, or by a touch to my chair so slight as even the mere brush of the servant's clothes against it as he waits at table. Further, I am annoyed by any of those repeated movements of hands or fingers which are habitual to some people, though against this particular annoyance I find some protection in taking a book or newspaper and interposing it as a screen."

I may mention here, as an instance of his delicate consideration for the feelings of others, that I had often noticed when I went to see him how he thus screened his eyes. It was not till I read this account of his health that I was in the least aware that it was against my restlessness that he was screening himself.

Beneath the balcony that he had built for himself, wherein he hoped, each year as the suns grew warm, to breathe the fresh air, the Metropolitan Asylums Board set up a Small-Pox Hospital. Within a few yards of the old man's only walk ran the road along which, day after day for many a month, passed a sad train of ambulances and a still sadder train of hearses. For the signal benefit that he had conferred not only on England, but on the whole world, he had been hitherto rewarded and honoured by a gratitude that was as strong as it was general, by the free gifts of his countrymen and the vote of Parliament. The University of Oxford had made him a Doctor of Laws, and the Queen had made him a Knight Commander of the Bath. Before many years had passed the City of London was to give him its freedom, and Westminster Abbey a grave. The Asylums Board cared for none of those things. Public benefactors and public honours did not enter into its world. It knew of nothing but ratepayers. But ratepayers, it should have remembered, are after all only men, and men, in these islands at least, are neither ungrateful nor pitiless.

There was a striking regularity in the order of his household. Everything went on almost as if by clockwork. He asked me one day whether I had ever noticed that the sound of a bell was scarcely ever heard in his house, save when someone came to the hall-door. He was, he said, strictly punctual himself, and he had trained his servants to habits of the strictest punctuality. He could afford, I knew, to take some trouble with them, for they were very slow to leave his service. His visitors saw year after year the best proof of a good master in the familiar faces of those by whom he was served. As everything was done at its appointed time, there was no need for a bell to be rung. His meals, his medicine, everything was brought to the exact minute. No one was summoned, for no one was ever late. In the days when he was still strong enough to drive out, he had been often troubled by the unpunctuality of his coachman:--

"I advised him to _aim_ at being five minutes before the appointed time. Of course I only _advised_ this--to have ordered it would merely have changed the appointed hour. Just as the allowance of five minutes' grace at the Post Office simply alters the hour of attendance from 10.0 to 10.5 a.m., and does nothing to secure punctuality.

"Still the result was unsatisfactory, and I was irritated and annoyed by the man's persistence. He was honest and sober, and had a wife and several children. Dismissal, therefore, was out of the question. I thought of fines, with rewards for continued punctuality; but I have small faith in either fines or rewards.

"At last it occurred to me to adopt the Post Office rule, under which any one accused of misconduct is called upon to give such written explanation 'as he may desire.'

"The duty was entrusted to the footman, with instructions to call for explanation in every instance of lateness, even when no more than a fraction of a minute, the hall clock being taken as an indisputable standard."

The result was that the man became so exact to his time that in twelve months "there were only six cases of lateness, amounting in the aggregate to eight minutes."

Confined though he so much was to one room, yet time did not hang on his hands. His eyesight happily remained strong, and he was a great reader. In the pages of a novel for many years he found pleasant repose. Few men, indeed, were more deeply read than he in fiction. Science, too, as I have shown, took up much of his time. Astronomy remained to the last his favourite study. Poetry did not throw her charm over him--at least to any great extent. Yet one day he told me that he had just finished "Paradise Lost." "Milton," he said with a smile, "does not, in my opinion, prove his case." His money accounts he kept with the utmost exactness, even to a late age. Two years before his death he told me that he could not expect to live much longer, for his mental strength was steadily failing. He had been obliged to give up even his account-keeping, which had been a pleasure to him from a very early age. A day or two before, he added with an air of great vexation, he had had to make an entry of money received, and he had entered it as money paid.

Few things pleased him more than to talk over his past life. I find the following record among the notes that I took of his talk. "As he told me this day the story of his youth, and the difficulties that he had overcome, the old man grew eloquent. If his words could have been taken down, they would have read like a chapter of De Foe. I was filled with admiration of his powers." Nothing touched him more than the memory of some kindness that had been done him. He was grateful to all who had at any time, in any way, helped him; but his gratitude overflowed towards those who had rendered him help in the struggles of his youth. A year before his death he could not be satisfied till he had put on record the names of those who, more than seventy years before, had lent his father money in the time of his greatest straits. The loans had been long since paid off--mainly by the son's efforts as I have shown--but the memory of these benefactors was not to be suffered to pass away from his father's family. At no time was his thoughtfulness for others more shown than in the winter of 1876, when he was suddenly struck down by an attack that threatened paralysis. Forgetful of himself at so awful a time, he thought only of others. It so happened that in a few weeks' time he would have had to make me a certain payment. He remembered that I had been suffering from a long illness, and he feared that I might be put to some inconvenience should payment be delayed. He sent to ask me to let him know at once the amount that would be due, so that he might sign the cheque before his hand was paralysed. During the same attack his son asked him whether he would like to consult one of his nephews--a surgeon in whose skill he had great trust. He had, indeed, he answered, wished to send for him. As, however, his own doctor had not suggested, it, he had not said anything for fear of hurting his feelings. A day or two later he begged me to go and see him. I found him in bed, and very weak. He did not think, he said, that he was dying, but it might be that he really was. It had always been his habit, he added, throughout life to prepare for every contingency, and therefore he wished to see me now. What he said could not, for the present at least, fitly be set before the reader. He showed, however, that in the blow that had thus suddenly fallen upon himself, his feelings and his fears were all for those who had so long been dear to him.

Such a life as this, secluded though it was, could not be free from the losses that are common to the race. The old family group began to grow thin before his eyes. His two elder brothers went first, to be followed before long by his only surviving sister. They, however, had all reached a ripe age. In the death of his eldest daughter, and of more than one of his grandchildren, he felt the far deeper sorrow that comes on the old when they see the young gathered to the grave before them. He would tell with sad pride how one of these little ones had once had the courage to call him to account. The child, who was but three years old, one day when playing with his elder brother, had seen his grandfather give a little dog a slight blow with a switch:--

"The hall being rather dusk, their grandfather did not perceive that the two boys were there, or he would not, in their presence, have struck Trottie. Later in the evening the children came to say good-night, and were leaving the room when he noticed signs of hesitation, followed by a whispered consultation outside the halfclosed door. They were evidently settling which should be spokesman. Probably F., although much the junior, volunteered his services, as, when they re-appeared holding one another by the hand, in a tone of deep solemnity, as befitted the occasion, he said, 'Grandpapa, why did you beat Trottie?' The old man was delighted with the child's courage in thus calling him to account; and, bidding the lads come close to him, reminded them that any noise made his head ache; that, should either of them make any noise, he should never think of beating them, but should ask them to be more careful for the future, well knowing that they would attend to his wishes; but that it would be of no use to talk to Trottie, who must either be kept out of his room altogether, which their grandmamma would not like, or must be taught, by means of the little switch, not to bark there. The boys retired fully satisfied with the explanation."

Outside his own circle, Death, while it so long passed him by, was very busy. Old friends, men eminent in science or in public life, he saw pass away before him. He once spoke to me with deep feeling of certain old men who, whenever they met him, had always received him with the greatest warmth. Of his friend Colonel Torrens, whom he had known years before as the chairman of the South Australian Commission, he has left the following brief record:--"He was eminent as a writer on political economy, and was one of the founders of the Political Economy Club. He was many years in Parliament, and was chairman of the South Australian Commission when I was secretary. I had known him previously, but this made our acquaintance intimate, and led to a friendship which continued till his death. When on his death-bed, at the age of eighty-four, he wrote me a most affectionate letter, expressing his desire that a connection even then contemplated between his family and mine should be realised; and a year or two later this was done, to the great satisfaction of my wife and myself, by the marriage of my son with one of the Colonel's granddaughters." Colonel Torrens, I may add, had early in the century distinguished himself as a brave soldier. His descendants show with pride a sword of honour which was presented to him for his gallant defence of the Island of Anholt.

With all its losses, its seclusion, and its deprivations, the old man's life was far from being unhappy. He had resources in himself, and he had the never-failing past on which to dwell. His strength failed, and his mind began to lose somewhat of its old vigour. "Yet hath my night of life some memory," he might well have said. He had, moreover, a hearty love of fame, and he was doubly happy in this, that honours followed him even into his retirement. He passed away from the sight of men, but he was never made to feel that he was forgotten. Now in one grateful acknowledgment, now in another, he was shown that the world was not indifferent to the man who had conferred on it so signal a benefit. In some newspaper, or in some book, would appear from time to time a kindly and generous mention of his services which would warm up his heart even in the chill of age. I am reminded how Johnson, one day in the last summer of his life, "called out with a sudden air of exultation, as the thought started into his mind, 'O! Gentlemen, I must tell you a very great thing. The Empress of Russia has ordered the 'Rambler' to be translated into the Russian language; so I shall be read on the banks of the Wolga.' Boswell,--'You must certainly be pleased with this, Sir.' Johnson--'I am pleased, Sir, to be sure. A man is pleased to find he has succeeded in that which he has endeavoured to do.'" In like manner Sir Rowland Hill often exulted at the news that his great plan had won yet another triumph on some distant shore.

Fresh honours were done to him in his own country. Birmingham, the town in which he had spent his youth and early manhood, had already set up his statue. A short time before he died he heard that Kidderminster, his birth-place, was going to pay him a like honour. And now, at the very close of his life, the City of London granted him its Freedom. He was far too weak to attend at the Guildhall, in accordance with ancient custom, to receive this high distinction. The Court of Common Council, with a kindness that gave a double grace to the honour that they rendered, appointed a deputation to wait on him at his residence.[255] He received it in his bed-chamber. It was the 6th day of June, 1879, less than three months before his death. "I offer you," said the City Chamberlain at the conclusion of an eloquent address, "the right hand of fellowship in the name of the Corporation whom we represent, and who deeply regret that they cannot receive you in person, as is their wont on such occasions as the present. We congratulate you that, notwithstanding the 'labour and sorrow' inevitable to the weight of eighty-three years, you have been spared to witness the complete triumph of your postal principles, to receive acknowledgments from the State, and honours from your Sovereign. Detractors and obstructors you have outlived, or they only survive to swell the ranks of those who applaud. May your remaining days be consoled by the thought that your name and services can never be forgotten, and may the sunset of your life be brightened by the reflection that you have been permitted to become one of the greatest benefactors of mankind." It was a touching sight how the old man was moved by this, the last honour, that he was to receive in his life-time from his fellow-countrymen. The tears streamed down his venerable face, and he was scarcely able to utter a word. I stood close by him, and I heard him say, "I cannot listen to it as I ought." When the address was finished he could only say, "I wish it were in my power to thank you." His son had to read his answer. More than once he was distressed to see the members standing while their Chamberlain was addressing him. "It would be a relief to me," he said, "if you would sit down. I cannot bear to see you standing." This is a trifling matter in itself, but it had its rise in that tender and anxious thoughtfulness for others which I had so often marked in him. Before leaving the house I went once more up to his room, and through the open door gazed at the man whom I had so honoured. I did not venture to break on his repose by going in. He had on his face a look of great peacefulness. That which should accompany old age was indeed on that day seen to accompany him. I never saw him again.

His strength failed daily, and it was soon seen that the end was not far off. In the beginning of July death seemed close at hand, but he rallied once more. Happily his sufferings were at no time very severe. His mind often wandered, and at last he sank into a state of stupor. For hours he lay motionless, giving no signs of life but by his quiet breathing. His aged wife sat holding his beloved hand in hers. He gave one last sign that he was still of this world. He felt for her wedding-ring--that ring which he had put round her finger more than fifty years before. Finding it, he knew whose dear hand it was that he was holding, and with one gentle pressure he showed that the love that he had always borne her from the beginning he bore her to the end. He never moved again. He died on the 27th day of August, in the year 1879. Hitherto this day had always been held a festival in our family; for on it his brother Arthur had, for eighty-one years, kept his birthday.

It had been Rowland Hill's hope that his countrymen would think him not unworthy to find his last resting-place in Westminster Abbey. It was, indeed, with singular agreement that the voice of the people awarded to him the last great honour which we Englishmen render to our famous dead. There, followed by his children and his children's children, by his two aged brothers, who had shared in his struggles and his triumphs, by his brothers' children and their children's children, he was laid in his glorious place of rest. It was the burial of a man of the people, and the people came together to do him honour. Men came, too, who had worked under him and worked with him--men who knew well what manner of man he was who was now laid among the great ones of the land. There was but one left of the good line of Postmasters-General under whom it had been his happiness to serve. He unhappily was on the wide Atlantic the day that we were gathered round the open grave. "I can truly say," wrote the Duke of Argyll, "that no one among his many friends and admirers would have joined more sincerely than I should in the mourning of that day. I had the highest admiration of him, and the strongest feeling of personal regard and affection towards him." The City of London, which he had so signally served, was represented by its chief magistrate, and the great Liberal party, to which he had been so long attached, by his old friend Mr. Charles Villiers and Earl Granville. His native town sent its Mayor and a deputation of citizens, while his county was represented by its Lord-Lieutenant. The presence of the venerable Astronomer-Royal, for whom the dead man had long entertained a feeling of high regard, reminded those who had known him how he had always spoken of astronomy as "my favourite science."

There came into my mind the words in which Edmund Burke told of the funeral of our great English painter:--"Everything, I think, was just as our deceased friend would, if living, have wished it to be; for he was, as you know, not altogether indifferent to this kind of observances." The solemn, glorious, and beautiful scene does not easily lend itself to the poor words of mine. Yet I would willingly let those who are to come after us know something of that which was felt by more than one on this day that was so great in our house. One who was present among the mourners writes to me: "It was not a state ceremonial,--it was a people's payment of honour. There was not grief; but there was a solemn sense of recognition of a great deed. As I saw from the window of the Jerusalem Chamber the approach of the hearse, and 'heard,' if one may say so, the sudden hush, the one feeling was not grief, or that the country had sustained a loss, as when Macaulay was buried with his work half done, but that the crown was being put on a noble career. Sir Rowland, in his coffin, seemed to be making a triumphal progress. What struck me most was, if you will put a kind construction on the first part of the antithesis, this absence of sorrow, this presence of reverence." From another account that was written down at the time I take the following: "There were few touches of solemnity or mortality till we were close on the Abbey. There we heard the great bell tolling over head. I had heard it last when it tolled for Macaulay. There a great crowd was gathered, very quiet and very orderly. It was not till the carriage turned into Dean's Yard, that I first felt in all its force what it was that we had come to see and do. The band of the Post Office Volunteers was playing the Portuguese Hymn. The men, all in black, were drawn up on each side of the roadway with their arms reversed, and their faces resting on the stocks of their rifles. The notes of the band at once woke up the tenderest and most solemn feelings. The tears started into my eyes. On getting out of the carriage I saw, for the first time, the coffin with its beautiful shroud covered with wreaths of flowers. We marched through the cloisters with the sad music of the soldiers still in our ears. As we turned round a corner we saw the door into the Abbey open before us.... Here we caught the notes of the organ. Wonderful feelings swept through me--the ancient cloisters, the Abbey with its thousand memories, the dead man borne before us, we following after him who had known him and revered him, the sight of his two aged brothers waiting in front to fall in with the other mourners,--the priest in his white surplice. I remember how here it burst upon me how noble and how glorious is the thought that man has made to himself of his own immortality.... We entered the Abbey, and slowly moved along. If only a man could keep at their height the lofty thoughts that filled him in such a scene, who might not hope to find his last resting-place there? But, alas, the swell will soon sink. As I passed up I heard my name mentioned--I know not by whom. I recognised also an old servant of our family. I mention this to show how the swift glances of the mind never rest, even amidst the rush of feelings strong as these.... I saw my children, too. W---- gazed at me with wonder in his dark eyes, E---- with pleasure at discovering me.... At the grave, as I looked down on the coffin and read, 'Sir Rowland Hill. Born December 3rd, 1795. Died August 27, 1879,' I thought how much there was contained within those dates. The whole life of the dead man seemed to rise before me, from his childhood at Wolverhampton, when he played with her who was one day to be his wife and was now his widow; through his hard struggles, his poverty, the neglect under which he had suffered, up to the present glorious day when his countrymen thus honoured him.... I found the tears rising in my eyes; but they were not so much tears for him, as tears over our common humanity and mortality. The music flooded the soul with the sense of man's nothingness and his short stay on earth. I never once, as I looked down into the grave, thought that the dead man might now be living in some other world. Had he been a great writer, that thought would have come most naturally to me. But 'organisation is my forte,' he was wont to say; and what place is there for organisation in heaven? His, indeed, was a mind whose work lay in this working-day world. And yet, had I remembered his love of astronomy, I might have pictured him to myself as learning with delight the secret of the stars. 'Organisation is some one else's forte,' he might now be softly whispering to himself."

We saw him then laid to rest in the little chapel in the venerable Abbey, beneath the statue of Watt. A memorial will one day be set up in this quiet spot, to show the stranger and the passer-by where Rowland Hill lies buried. In the great city hard by his statue will, before long, stand in the very centre of the trade of the world. In the charity that so many of his countrymen have founded for the relief of the widows and orphans of the servants of the Post Office his memory will be kept alive. But so long as men keep warm feelings, and the name of home has still its charm; so long as there are sorrowful partings and hearts that need comforting; so long as our high aim is towards peace on earth, good will toward men, Rowland Hill is not likely to be forgotten. For he has done almost more than any other man to bring near those who are far off, to bind the nations together, and to make the whole world kin.

APPENDICES.

APPENDIX A.

[See p. 101.]

_Letter to Postmaster-General Lord Clanricarde._

Hampstead, 3rd January, 1849.

MY DEAR LORD,--Referring to the various representations which I have at different times taken the liberty of making to your Lordship, relative to my position, and to the difficulties arising out of it which still impede the course of improvement in the Post Office, I find myself called upon by present circumstances to request your kind attention to a review of the whole subject.

Your Lordship will remember that my present duties were undertaken with great reluctance, because of the doubt I felt whether in the position I was to occupy I should be able to secure those great objects whose attainment would naturally be expected of me, as well by the Government as the public, and that one of the most weighty of the considerations influencing me to accept the appointment, was the prospect which was held out of such reorganization in the official arrangements of the Department, as would at no distant time place in my hands such prompt and direct means of acquiring information and exercising control as I have always deemed necessary for the full realization of my plans.

These views, your Lordship will recollect, are fully set forth in my letter to Mr. Hawes, of 23rd November, 1846.

I feel sure that your Lordship will bear witness to my having used, to the best of my ability, all such authority as was placed in my hands, and to my having made every possible effort to surmount or avoid the obstacles incident to my present position.

It was with this view that I selected and submitted to your Lordship those improvements which, from their comparative simplicity, or from the concurrence of the practical officers in my views, were most readily carried into effect, deferring others, either in whole or in part, where the measures, however important and even urgent in themselves, presented great complexity or appeared to be, on whatever grounds, very repugnant to those who had to carry them into effect.

Among the improvements thus effected are the following:--

1st. The time for posting letters at the London receiving houses extended.

2nd. The limitation of weight abolished.

3rd. An additional daily despatch to London from the principal villages in the vicinity established without additional expense.

4th. As one step among others towards the extinction of money prepayment, the business of all new receiving houses restricted to stamped and unpaid letters. A lower scale of salaries being also consequently introduced.

5th. The postal arrangements of 120 of the largest towns in the United Kingdom revised and completed.

6th. Unlimited writing on inland newspapers authorised on payment of 1_d._ fee.

7th. The public and the Department better protected from annoyance and loss in respect of unpaid letters, by the establishment of a summary process for recovering postage from the senders.

8th. The book-post established.

9th. The advantage of cheap registration secured to the public (by reducing the charge from 1_s._ to 6_d._), without inconvenience to the Department.

10th. An important extension of the time of posting late letters for a great part of the United Kingdom afforded by arrangements at the Euston Railway Station.

11th. As a step towards more frequent communication between large towns, a third mail per day established from Birmingham and other towns on the North Western Railway to London; this addition being made by the North Western Company without payment.

12th. Day mails extended to several smaller towns in a circuit of about twenty miles round London.

13th. The number of mail-guards reduced by placing the smaller mails under the charge of the railway guards.

14th. The service of parliamentary returns for private bills provided for.

15th. The despatch of mails at the country offices facilitated, and the late letter fees secured to the revenue by requiring both fee and postage to be paid in stamps. This improvement is about to take effect.

Some of the improvements in the money order department also belong to this class.

Upwards of twelve months ago, this class of improvements being, as I thought, nearly exhausted, I was preparing to address your Lordship as at present, when my design was postponed through the following circumstance:--The money-order department being of such a nature as to admit of separation, in a great degree, from the other business of the office, and Colonel Maberly having declined to undertake the responsibility thereof under the retrenchments and other improvements adopted on my recommendation by your Lordship and the Treasury, you were pleased to transfer the secretarial management of that department to me.

Of the change which has followed this transfer I need not speak in detail. By a report of Mr. Barth, the head of the department, dated 31st January, 1848, it appears that the accounts were then in an almost hopeless state of arrears; great doubt was entertained whether they ever could be made complete, and the expense of their completion, supposing it to be possible, was estimated at £10,000. No general balance had ever been struck since the institution of the department in 1839, and the liabilities were of unknown amount. To avoid the enormous expense of bringing up the arrears, and to ensure the extinction of unknown liabilities, it was necessary to obtain an Act of Parliament calling in the outstanding money orders. Concurrent efforts were made to bring up the more recent arrears, and to prevent the possibility of new ones arising; and, in consequence of these measures, affairs are now in such a state that, at the end of August next, the liabilities of the department will be fully known, and the materials obtained for a general balance, which will then be struck forthwith.

On investigating the accounts, I found, to my great concern, that the department was not only, as I had anticipated, unprofitable, but that it involved an annual loss of no less than £10,000. It has, however, been found practicable, even with greatly increased perfection in the accounts, to introduce, by successive improvements, such simplification as will save the salaries of 50 clerks in the London Office alone; and this, combined with other important savings already effected, will, in all probability, render the department self-supporting in the course of the present year.

But your Lordship is aware that further important improvements are now in progress, by means of which I confidently expect the money-order department will be made to afford a satisfactory profit.

I may remark that the savings effected in this department have already exceeded my estimate as laid before the select committee of the House of Commons on Postage of 1843 (p. 90).

From the facility with which the necessary changes, many of them difficult and complicated, have been effected in this department since it came under my immediate and exclusive direction, your Lordship will, perhaps, deem it not unreasonable to infer that, with similar means at my command, a like success may be obtained elsewhere; and the encouragement hence derived has augmented my earnest desire to attempt without delay improvements in other departments, for years contemplated, which, while they present many difficulties, are of no slight importance to the public service.

The complete consolidation of the two corps of letter-carriers is a promised measure of this description. This consolidation I first recommended in the year 1837, submitted to the Treasury in the year 1842, laid before the select committee on postage of 1843, and sustained through a severe examination. Up to that time it was opposed by the Post Office authorities, and not supported by the Treasury; but at the commencement of 1847 a decided step was taken in that direction, and with advantageous results.

My opinion of the value of the measure has never varied, and my desire for its adoption is, of course, greatly strengthened by finding it pressed on the Office by the Chancellor of the Exchequer, whose exhortations to the same effect have now, for twelve months, been from time to time earnestly given.

But, after the maturest deliberation, I still feel impressed with the painful conviction that unless I could be placed, with reference to the departments concerned in the change, in a position similar to that which I hold with regard to the Money Order Office, the attempt would not only fail, but might produce a state of serious insubordination.

Your Lordship will bear in mind that the improvement in question involves other changes, some of them of a very complicated nature, and such as could be effected only by a delicate and difficult process; I need not say that where the ramifications are so numerous, it is quite impossible to frame, _in prospectu_, any detailed plan which will not require very much of subsequent modification. The experience derived from each step of the process, will be required to govern the succeeding step. The improvements must be introduced on the tentative principle, and extended or varied, hastened or delayed, according as the peculiar feelings and opinions of parties concerned, or other circumstances, may require. In fine, the management will constantly demand immediate, confidential, and uninterrupted intercourse with those most conversant with details, or on whom the duty of immediate execution will devolve, as well as the exercise of an influence and authority limited only by due subordination to your Lordship.

In the absence of these aids, any attempt to effect the improvement in question would, in my opinion, be most inexpedient.

In the same category with this measure are various others, some of which are of pressing importance, at a time when there is so great a demand on the part of the Government for retrenchment and economy in every department of the public service; and, considering that every delay renders such improvement more and more difficult, I respectfully submit the importance of my being early placed in a position for entering upon them with safety and success.

I trust, my Lord, that in earnestly dwelling on these considerations as affecting the public interest, I advance no improper claim as regards myself. Your Lordship will, I am sure, remember that expectation of such promotion was held out to me, contingent only on my demonstrating that I possess the requisite administrative capabilities, and that one object in placing the Money Order Departments under my immediate direction was to bring these capabilities to the test. With the result of this experiment your Lordship has been pleased to express entire satisfaction, and, combining this testimonial with the repeated expressions of approval with which your Lordship has honoured me during the two years of my service, I trust I am not assuming too much in regarding the conditions as fulfilled.

I am the more strongly impelled to ask for the fulfilment of the contingent expectation, because, in addition to the Treasury's demand and your Lordship's exercise for economy, there is, from time to time, a manifestation of some disappointment in the public mind. It is naturally expected that, under your Lordship's sanction, I should effect the improvements in reference to which my appointment was made. And as the public is far from being fully aware of the difficulties under which I labour, and as I am of course precluded by my position from giving explanations, I am exposed to attacks which I must not repel, and suffer in my reputation, without being conscious of blame.

I have now finished a task which I began with reluctance, and which I feel much relieved to have drawn to a close. A more agreeable duty remains to be performed: it is to express my sincere thanks for the kind support with which your Lordship has been pleased to honour my efforts.

I have, &c., ROWLAND HILL.

The Most Noble The MARQUIS OF CLANRICARDE, &c., &c., &c.

APPENDIX B.

[See p. 105.]

_Further letter to Postmaster-General (Lord Clanricarde)._

Hampstead, August 13th, 1849.

MY DEAR LORD,--Knowing how fully your lordship's time and that of other ministers is occupied during the session of Parliament, I have hitherto refrained from again requesting attention to my letter of January 3rd, but now that a period of comparative leisure has arrived, I feel that I ought no longer to postpone the irksome task.

I have enclosed a copy of the letter for the purpose of inviting a reperusal of it, and I think I may confidently appeal to your Lordship's knowledge of the state of the department for supporting me when I say that the experience of the seven months which have elapsed since that letter was written has strengthened the grounds, both public and private, on which my application was based.

The various interviews with which I have been honoured by your lordship on nice and difficult points, arising in the course of business, would enable me to refer to many cases in which the public service has suffered from the continuance of the existing arrangements, while, though this is doubtless a matter of inferior importance, such arrangements are inconsistent both with my personal comfort and my pecuniary interests.

On these, however, I will not dwell, nor even with respect to the public service will I intrude on your attention as to more than one point out of the many which occupy my thoughts. I refer to the necessity for a general revision of salaries in the metropolitan offices, which after being so long delayed now presses with great urgency. It is due in justice to the clerks that their claims, whether well or ill founded, should be set at rest by adjudication; but; notwithstanding your Lordship's earnest desire that the task should be accomplished, I have, I believe, satisfied you that in my present position it would be unsafe to attempt even those improvements which are necessarily preliminary to the still more difficult task of revising the salaries.

Earnestly begging your Lordship will be pleased to take the necessary steps for effecting a decision on my letter of January 3rd,

I have, &c., &c., ROWLAND HILL.

The Most Noble The MARQUIS OF CLANRICARDE, &c., &c., &c.

APPENDIX C.

[See p. 105.]

_Lord Clanricarde's reply._

Brighton, August 23rd, 1849.

MY DEAR SIR,--I have read your letter reverting to that which you addressed to me on the 3rd of last January with much regret.

I am sorry you consider our existing official arrangements inconsistent with your comfort and your interest. I see no possibility of their being changed at present.

I could not alter them myself, and I could not send forward to the Treasury your letter of the 3rd of January without previously communicating with Colonel Maberly.

I have no reason to believe the Treasury would take at this moment any steps to put you in the position you desire to hold. And my own opinion is that, constituted as the office now is, we can proceed gradually and steadily to carry into effect many improvements which you have suggested or which may hereafter occur to you. You enumerate in your letter of January 3rd several of importance which we have achieved without even temporary inconvenience or failure,--others have been effected since that date, and I have little fear of not being able to have properly executed almost any alteration of the result of which we might be well assured.

I see no reason why you should not complete a scale of salaries for country offices and messengers as soon as the returns you have called for may be perfected, or why such a scale should not be at once adopted, and gradually, and not slowly, enforced. And in like manner, the metropolitan offices might afterwards be dealt with.

With respect to your personal feelings and interests I can of course say nothing. I am only gratified that you should feel satisfied with the support which it has been my duty, and I assure you a sincere pleasure, to me to afford you.

I remain, &c., &c., CLANRICARDE.

R. HILL, Esq., &c., &c., &c.

APPENDIX D.

[See p. 111.]

_Minute on the Sunday Duties of the Post Office._

_To the Postmaster-General._

1. In obedience to your Lordship's instructions, I beg to submit my views as to further measures for reducing the Sunday duties of the Post Office, and as to other improvements connected therewith.

2. The importance of affording to all connected with the Post Office the utmost amount of rest on Sunday that is consistent with a due regard to public convenience having led to measures for the total suspension of money-order business on that day throughout England and Wales, it is very satisfactory to remark, that neither the announcement of the change, nor the experience of it thus far, has brought on the department a single complaint from the public; and I confidently anticipate like satisfactory results should the Treasury concur in your Lordship's recent recommendation of a similar measure in Ireland and Scotland.

3. Your Lordship will recollect that, in considering the above improvement, the importance of a similar relief as respects other duties was kept in mind; and, from the investigations which have been made, there can be no doubt that a further very important relief as relates to Sunday work may be effected in all the provincial offices.

4. The consideration of this question, however, is closely connected with that of a measure mainly relating to public convenience, but which, contrary to first appearances, proves on investigation to have a direct tendency towards the same object of Sunday relief.

5. The transmission of letters through London on the Sunday, your Lordship is aware, has long been a desideratum, having been recommended by the Commissioners of Post Office Inquiry in 1836 (7 Report, p. 9); and by a committee of the House of Commons in 1818 (3 Report, p. x.); and again suggested by several members of a committee of the House of Lords in 1847 (Report of the Select Committee. Ev. 430-445).

6. The obstacles to the adoption of these recommendations were, first, an assumption that it would increase the Sunday work of the department; second, a fear that it would lead to a Sunday delivery in London.

7. Both these apprehensions, as will be shown hereafter, are groundless.

8. Since the time when the above recommendations were made, the importance of the change has greatly increased, the Sunday average letters involved in the consideration having advanced since 1836 from 5000 or 6000 to 50,000 or 60,000, or ten-fold.

9. The importance of the change will be still more manifest on reference to the fact, that this present number of London "forward letters" for a single day much exceeds what was in 1836 the corresponding number for a whole week, for the expediting of which it was determined by Government, on the recommendation of the Commissioners of Post Office Inquiry, to establish day mails at an estimated cost of £15,000 a year (7 Report, pp. 5 and 121).

10. The evil of the present arrangement, already so great, is constantly increasing, partly because of the general increase of letters, but mainly because of the centralising tendency of the railways. The greatly increased speed of conveyance, too, obviously tends to make any detention more severely felt; and the inconvenience is particularly serious when, as occasionally happens, the detention falls on a mail from the East or West Indies.

11. The evil of detention has been found so serious, that in several cases the rule has been evaded, either by making use of other existing channels for the conveyance of the mails sent on ordinary days through London, or by the actual establishment of Sunday cross-posts; either of which arrangements obviously involves increased expense, trouble, liability to error, perplexity to the public, and additional Sunday work. Thus the mail between Winchester and Birmingham is sent on the Sunday through Exeter; and again, the correspondence between the towns served by the North-Eastern Railway and those served by the North-Western Railway is conveyed on a Sunday by a mail-cart, expressly running on that day between Cambridge and Wolverton, through Newport Pagnel, a distance of 47 miles--an arrangement involving an expense of £148 per annum (£98 for the cart and £50 for additional sorting at Newport Pagnel), besides a direct increase in Sunday occupation.

12. Meantime the mail trains, excepting a few of the day mails, run as on other days, and, save as regards London, convey letters as usual. Even to London nearly all letters from Ireland, Scotland, and the out-ports, as also all foreign and colonial letters whatever, are brought, as on other days, the same being partly assorted at the chief office on the Sunday, for delivery or for forwarding, as the case may be, the next morning.

13. For the performance of these duties and for the selection and delivery of the "States" (letters addressed chiefly to the higher offices of Government), twenty-six persons are ordinarily employed at the chief office on Sunday, their time of occupation being, on the average, six hours. The arrival of a heavy mail from abroad requires a greater force.

14. To remove the evils of this weekly suspension of the ordinary transmission through London, and the anomalies arising out of it, and with the view of diminishing the amount of Sunday work in the department as a whole, I propose that the _existing mail trains_ should bring up on the Sunday, in addition to the present bags, the _forward stamped letters_--excluding, however, newspapers, parliamentary proceedings, and all documents not paying the full letter rates. These limitations _will avert, on the one hand, any possibility of a Sunday delivery of letters to the London public_, and, on the other, any unnecessary addition to the Sunday accounts.

15. The restriction to stamped letters may perhaps cause some inconvenience to the public, especially at first, arising out of their difficulty of knowing what correspondence passes through London and what does not; but as it is in contemplation to confine the receipt of money-paid letters to the chief office of each provincial town, and as the deputies can be instructed whenever the want of a stamp would cause the detention of a letter to state as much when it is presented for prepayment (an arrangement which will be facilitated by the comparative leisure of blank post day), it appears to me that the danger of inconvenience to the public will be small, and certainly far less than that which now results from the doubt as to whether even stamped letters posted on blank post day will be detained or not.

16. The inland letters thus brought in, as they would require no accounts either to be examined or made out, would be despatched by the existing day mails in those cases where this would be necessary to secure their earlier delivery on the Monday. All the other letters, whether inland or not, would be sent by the night mails. It is obvious that, under this arrangement, none of the letters in question could be delivered anywhere on the Sunday.

17. I should also strongly advise that in the performance of the above-mentioned duties at the London office no infringement should be allowed on the hours of divine service; the whole interval from ten in the morning till five in the afternoon being left perfectly free; and I should propose to extend this arrangement, as far as practicable, to the existing duties at that office.

18. By availing ourselves of the time now occupied by the clerks of the travelling post office in assorting such of the letters in question as now reach them by the special cross-posts, I am of opinion that a force of twenty-five men, at the expense of £300 per annum, will suffice for the duties now proposed; and when it is considered that in the single anomaly referred to above the plan will effect a saving of £148 a year, it appears highly probable that the total reductions effected by the improvement will fully compensate such additional expense.

19. I should add that, although Mr. Bokenham, whom I have consulted, sees no difficulty as regards the practicability of the general measure, he is of opinion that little aid can be afforded by the clerks of the travelling post office; consequently, though willing to try with twenty-five additional men, his impression is that a somewhat larger number will be necessary.

20. As regards the effect of the proposed change on the amount of Sunday occupation, it is manifest, from what has already been stated, that for the increased force at the chief office there is, to say the least, a large set-off elsewhere. A further examination, however, will put the matter in a light still more satisfactory.

21. It is notorious that a blank post is everywhere preceded and followed by a greater amount of correspondence than usual. Thus, in London, the average number of letters is greater on Saturday by six per cent., and on Monday by 25 per cent., than on other days. But, as respects the correspondence sent through London, Saturday evening is at present in most towns a blank post time. It therefore follows that such correspondence is despatched from the provinces in unusual amount on Saturday morning, and on Sunday morning or evening, according as there may or may not be a Sunday day mail.

22. Now each of these augmentations tends to produce additional Sunday work, both to the department and to the public. For the letters in the first category are for the most part distributed by the Post Office and read by the public on the Sunday, and those in the second are for the most part written by the public and despatched by the office on Sunday.

23. It is obvious therefore that, as far as relates to the letters in question, the proposed change would entirely get rid of Sunday work, as respects the public; while, as respects the department, it would exchange work now dispersed through nearly a thousand offices for concentrated occupation in one--the latter requiring a less proportionate force, and falling on such time as to be dealt with without infringement on the hours of divine service. It is manifest therefore that, as respects general supersession of Sunday work, the balance is in favour of the proposed plan.

24. The advantage, however, by no means rests here. The plan will be an important aid, as will be shown hereafter, to measures for relieving the provincial offices as regards Sunday business in general.

25. As regards the chief office, the force now proposed to be employed on the Sunday would suffice for nearly all the ordinary duties necessarily belonging to that day, and thus it would be possible to defer most of the work now done on the Sunday till after midnight; and thus to avoid any material increase in the Sunday force. This latter change, however, implies the previous consolidation of the inland and district post offices.

26. Nay, were it thought necessary, there are means, arising in part out of the comparative leisure at most country offices on the Saturday, by which Sunday work at the chief office might be reduced considerably below its present amount. As, however, these means involve some complexity, and possibly additional expense, I do not propose them at present. But hereafter, should they prove sufficiently simple to be reduced to practice, and not too expensive for adoption, there can be no doubt that this prevention of the weekly delay or irregularity in the vast correspondence which ordinarily passes through London, so far from involving any increase in the amount of Sunday work, would, independently of its aid to other measures of relief, directly produce a material diminution of the same.

27. I now come to the special question of relief to the provincial offices. The measures in contemplation appear in the following extract from my minute of Dec 6, 1848:--

"That every office in England and Wales be closed for all purposes from ten to five o'clock on the Sunday, except for the receipt and despatch of any mails in the interval; but that a box be left open for the posting of stamped and unpaid letters. Further, that there be only one delivery of letters on that day."

28. This proposal, having been referred by your Lordship to the English surveyors, has met with their unanimous and earnest concurrence. It appears, however, that although the general rule is to have only one delivery on the Sunday, there are several towns in which there are two. The discontinuance of the additional delivery, although, with one doubtful exception, approved of by the surveyors, might, nevertheless, in the absence of other alterations, produce serious complaint from the public: the Sunday transmission of letters through London, however, would, as regards most towns in England and Wales, withdraw so large a proportion of letters from the second delivery (already very light), that the little delay in the delivery of the residuum would be of no moment. Such withdrawal, however, it must be admitted, is, in relation to public convenience, an objection, _pro tanto_, to the plan; but, as the delivery of these letters on the Monday morning would be made conjointly with that of many letters now detained till Monday afternoon, or, in some instances, till the next day, the measure, as a whole, would probably give satisfaction even in the comparatively few towns where the delay would occur. Everywhere else it would certainly be felt as a great boon.

29. This change, therefore, being considered as part of the general measure, I have no hesitation in recommending that (with possibly one or two exceptions, which, if necessary, will be submitted hereafter) the second delivery be abolished throughout England and Wales; Ireland and Scotland being left for after-consideration; and that the plan, as proposed in my minute of December 6th, be now carried into effect. The reports of the surveyors are submitted.

30. It may perhaps assist your Lordship in deciding the important question now submitted, if I briefly recapitulate the results, negative as well as positive, of the whole of the measure.

31. First, It will prevent irregularity or delay (often amounting to twenty-four hours) in the transmission of probably 50,000 letters a week.

32. Second, It will add little or nothing to the expenses of the department.

33. Third, It will cause no increase whatever of mail-trains or other means of transmission, to or from London, on the Sunday.

34. Fourth, It will neither bring in nor take out a single London letter, and therefore cannot cause either a Sunday delivery or a Sunday collection in London.

35. Fifth, While it will not affect the number of Sunday collections elsewhere, it will materially reduce the number of Sunday deliveries.

36. Sixth, While, so far as the public is concerned, it will leave matters precisely as they now stand in London and the vicinity, it will tend greatly to reduce Sunday letter-writing and reading elsewhere.

37. Seventh, It is true that as regards the London Post Office, it will, in the first instance require the attendance of about twenty-five persons on the Sunday, but these will not be allowed in the slightest degree to infringe on the hours of divine service; and I am of opinion that eventually even this limited attendance may be avoided, and the Sunday work in the London office reduced much below its present amount. On the other hand, as regards the provincial offices, it will release a very large body of persons now engaged even during the hours of divine service, and will thus afford to many hundreds, perhaps even to some thousands, needful rest, and the opportunity of attending the services of the day.

38. Should your Lordship approve of these proposals, I submit that the necessary application be made to the Treasury.

39. Some important measures of relief to the rural messengers and rural receivers on the Sunday, which have been suggested by Mr. W. Johnson, will still remain for your Lordship's consideration; but, as they are not essential parts of the main plan, I propose to submit them hereafter in a separate minute.

ROWLAND HILL.

February 3, 1849.

APPENDIX E.

[See p. 126.]

_Letter to Postmaster-General deprecating Compulsory Employment on the Sunday._

(_Private and Confidential._)

General Post Office, October 18th, 1849.

MY DEAR LORD,--I am greatly alarmed at your Lordship's note, and earnestly entreat that you will not authorize Mr. Bokenham to compel the attendance of a single man. During your Lordship's absence in Ireland, the excited state of the public mind made it necessary to take a decided course relative to this matter; and as it was always intended and fully understood by Mr. Bokenham that none but volunteers were to be employed on the Sunday duties, I did not hesitate to contradict the report which had been most unjustly raised to the effect that the men, notwithstanding conscientious objections to the work, were to be forced to engage in it.

The pledge which, under the circumstances, I felt warranted and compelled to give, I trust your Lordship will enable me fully to maintain.

I am still ready to undertake the responsibility of the sorting by volunteers, provided your Lordship will give me the powers which, by your approval of my minute of the 15th inst., were conferred on Mr. Bokenham. I submit, therefore, that there can be no necessity for resorting to any compulsion; and considering the manner in which the public has held me responsible for this measure, I trust I may be permitted to say that, so far as my own feelings are concerned, I would rather abandon the improvement altogether than run the risk of compelling any one to do that to which he has a conscientious objection.

Until I received your Lordship's note I had no conception of any difficulty or hesitation on Mr. Bokenham's part. Mr. Tilley was present when Mr. Bokenham expressed his readiness to undertake the duty on the conditions stated in my minute of the 15th. Mr. Tilley read the minute a few hours later, and confirmed the accuracy of its statements.

I need hardly say that I shall carefully follow the advice with which your Lordship has honoured me; but, as I am most anxious that this matter should be settled without delay, I beg that should you be unable to fulfil your intention of coming to town to-morrow, I may be favoured with immediate instructions to wait upon you at Brighton.

I have, &c. ROWLAND HILL.

The Most Noble the Marquis of CLANRICARDE, &c., &c., &c.

APPENDIX F.

[See p. 134.]

_Anonymous Letter from a Sub-Sorter._

October 11th, 1849.

SIR,--Before taking up too much of your time, it is but fair to state that I shall not conform to the usage of society nor to the regulations of the Post Office. My communication will be anonymous, and, as you perceive, in the handwriting of a female. The dangers which beset the "usual channel," have forced me to take this course in offering an observation or two on the opposition to the extension of Sunday duty. This opposition in the office is not really against the duty, but is a strong attempt to level the author of Penny Postage, and was originated in Mr. ----'s room! The Clerks received the cue, and artfully led the Subsorters, Letter-carriers, and Messengers to believe that the duty was to be performed without pay. The Inspector of Letter-carriers lent assistance by expressing a determination to resign if the order came into operation. Old tales of cutting down of salaries on railway lines were revived, and anecdotes manufactured telling of meanness in private matters. The men saw what was expected from them, and were soon employed on their walks in announcing their doleful prospects and looking up mawworms to protest against such a prophane decree. Of the success of this plan out of doors, Sir, you are aware. In the office, the pretensions to piety are quite sickening. Fellows who have broken nearly every commandment are now fearful of causing ever so slight a flaw on the fourth. Still, there are plenty of men willing and able to carry out your object if certain of protection. That this is wanted, the following instance will show. The first man who made application for the Sunday duty was told it must be in writing. Before, however, he could put the few words required to paper, it was known all over the office. A system of annoyance was commenced, strong enough to deter him from proceeding further in the matter. He was hooted at inside the building and insulted in the street.

Last night a report was in circulation that the morning despatch had been abandoned from the difficulty of obtaining hands. I hope, Sir, that this will not be the case with the evening duty, but that you will persist in the determination to benefit the public, in spite of in door opposition and out-of-door twaddle. Never mind if every letter is not got off on the first attempt--it will soon improve. Give the clerks an intimation that if they refuse this modification, it will be offered to the Subsorters on the same terms. They are afraid of us now. Educated in a better school--the Newspaper Office--for becoming officially dexterous, we could beat them at their own duties, and not one of them could accept a challenge to play the return match at those which we perform.

I will not trespass longer on your patience than to state that the hostility, portrayed by Mr. M. D. Hill in 1839 as likely to exist, is now in full vigour. In the ten years which have elapsed since then, they have not become reconciled to the name of Rowland Hill, but hate it worse than ever. The soothing system is of no use. A stronger motive in future must rule the Inland Office.

I am Sir, most respectfully, My poverty and not my will consenting to the omission of my name,

A SUBSORTER.

APPENDIX G.

[See p. 164.]

_Letter to Mr. Warburton._

Hampstead, November 16th, 1850.

MY DEAR SIR,--As you have kindly undertaken to see the Chancellor of the Exchequer on my behalf, I beg to trouble you with a brief recapitulation of the case.

You will recollect that in my late correspondence with the Postmaster-General I took the liberty to remind his Lordship of the promise under which I was induced to accept my present post, of the serious obstacles to improvements as well as of the great danger of insubordination in the office arising from my present anomalous position, and of the acknowledged fulfilment of the only condition on which my promotion was to depend.

It is now four years since the promise was made--two years have elapsed since I first claimed its performance; and though no objection is raised to the justness of the claim, no steps have been taken towards its practical acknowledgment. Additional circumstances, which I shall shortly state, now compel me to press for an immediate change.

According to present arrangements, Colonel Maberly has a staff of about fifty clerks, formed into departments, each department having a head, familiar with all the details thereof, and capable, under instructions, of preparing nearly all the necessary minutes, thus relieving Colonel Maberly himself of what would otherwise be an insupportable amount of drudgery. As regards the Money Order Department, I am similarly circumstanced; but for the transaction of general business, though I believe most of the difficult cases, particularly the obnoxious ones, devolve upon me, my whole staff consists of but three clerks, at comparatively low salaries. Nor could I be supplied with an efficient corps, save at the unwarrantable expense of several thousands a year--_i.e._, an amount making some approach to the actual cost of Colonel Maberly's staff.

Neither would it avail to withhold the above cases from me, as all are more or less connected with those improvements which it is my especial duty to effect and maintain.

Viewing my position as temporary, I have endeavoured to meet the exigence by great personal exertion, and by obtaining competent assistance at my own cost, in which latter course, limited and imperfect as any such arrangements must necessarily be, I have already expended several hundred pounds.

Still I am obliged to investigate each case myself, and substantially to prepare the necessary minutes; and when, in addition to all this, it is considered that from the first I have rarely had less than five or six important and difficult improvements in hand at once, I scarcely need assure you that the labour has been very severe. Indeed it has proved quite too much for my health, and, according to the opinion of my medical attendant (Mr. Hodgson) it has induced a disorder, which, though yet but incipient, threatens the most serious consequences, unless promptly and effectually checked.

Effectual rest, the remedy prescribed, however, is incompatible with my present position. For though the Postmaster-General has most kindly acceded to every request I have made for leave of absence, yet, seeing that I have no assistant capable of undertaking my duties (as is done for Colonel Maberly by the assistant-secretary) any partial rest thus obtained entails a serious accumulation of work at its close. These are the considerations which oblige me to press for immediate change, though independently of them, and even of the promise adverted to above, I trust a consideration of what has been effected during the last four years will show my claim to be well founded.

To pass over numerous improvements, many of which have failed to excite attention, not so much from any want of importance, as from their smoothness in operation (the only case of trouble being the recent improvement in the Sunday duties, when a temporary outcry arose from a cabal within the office), I may particularise the reform of the Money Order Department, the only department consigned to my charge, a reform by which, with increased convenience to the public, increased accuracy in the accounts, better pay, and more relaxation to the clerks, a saving has been effected, already amounting, all things duly considered, to a total of about £37,000, and which is now going on at the rate probably of about £13,000 a year, with a clear prospect of increase.

This, however, constitutes but a small portion of what, even with the very limited means at my command, I have been able to save positively or negatively in the Post Office generally.

In addition to the injury to health involved in the labour by which these improvements have been achieved, I have had to submit to a sacrifice of income. Mine is, I believe, the only important office in the whole department with no scale of increase of salary; but for the special limitation which my promised promotion would remove, I should be now in the receipt of £1,500 a year--that is £400 a year less than Colonel Maberly had during his first five years of office, and £500 a year less than he has at present.

If Government is still of opinion that it cannot immediately fulfil its promise, I beg that you will urge my claim at least so far as to press that a period may now be fixed beyond which the complete performance of the promise shall not be delayed; and that, seeing the impossibility of continuing the present state of things, arrangements be at once made for the nearest approximation to such performance that may be deemed practicable.

I remain, My dear Sir, Yours faithfully, ROWLAND HILL.

P.S.--I have enclosed a copy of a letter with which you favoured me on the 27th of November, 1846, and which bears strongly on the case.

HENRY WARBURTON, Esq.

APPENDIX H.

[See p. 215.]

_Letter to Postmaster-General (Lord Canning)._

General Post Office, 18th June, 1853.

MY DEAR LORD,--As your Lordship is already acquainted with many of the statements I am about to make, you will at once perceive that in writing at such length my view is in accordance with your understood wish so to prepare the case for the Chancellor of the Exchequer as to supersede the necessity of reference to former correspondence on the subject.

In September 1842, in the midst of what the Treasury was pleased to consider an able discharge of duties connected with the institution of my system of Penny Postage, I learnt that my services were no longer required, and I spent the next four years in private life, except so much of the year 1843 as was occupied in preparing and laying before a committee of the House of Commons a full exposition of the operation of the Post Office as then conducted, in the course of which I demonstrated that the existing system of management, besides depriving the public of many reasonable facilities, involved an enormous loss of revenue.

In December, 1846, my friend Mr. Warburton intimated to me the desire of Her Majesty's Government again to employ me in developing and perfecting my plans, and that they were prepared to offer me a permanent engagement at the Post Office.

Although I was then engaged in avocations more highly remunerative than the proffered appointment, I at once avowed myself ready to accept it if I could be assured of sufficient authority to secure the success of my measures--a stipulation which, while reasonable under any circumstances, was rendered imperative by my former experience of the obstructions and injury that improvements were exposed to in consequence of the state of feeling which prevailed at the Post Office.

I was given to understand that I might count on the support of the Postmaster-General and the Chancellor of the Exchequer; and that if I showed that I possessed the requisite administrative powers, (the subsequent full acknowledgment of which happily relieves me from the necessity of entering on that part of the subject) I might look forward to be promoted at no distant period to a position of higher authority, which was understood at the time and subsequently admitted to mean the post of sole secretary.

Without for a single moment doubting the sincerity with which these promises were made, I nevertheless, after much anxious deliberation, arrived at the conclusion that they were not sufficiently explicit to justify me in placing myself in a position so liable to failure, which in the public mind would naturally be attributed to defects in the system itself, or to mismanagement on my part, rather than to opposing influences which could not be generally known.

My prospects of effecting improvements under the discouraging circumstances in which I knew I should be placed did not seem clear enough to justify me in incurring the risk of becoming myself an instrument for destroying that universal reliance on the soundness of my project, which I felt to be my surest means of obtaining ultimate success.

But I was in the hands of my friends, and I shall not be censured for deferring to the opinion of such men as Mr. Warburton, Lord Overstone, Mr. Hawes, and Mr. Raikes Currie.

I consequently entered on my present office, and have now served under three Postmasters-General; and I gladly avail myself of this opportunity to express my deep sense of the kindness and confidence with which I have been treated, and my full recognition of the efforts made from time to time, with more or less of success, to remove impediments and to give freer scope to my exertions; but the evils which I foresaw and which have come upon me in full measure are beyond the reach of palliatives. The system on which we are proceeding is radically bad, and stands scarcely more strongly condemned by myself than by my colleague Colonel Maberly.

Though possessed of secretarial authority, I am, if I may so express myself, a general almost without an army--when I entered the office I found, of course, the clerks regarding the senior secretary as having the first if not the only claim on their services; and without desiring for a moment to reflect on them or on any one else, I become every day more convinced that without harmonious views, a joint jurisdiction, even supposing equality to be fully and practically admitted, is utterly incompatible with the requirements of the office.

Looking then back upon the events of the six years during which my promised promotion has been delayed, I feel bound to state that if in December, 1846, I could have foreseen what has occurred I could not have accepted the offer then made, nor do I believe that, under like circumstances, my friends would have advised me to the step.

That much has been done is, of course, not to be denied by me; but it has been accomplished amidst sore trials, and with risks to health which my duty to my family would not have allowed me to incur.

Let me then stand acquitted before your Lordship and the Chancellor of the Exchequer of either impatience or presumption, when I urge in the strongest manner, consistent with the respect which I owe to my superiors, my claim to the prompt fulfilment of the understanding on which alone I consented to take my seat at the Post Office.

As every statement like that which I am called upon by your Lordship to make is, of necessity, tinctured with egotism, I gladly quit that part of the task which relates to my own personal interests, and proceed to show that the change which I claim is equally demanded by the public service.

In 1847 I was directed by the Postmaster-General to report on the state of the Money Order Office, which resulted in my recommending several large retrenchments and other improvements, which were adopted by his Lordship and the Treasury, but which Colonel Maberly declined to take the responsibility of carrying into effect; in consequence of which the secretarial authority of that Department was consigned to me alone.

By a report of Mr. Barth, the head of the Department, which I called for soon afterwards, it appears that the accounts were then so deeply in arrear that great doubt was entertained whether they ever could be made complete, and the expense of their completion, supposing it to be possible, was estimated at £10,000. No general balance had ever been struck since the institution of the Department in 1839, and the liabilities were of unknown amount.

To avoid the great expense of bringing up the arrears, and to insure the extinction of unknown liabilities, it was found necessary to obtain an Act of Parliament calling in the outstanding Money Orders. Concurrent efforts were made to bring up the more recent arrears, and to prevent the possibility of new ones arising. And eventually the liabilities of the department were ascertained, and a general balance was struck, which has since been repeated quarterly.

On a full investigation of the accounts I found that the Department was not only, as I had anticipated, unprofitable, but involved an annual loss of no less than £10,000.

I, however, found it practicable to introduce, by successive improvements, such simplification in the arrangements as, with increased convenience to the public, and increased accuracy in the accounts, with better pay and more relaxation to the clerks, to convert this loss into a gain, which amounted for the year 1850 to £3,236, and which, under my brother, Mr. Frederic Hill, who has subsequently carried on the Department in the same spirit of improvement, amounted last year to £11,664, making an effective saving within five years of upwards of £21,000 per annum.

As regards the Post Office generally, the amount of saving which may still be effected is a matter of so much uncertainty, that I hesitate to offer any estimate. I can only say that it may be assumed, as I think it may, that every Department of the service can be gradually improved to the same extent as the Money Order Office (the only one which has been confided entirely to my care), it follows that in the course of a few years, not only may the public be better served, and the men, if necessary, better paid, but savings may be effected to an extent of about £200,000 a year, in addition to the saving of £100,000 a year, which, if required, I should be prepared to show has already been made.

But of late a new motive has arisen for the proposed change. The augmentation of letters is not only in constant progress, but has for some time moved forward with increasing celerity. Without some change, no doubt is entertained in the office, that the present building will soon be not only too small for the transaction of the business, but so much too small, as that no increase of its limits by practicable additions will answer the requirements of the service; and consequently that a most expensive outlay--probably not less than half a million--will be required for a new Post Office.

If placed, however, in the position contemplated, I shall be enabled, as I confidently expect, to make, under your Lordship's sanction, such improvements as will avert this impending necessity for years, if not remove it altogether.

The result of my experiments in the Money Order Office has been to show the great power which the simplification of arrangements has in lessening the quantity of labour, and, as a consequence, the quantity of space required for its performance.

When, five years ago, I took the secretarial control of the Money Order department, the building appropriated thereto was fully occupied, and negotiations were in progress for purchasing land to extend the accommodations. At present, notwithstanding an increase of business to the amount of one-third, there is such ample room that no extension is likely to be required for many years to come.

My knowledge of the other departments of the Post Office enables me to state, with some confidence, my opinion, that similar improvements may be extended to those also, and with the like beneficial results. At the present time, a postponement of building, though but for a few years, is of great importance. Several projects for bringing railways into the heart of the metropolis, so as to make them available for mere local transit, are on foot. And from some years' experience, first as a director and afterwards as chairman, of the Brighton Railway Company, I feel justified in predicting that in some shape or other, some such project will be realized: I also foresee that such change must produce results in which both the Post Office authorities and the proprietors of the railways will have a common interest, and from overtures which have been made to the Department by some of the projectors, I think it highly probable, that whatever changes in the Post Office may be thereby rendered necessary or desirable, will not have to be made altogether, perhaps not mainly, at the cost of Government.

But however this may be, it can scarcely be doubted that the effect of such railways must be to reduce the value of any outlay made irrespective of this disturbance in the present system of Metropolitan communication, since it is hardly possible that any buildings that might now be put up would be found adapted, either in position or arrangement, to the altered state of things.

Having now concluded the financial part of the subject, I beg your Lordship's attention to the new sources of anxiety which have been opened, and to the possibility of allaying that anxiety by substituting a unity of executive power for its present divided state.

The vast increase which has taken place of late years in the facilities for locomotion and the conveyance of merchandise, has led to a wide-spread desire--I might almost say a clamorous demand--for further facilities in the transmission of letters. On some points this is the result of ignorance as to what is practicable or even possible, while on others it relates to changes which I have long had in view, but which, under present impediments, I cannot undertake.

The experience of the last thirteen years has satisfied me, that if our Post Office is to retain its present position, and to remain the model for those of other nations, and still more if it is to attain that high perfection to which your Lordship's enlightened and vigorous administration seems to open the way, we must not only continue in the course of improvement, but increase our speed. I do not allude to reduction of rates; but to what, in the present cheapness of postage, the public mind is much more intent upon, viz., frequency, celerity, and exact regularity in transmission and delivery. Inconveniences which, while the whole system of commercial intercourse was characterised by dearness, infrequency, and slowness, attracted but little attention, now rise to importance in the eyes of the sufferer by the effect of comparison, and remedy is demanded with a promptitude quite unheard of in former times, and which is unattainable without energetic and cordial co-operation in the higher departments of the executive, and ready obedience and zealous activity in all the subordinates.

Having written thus far, and having also carefully considered every statement and every remark I have made, I feel it my duty to say, that after all the deliberation required by so grave a question, I have arrived at the settled conviction that the existing state of things cannot continue; and I therefore respectfully request that, in considering the present application, such continuance may not be regarded as a possible alternative.

I am sure your Lordship will believe me incapable of dealing lightly with that connection with the Post Office on which I set so great and just a value. To devise and bring into operation, so far as it has been effected, my system of Penny Postage, has been the cherished object of the best years of my life, interest in its progress, whether I am an instrument or not in promoting it, will ever retain the firmest hold on my mind, and would suffice to keep me in any course, but one which I feel to be inconsistent alike with my private and my public duty.[256]

* * * * *

The Right Hon. VISCOUNT CANNING, &c., &c., &c.

APPENDIX I.

[See p. 238.]

_Memorandum by Sir Rowland Hill on the Net Revenue of the Post Office._

Much difference of opinion has arisen as to the amount of net revenue or profit of the Post Office department, _i.e._, the excess of receipt above expenditure; some estimating it at upwards of £1,500,000 per annum, others affirming that it is really less than £400,000.

This difference of opinion appears to arise from different views being entertained on the two following points:--

1. As to whether certain items should be included in the receipt.

2. As to whether certain other items should be included in the expenditure.

I may premise, that the subject of net revenue has to be viewed in two aspects. First, as to its absolute amount, and, secondly, as to its comparative amount when contrasted with the net revenue obtained before the establishment of Penny Postage. I propose, therefore, to consider the question from both points of view.

First.--As to the absolute amount of net revenue.

_Under the head of receipt_, the items regarding which there is a difference of opinion are:--

(_a._) The postage of the Government correspondence.

(_b._) The proceeds of the impressed stamps on newspapers.

(_a._) The postage of the Government correspondence is included in the ordinary amount of gross receipt, but it is contended by some that it ought to be excluded.

The amount of Government postage is, on the average, about £150,000 per annum.[257] Of which that of the Post Office itself is about 40,000 " -------- Leaving for the other Departments abou £110,000 "

The postage of the Post Office itself cannot affect the Net Revenue, seeing that it is included in the expenditure as well as in the gross receipt. It may, therefore, be left out of consideration.

As regards the correspondence of the other Government departments, if it were right to deduct the postage of it from the revenue of the Post Office, it is obvious that it would also be right to deduct the cost of its conveyance and delivery from the expenditure of the Post Office. The net revenue would therefore be reduced, not by the full sum of £110,000 above mentioned, but by that amount less the cost of conveyance and delivery; in other words, by the profit the Post Office obtains on the official correspondence. It is to be borne in mind, however, that official postage is, in nearly all cases, charged by weighing the letters not individually, but in the gross; a mode of procedure which, if applied to private correspondence, would reduce the rate of charge for such correspondence by about one-half; and although, owing to the greater average weight of official letters, the reduction of charge is not so great as one-half, it may be doubted whether the remaining charge be sufficient to leave any profit to the Post Office, so that, whether the amount received and the cost incurred for the conveyance and delivery of official correspondence be, or be not, included in the calculation, the net revenue of the Post Office could be but very slightly affected. It may be added that the postage charged against the various Government departments is actually paid into the coffers of the Post Office, and is not merely a statistical record.

(_b._) The proceeds of the impressed stamp on newspapers is an item regarding which the claim of the Post Office to include it in the receipts is sufficiently established by reference to the fact that, though this part of the revenue is collected by another department, the sole purpose for which the stamp is now resorted to is to obtain for the newspaper the advantage of postal transmission. At the same time, it may be added, that the proceeds in question, amounting for the year 1861, to £134,571,[258] are by no means a remuneration for the service performed. Divided by the number of such newspapers conveyed (viz., about 41 millions),[259] this amount gives only four-fifths of a penny per paper; so that, as newspapers weigh on the average 2-1/2 ozs. each,[260] the rate of charge for a newspaper is less than one-seventh of that for a letter of the same weight.

An argument in favour of the sufficiency, and even more than sufficiency, of the postage on newspapers to defray their postal expense, has been drawn from the fact that the railway companies actually convey them at a lower rate. But two important circumstances have to be borne in mind, 1st, that railway companies, instead of delivering the newspapers individually, merely hand them in bulk to the newspaper agents; and 2ndly, that the companies make little or no provision for conveyance to villages and hamlets, thus performing only the least expensive portion of the service, and leaving the more costly work to the Post Office.

After what has been said, it must be obvious, that even when newspapers are prepaid with a postage stamp (the charge being thereby raised to a penny for each transmission[261]), the payment is too low to be remunerative. Moreover, the privilege accorded to news papers indirectly forces another loss on the department, since the difficulty of discriminating between newspapers and other printed matter has, in fact, compelled a reduction of the book postage to the same rate. So that, whereas formerly no book-parcel was carried for less than sixpence, the charge on light book-parcels is now as low as a penny. Instead, therefore, of any part of the receipts from newspapers being withheld from the Post Office, as it is alleged ought to be done, an equitable adjustment would have the effect of placing to the credit of the department something additional for the unprofitable service thus thrown upon it.

_Under the head of expenditure_, the only material item regarding which a difference of view prevails, is the expense of the packet service, which expense, it is maintained by some, should be charged to the Post Office.

The claim that the Post Office should be charged with the _whole_ expense must be considered as barred by the simple fact, that few of the mail-packets were established either by the Post Office, or for merely postal purposes, their expense being far beyond what such requirements could justify. "To assume that those packets were really established for Post Office purposes is to charge the Government with the most absurd extravagance. The West India packets, for instance, were established at a cost of £240,000 per annum, though the utmost return that was expected from letters was £40,000, leaving the £200,000 a clear deficit.

"Nor is this comparative uselessness for Post Office purposes confined to the packets to remote places; the great cost, even of the home packets, results from causes independent of the Post Office."[262]

Indeed, as was stated in the House of Lords by Lord Monteagle, who, when Chancellor of the Exchequer, arranged the first contracts for the mail steamers, "the expense of the packet service, which was said to swallow up the whole of the revenue now derived from the Post Office, had no more to do with the Penny Postage than the expense of the war in Afghanistan or China. It was as distinct from the Post Office as the expense of the army or navy. The great packet communication between Great Britain and the British North American Colonies was undertaken upon much higher principles than any connected with mere consideration of revenue. It was felt by the Government of Lord Melbourne that it was not wise to allow the only rapid mode of communication between the British possessions in North America and the mother country to be dependent upon the means afforded by the United States. Means were accordingly taken to establish a line of communication of our own. He admitted that this was not done, except at a very heavy expense; but it was not right to place that expense to the account of the Post Office."[263]

Still, it is obvious that, as these packets do postal work, some portion of their expense ought to be charged to the Post Office, and the question of _amount_ is what has really to be determined.

Upon this question it is necessary to explain that, upon a suggestion from the Treasury, viz., that the amount should be "measured in each case by the amount of ocean postage received,"[264] the following is the rule observed:--

Whenever the amount of ocean postage is below the cost of the line of packets by which the service is performed, the Post Office debits itself, for packet service, with a charge just equal to the ocean postage received. In the only two lines of packets (viz., those between England and France, and England and Belgium), in which the ocean postage exceeds the cost, the department debits itself with the whole expense of the packet service.

Whatever may be thought of this arrangement, it will scarcely be maintained that it is too favourable to the Post Office, which, save in respect of the two packet services just mentioned (which now jointly yield a surplus of about £56,000 per annum), is debited with an amount equal to its whole receipts (viz., £470,000), without even any allowance for the expense it incurs in that portion of the packet administration which is necessarily carried on within the department.

The Eighth Annual Report of the Postmaster-General[265] contains an estimate of the net revenue of the Post Office for the year 1861, prepared on the principles laid down in the foregoing remarks, but including some less important adjustments shown in the document itself.

The net revenue thus determined is £1,161,985, the whole, save the £56,000 mentioned above, and about £30,000 derived from money-order transactions, being the produce of inland postage, which thus yields a net revenue of about £1,076,000.

Second. I now proceed to consider the question of net revenue as to its _comparative_ amount, when contrasted with the net revenue obtained before the establishment of Penny Postage, the object being to ascertain the loss consequent on the reduction of the rate. When proposing Penny Postage, I estimated this loss (under different circumstances, however,) at about £300,000.[266]

The amount of net revenue in the year 1838, the last year throughout which the old rates were maintained, was, according to the mode of account then in use, £1,659,510.[267] For the purpose of comparison, it is obvious that a similar mode of account must be applied to the present state of things.

Bearing this in mind, we have now once more to consider the two points affecting receipt, viz., the postage of the Government correspondence, and the proceeds of the impressed stamps on newspapers, and the one point affecting expenditure, viz., the expense of the packet service.

_As regards the Government correspondence._

It is alleged that, under the old system, this was carried free. Now the fact is, that under that system the departments of probably the largest correspondence, viz., the Customs, the Excise, and the Stamps and Taxes, paid the postage of all their letters, while some other departments, though less strictly dealt with, paid at least for their foreign correspondence. The aggregate of such payments amounted, on the average, to about £45,000 per annum.[268]

Now, seeing that, since the adoption of Penny Postage, the non-official correspondence has increased nearly eight-fold, it may well be doubted whether, had the old system continued, the official correspondence would not have so increased as to raise the expenditure from £45,000 per annum to at least equality with the £110,000, the present average.[269]

_As regards Newspapers._

As, under the old system, the proceeds of the impressed stamp did not enter into the accounts of the Post Office, so, for the purpose of comparison, they must be excluded now; the only question, therefore, is, whether the Post Office should now be credited with the revenue derived from the adhesive stamp as applied to newspapers. This claim has been contested on the ground that, as under the old system newspapers were carried free, so the same service should be reckoned as performed now on the same terms; and it has been naturally supposed that the effect of recent changes has been to reduce the number of newspapers transmitted under the impressed stamp, the decrease being counterbalanced by the use of the adhesive stamp for which, therefore, in the comparison, no claim should be made.

Now, the fact is that, notwithstanding the option now given, the number of newspapers freed by the impressed stamp at the present time is not only as great as the number so conveyed in 1838, but is even somewhat larger; whilst a considerable increase has also taken place in the weight and bulk of the individual papers; so that the amount of gratuitous service, instead of being diminished, has been largely increased, and consequently, the sum derived from the adhesive stamp is, to say the least, a mere payment for additional duty.

Again, it is a mistake to suppose that, under the old system, the conveyance of newspapers was altogether free. In fact, there were numerous and important exceptions, since the impressed stamp, to which all newspapers were then subjected, freed the paper only when transmitted from one post-town to another; moreover, in nearly every town there were extensive districts beyond the free-delivery, in which not only letters, but newspapers, were subjected to an additional charge. From this charge both are now relieved. Again, in addition to the towns that were then post-towns, there are at present more than 10,000 places having sub-offices. Before the introduction of Penny Postage, a newspaper transmitted by post between a post-town and, with few exceptions, any of the 10,000 places which have now sub-offices, was subjected to a charge of at least one penny; and when transmitted between any two of the above 10,000 places, with but few exceptions, to a charge of at least twopence.

At present a newspaper, even without the impressed stamp, if posted at any one of the 11,400 places at which head or sub-offices are now established, provided only that it does not exceed 4 ozs. in weight, is delivered at any other for a single penny.

No doubt, the number of newspapers directly charged with postage is larger now than under the old system; but as the charge is far from being remunerative, this is anything but a gain to the department.

_As regards the expense of the Packet Service._

For the year 1838, the last year, as has been said, throughout which the old rates were maintained, the Post Office accounts, excepting a trifling amount of arrears, contain no charge for packet service, that service having been transferred from the Post Office to the Admiralty, partly in 1823, and the remainder in 1837,[270] so that, for the purpose of comparison, such charge must of course be excluded from the present account.

In the Postmaster-General's Report for 1861 is a table (p. 31) prepared with a view to a comparison such as that now under consideration. It is proper to state, however, that a certain change of circumstances has led to a corresponding change in the mode of presenting the account. Formerly, when the year's disbursements were almost identical with its liabilities, their unmodified appearance in the account was sufficient for practical purposes; but, of late years, when, owing to unavoidable irregularities in the large payments made to railway companies, the disbursements and liabilities have often been largely at variance, the latter have been presented in the account in preference to the former, as obviously affording better means for determining the net revenue of the year.

The amount arrived at by this mode of proceeding is £1,525,311, or £134,199 less than the net revenue of 1838.

It may, perhaps, be objected to the above comparison, that the revenue derived from the packets is greater now than heretofore, and that equity requires a corresponding adjustment of the account. There can be no doubt that the revenue in question has considerably increased, although such increase is not wholly attributable to the improvements in the packet service. If, however, the adjustment thus called for should be made, equity would require corresponding adjustments on other points. Thus, allowance would have to be made, 1st, for a considerable amount of net revenue formerly accruing from various colonial post offices, as, for instance, those of British North America and the West Indies, which have recently been made independent. 2nd, for the great increase in the expense of conveying the mails, which increase, contrary to all that might have been expected, has arisen from the establishment and extension of the railway system. And, 3rd, for the additional expenditure caused by a general increase of salary and by a reduction of individual labour, both made to remedy admitted evils under the old system. It would, indeed, be very difficult, if not wholly impracticable, now to ascertain the result of all these adjustments; but it may safely be maintained that it would leave the account at least as favourable to the Post Office as at present.

ROWLAND HILL.

December 18, 1862.

APPENDIX J.

[See p. 279.]

_Conveyance of Mails by Railway. Memorandum thereon._

As doubts appear to exist as to the expediency of proceeding with the proposed Railway Bill, at least in the present comprehensive form, I have been induced to consider whether the object in view may not be attained by other means; and I am inclined to think that this may be done not only without the opposition, but even with the cordial co-operation of the railway companies; and that, concurrent with this, an important saving of revenue may be effected.

The means which I would suggest are that the Exchequer Loan Commissioners be authorised and required to advance loans, within certain limits, to such railway companies as can give ample security, on the following conditions:--

1st. The amount of loan in each case to be proportionate to the postal service performed by the company. If thought necessary it might also be limited to a certain percentage on the sum which the company is legally empowered to borrow.

2nd. The rate of interest to be the market rate at the time as determined by the terms on which the Government may actually raise the necessary loan. At the present time this would probably be about three and a quarter per cent.

3rd. The company to engage to carry the mails according to a fixed tariff of rates to be framed beforehand by the Post Office. Such tariff to include all possible varieties of service, whether by trains "under notice," or otherwise; and the rates to be calculated so as, under ordinary circumstances, to afford the companies a small profit.

4th. All the existing powers of the Postmaster-General to be maintained, and some additional powers to be secured, _e.g._, the right to demand trains exclusively devoted to the mail service. The right to levy certain fines for irregularity on condition of paying certain premiums for punctuality. The right to erect the apparatus for the exchange of bags.

5th. The engagement to be for three years certain, terminable afterwards by either party on twelve months' notice.

The following table exhibits the amount of debentures issued by the several companies enumerated, and the average rates of interest on such debentures, as shown by the last published accounts.[271] It also exhibits the sum which each company would save if the _whole_ of their loans were raised at three and a quarter per cent., and the amount, according to the latest award, payable by the Post Office for postal service. A comparison of the two last items shows that if the Government advanced the whole of the loans, the companies in question would be considerable gainers, even though they carried the mails for nothing. Such an arrangement, however, is not contemplated, and the comparison is made merely with a view of showing the capabilities of the plan.

The companies have been selected, not with a view of exhibiting the results in a favourable light, but simply because they have a large postal service.

---------------------------------------------------------------------------- Railway Company. |Total amount|Average |Saving of the | Amount annually |of Debenture|rate of | Companies | payable by the | Loans. |Interest.| by | Post Office for | | | paying only | Conveyance of | | |3-1/4 per cent.| the Mails under | | | |the latest awards | | | | or agreements. ------------------+------------+---------+---------------+------------------ | £ |Per Cent.| £ | £ Caledonian | 2,262,426 | 4.5 | 28,280 | 23,710 Great Western | 10,083,710 | 4.57 | 133,104 | 18,252 London and North-}| 10,975,589 | 4.3 | 115,243 | 56,500 Western }| | | | London and South-}| 2,400,416 | 4.31 | 25,444 | 14,780 Western }| | | | Midland | 4,151,556 | 4.28 | 42,761 | 23,412 North-Eastern | 6,833,642 | 4.36 | 75,853 | 34,380 South-Eastern | 2,709,468 | 4.61 | 36,848 | 14,624 ----------------------------------------------------------------------------

The annual payments for the railway postal service amount to about £400,000. The general adoption of the above plan would (the service remaining the same) reduce this amount probably to about £150,000. To obtain the concurrence of the companies it would be necessary, probably, for the Government to advance gradually, as the existing bonds fall due, about £30,000,000 in the aggregate, or rather less than two-fifths of the present amount of railway debentures. This advance, taking the saving of the companies at only one per cent. on the average, would reduce their expenses by £300,000. And as their receipts from the Post Office would be reduced, say by £250,000, the balance would give a direct gain to the companies of £50,000 per annum. But I am assured by gentlemen well informed on the subject, that the companies would also be benefited indirectly as regards the terms on which they would be enabled to raise the remainder of their loans.

The question naturally arises, why, seeing that a larger advance (say of £45,000,000 instead of £30,000,000) would probably suffice to relieve the Post Office of _all_ payments for railway service, I have not proposed the larger amount? The reason is that I have not felt justified in asking Government to do more than is necessary to supply the defects of early legislation, by placing the Post Office in a position similar to that in which it would probably have stood, had its interests (and through it those of the public) received due attention from the legislature when railways were first established. It is unnecessary to add that, should Government feel disposed to extend the advances to railways beyond the limit I have proposed, the saving which would result from such extension might go to the further relief of the Post Office, or be carried direct to the credit of the general revenue of the state, as Government might determine. In arriving at this conclusion, I have not overlooked the importance of neutralising the unwillingness sometimes manifested by the companies now under agreement with the Post Office to afford additional service without additional pay. Against this inconvenience I consider the Post Office may be tolerably well secured by making the agreement terminable by the Government, without notice, in the event of the conditions not being fully performed by the company.

I may add that advances, such as those now suggested (except that they were unfortunately unaccompanied by any stipulations as to the postal service), have already been made to several of the Irish railway companies.

Should the above plan be adopted by Government, I have little doubt that almost every railway company would speedily avail itself of the advantages it affords; and, if so, while both parties would be saved the trouble, expense, delay, and uncertainty of arbitrations, the Postmaster-General would be enabled, more effectually even than by the proposed bill, to grant many important postal facilities earnestly desired by the public, which he is now obliged to withhold, a most acceptable boon would be conferred on the railway companies, and a large saving--estimated above at £250,000 a year--would be effected in the Post Office expenditure.

R. H.

6th January, 1857.

APPENDIX K.

[See p. 291.]

_Minute relative to Panama Route to Australia._

_The Postmaster-General._

1. In my minute of the 15th instant, on the subject of the Treasury Minute of the 11th (referred to your Lordship for report), I recommended that the consideration of that part of the Treasury Minute which relates to an additional postal service to Australia, by way of Panama, should be postponed, in order to admit of the immediate call for tenders for the continuance of the service by way of Suez.

2. Your Lordship and the Treasury having been pleased to adopt this recommendation, and the advertisements for tenders for the latter service having been issued, I now beg to submit my views on the proposed additional monthly service by way of Panama.

3. The question is divisible under two heads--

1st. Whether it is necessary that the postal communication with Australia should be more frequent than at present, viz., once a month? and

2nd. If so, is the Panama route the best for the additional mails?

4. As regards the first of these questions, I need not remind your Lordship that the sea postage of all the correspondence with the Australian colonies, including New Zealand, falls very far short of the cost of even a single line of packets. Such cost under the late contract having been £185,000 a year, while the total sea postage cannot be estimated at more than about £50,000 a year.

5. Having regard to the enormous additional loss which would result from the establishment of a second line of packets, and bearing in mind that the dissatisfaction so strongly felt, both here and in Australia, is not as to the infrequency of communication so much as to its irregularity, I am of opinion that the wishes of the public, whether at home or in the colonies, would be more effectually met by doing all that is practicable to improve the existing monthly service than by doubling the frequency of communication.

6. As regards the second question, viz., as to the best route for the additional line of packets (should Government decide to establish one), the points for consideration appear to be mainly as to the ports to which the distances shall be reckoned, and the comparative length of route.

7. The advocates of the Panama route generally select Sydney as the right port; but this is manifestly unfair, inasmuch as, while by the Panama route it is the nearest of the continental Australian ports, by the Suez route it is the most distant. Neither can this port claim preference by amount of correspondence, since the enclosed statement of the correspondence between this country and the several Australian colonies, including New Zealand, shows that that of New South Wales is only 23 per cent. of the whole, while that of Victoria is as much as 58 per cent. The latter colony is also centrally situated, having Tasmania on the south, South Australia and Western Australia on the west, and New South Wales and New Zealand on the east. It is clear, therefore, that Melbourne is the port to which the distances should be reckoned.

8. It will, of course, be for the Admiralty to state exactly the comparative lengths of the two routes; but, from the best information I have been able to obtain, it appears that the distance to Melbourne is less by way of Gibraltar and Suez than by way of Panama, to the extent of about 1,500 nautical miles, making a difference, according to the average speed of the packets, of at least six days in favour of the Suez route.

9. Though the contrary has often been assumed, even Sydney is nearer by the Suez route than by the Panama route, and that to the extent of about 300 nautical miles; so that the only colony which would be brought nearer by the adoption of the Panama route is New Zealand, whose correspondence, however, amounts to only six per cent. of the whole.

10. The comparative absence of storms in the Pacific may, to some extent, counterbalance greater distance, but not, I presume, so far as to leave any doubt that the communication viâ Suez will remain the quickest--to Melbourne at least. This, however, is a point on which, no doubt, the Admiralty will report.

11. But, by the foregoing statement, the superiority of the Suez route is by no means fully shown, since, as respects the mails sent through France, the time is further shortened by four days and a-half:[272] while the Panama route admits of no such acceleration.

The real advantage, therefore, of the Suez route, when speed is important, cannot be estimated, as regards Melbourne, at less than ten days. And as the saving, _viâ_ France, of course extends to all the Australian colonies, it may be doubted whether even New Zealand would be materially benefited by adopting the Panama route.

12. Again, by a slight sacrifice of time (not more, probably, than one or two days) the Suez route might be made to take in either Point de Galle or the Mauritius; thus in either case affording important postal facilities, not only to the colony so included, but also to this country and to the Australian colonies in their correspondence therewith. The Panama route affords no similar facilities.

13. But the Suez route has also an important pecuniary advantage over that by Panama. Our mails are conveyed across the Isthmus of Suez by the Egyptian Government, for a fixed annual payment, which amounts to not more than fourpence per pound weight; whereas the charge by the railway company for crossing the Isthmus of Panama is elevenpence per pound, in addition to which we have to pay the local government the exorbitant rate of one shilling an ounce for letters for the mere privilege of passing through their territory. These charges would add, say twopence, to the postage of each newspaper, and sixpence to the postage of each half-ounce letter. Or, should the quarter-ounce scale be applied, then threepence for each quarter-ounce letter, making a total charge of ninepence; so that there could be no cheap mail by this route, the letters viâ Panama being all charged as highly as those sent through France.

14. There is still another circumstance which should not be overlooked in a comparison between the two routes--at both ends of the Suez route the electric telegraph is being rapidly extended. It already reaches from England to Malta; and, even if not yet completed, is in rapid progress from Sydney _viâ_ Melbourne to Adelaide. Already, therefore, as regards the transmission of news, the distance to and from Sydney by this route is reduced by one-fourth; and, supposing that at any future time the telegraph should be extended on the one side to Point de Galle, and on the other to King George's Sound (neither, perhaps, an improbable event), that distance would be so greatly reduced that Sydney would be brought (by telegraph) within fifteen days of London.

15. The Panama route, as yet, possesses no similar advantage; and even if the difficulties of crossing the Atlantic be mastered, and the telegraph extended to Panama, there will yet remain the whole time occupied in crossing the Pacific--probably more than thirty days.

16. These several considerations appear to be conclusive as to the decided superiority of the route by Suez over that by Panama; and consequently, even if a monthly service be deemed insufficient, the additional packets should be placed on the Suez route.

17. Should similar views be adopted in the Australian colonies--as I expect they will when the facts of the case are understood--the several governments, excepting that of New Zealand, and perhaps that of New South Wales, will probably decline to provide their share of the cost of any service which may be attempted by way of Panama. It is very important, therefore, that, as indicated in the Treasury Minute, the concurrence of the colonies should be ascertained before any tender is finally accepted.

18. But if, as fairness seems to require, it be made a condition of the tender that the total time from London to Melbourne, _viâ_ Panama, shall not exceed that which may be allowed _viâ_ France and Suez, then it may be doubted if any responsible parties will be found to undertake the contract.

19. In another minute, when submitting a letter from the Treasury on the subject of postal communication with British Columbia, I propose to consider the question (raised in that letter) as to the best mode of conducting the service on this side the Isthmus of Panama; but, as the effect on the Australian service would be much the same whether one of the two monthly lines now existing be employed (and that service is so direct that little would, I presume, be gained by adopting another route), or whether a new and independent service be established, I do not consider it necessary to trouble your Lordship on this point at present.

20. Should your Lordship concur in these views, I would suggest that a copy of this minute, accompanied by a letter from yourself, expressive of such concurrence, be forwarded to the Treasury.

(Signed) R. H.

27th September, 1858.

Approved. (Signed) C.

29th September, 1858.

APPENDIX L.

[See p. 293.]

_Letter to Lord Canning, Governor-General of India._

October 24th, 1857.

DEAR LORD CANNING,--I hope it may do some little to relieve your Lordship's anxiety to learn that Government has adopted a plan of mine for giving to Calcutta and Madras four mails a month, to and from England, instead of two.

The plan is fully described in the enclosed copy of a minute; but, to save you the trouble of reference, I beg to say that the principle of the measure is as follows:--Leaving the Calcutta, Madras, and China mails, whether _viâ_ Southampton or Marseilles, unaltered, I despatch the Bombay mail from hence, _viâ_ Marseilles, about a week (a quarter of a month) after the despatch of the Calcutta mail by that route; and arrange the despatch from Bombay of the return mail, so that it may reach London, _viâ_ Marseilles, also about a week after the arrival of the Calcutta mail by that route.

Under this arrangement, the despatch across the peninsula, between Calcutta and Bombay, being fitted, in each direction, to the Bombay line of packets, will afford to Calcutta two good mails, each way, per month, _viâ_ Bombay, in addition to the two per month she now has by her own packets; and, as to cross the peninsula requires about a week, the arrivals, as well as the departures, will be at nearly equal intervals, _i.e._, one per week, or rather quarter of a month.

Madras will enjoy a similar advantage.

Bombay will not benefit by the change (except by electric telegraph to and from Madras). On the contrary, she will be somewhat injured in respect of her _slow_ mails, which must be conveyed between Southampton and Malta or Alexandria, by the Calcutta, or by the Australian packets, whichever will serve best, there to await the arrival of the Bombay packets; but, as the payment of an additional postage of threepence will not only avoid this delay, but will save several days, as compared with the existing state of things, I attach little importance to the objection.

As the plan involves comparatively little additional service, the Peninsula and Oriental Company have undertaken it for a further payment of £16,000 a year. I cannot, as yet, say when the change will be made.

I beg your Lordship will not think of replying to this letter. If the plan prove acceptable to you, a word to that effect from your private secretary will be welcome, more especially if he can add that your health, and that of Lady Canning,--to whom I beg to be most respectfully remembered--have not greatly suffered from the terrible anxieties to which you must have been exposed.

Under the trying circumstances to which I have alluded, I venture to think that your Lordship will not consider it obtrusive if I assure you that you have the earnest sympathy of every one at the Post Office--of every one at least who had the honour of knowing you--a sympathy accompanied, however, by the most entire conviction that under your able and energetic administration all that is possible to restore order and to prevent future outbreak will be accomplished.

In our small way we have done our best to expedite the arrival of the Indian mails. The last was conveyed from Paris to London, viâ Boulogne and Folkestone, all circumstances being favourable, in eight and a-half hours.

I have, &c., (Signed) ROWLAND HILL.

The Right Hon. VISCOUNT CANNING &c. &c. &c.

APPENDIX M.

[See p. 347.]

_Proposed Reduction in the Postage on Newspapers and other Printed Matter._

Of the importance of distributing our cheap and excellent newspapers and other periodicals and serials over the whole face of the country there can be but one opinion amongst enlightened men. The aim of this memorandum is to show to what extent, and by what means, this great end can be attained, without undue sacrifice of other equally great interests.

With respect to the allegations made as to the cheaper conveyance of such matter in other countries, it is important to remark that no argument can be safely drawn from them, even when they are found literally correct, without careful examination into all the appertaining circumstances.[273]

And here it may be observed, that forty years ago our own journals, though laden with heavy duties, viz., the stamp duty and those on advertisements and paper, were constantly spoken of as carried free. An anomaly the more remarkable because if addressed anywhere beyond the narrow limits of what was termed the "free delivery," every newspaper bore a postal charge. It scarcely need be said that to the "freedom" of those earlier days, no one, least of all the applicants in this case, would wish to return.[274]

It must, therefore, be inquired as respect the countries referred to--

1st. Whether the postage be in addition to a stamp duty.

2nd. Whether the post office undertakes house-to-house delivery, and that free of charge.

3rd. What are the restrictions as to weight, as to writing or other marks, and as to time and place of posting. Whether, in short, the cheap transmission be not made under regulations which would not be tolerated here.

4th. Whether the governments concerned have not either the free use of the railways for the conveyance of mails, or at least their use on very much lower terms than are conceded here.

5th. Whether lowness of postage on printed matter be not obtained at the cost of high postage on letters.

6th. What in the countries referred to is the fiscal result of the postal system? whether, as here, the production of a large net revenue (whose diminution would have to be made good by some other impost); whether, as in various other countries, a bare self-support, or, as in the United States, a deficiency to be supplied from the general taxation.

7th. Whether, in fine, there be not some circumstance, or set of circumstances, which vitiates the example.

It is at least highly probable that when the various examples held up have been subjected to the proposed scrutiny, their validity will shrink into very small dimensions.

Without, however, laying too much stress either way on foreign example, it is manifestly important to consider the present question in relation to other home interests; in recognising the claims of newspapers we must not forget those of letters; the less so as the former are already by far the more favoured class of the two, the allowance of weight of a newspaper being eight-fold that of a letter. It must be borne in mind, therefore, that in case of any surplus in revenue, equality, if not priority of claim, whether for increased weight, increased facilities, or other advantage, may be fairly set up in favour of letters; further, that this claim is prodigiously strengthened by the fact that it is to letters alone (almost exclusively to home letters) that the Post Office is indebted for its net revenue.

Returning, however, for the moment to the separate question of newspapers, it must be remarked that any lowering of that unit of charge which has hitherto been strictly maintained is open to so many objections as to demand that the change, if made, should be made with extreme caution.

1st. The postal conveyance of printed matter--especially of newspapers, since these admit of no delay--is, even at the present rates, under existing circumstances, unremunerative, a fact which becomes very intelligible when the eight-fold allowance of weight is considered, and which of itself overthrows the expectation held out by some that the fiscal loss by reduction would be compensated by increase in the number of packets sent.

2nd. The proposed reduction, if made simply, would inevitably lead to increased demands on the part of the railway companies, and that upon two grounds, (_a_) augmented weight of the mails, and (_b_) alleged interference with their parcel traffic. All this will be found to have followed the reduction to the present rates.

3rd. The temptation to use printed matter as a cover, or fraudulent substitute for written letters, which even now is unduly strong, would, without safeguards far beyond any yet known, be enormously strengthened.

4th. As the power of mechanically exchanging bags _en route_ is, as mentioned by the Postmaster-General in the House of Commons, but limited, augmentation in weight may, by rendering stoppage necessary, retard the progress of the mails.

Under the first of the above heads it must be added that the sound commercial principle on which the Post Office should be conducted--the full establishment of which was kept steadily in view, and towards which a nearer and nearer approach was made so long as I held the office of secretary--is that each part of the business should be at least self-supporting; every deviation from this principle not only producing direct injury to fiscal results, but becoming prolific as an example. Further, that deviation as respects printed matter is the more objectionable because, as the Post Office has there no monopoly of conveyance, the inevitable result is to saddle it with whatever has to be conveyed at a loss, while aught that is profitable is sure to pass into other hands.

In relation to the third head, that concerning temptation to fraud, it may be remarked that, if the change can be so made as to render fraud under its operation impracticable, objection on this score will of course be removed; and, further, that if the modification necessary for securing this can be made at the same time to reduce labour at the Post Office as regards this special duty, ground for reduction in charge may be established.

Thus then we come to a consideration of means; and, first, it is assumed that the application under review relates only to the _primary_ distribution of newspapers, &c., viz., that from the hands of the publishers or of the vendors; and it is for that alone that just provision seems practicable or is here attempted.

Now it is well known that such distribution in towns, as now performed by news vendors themselves, is very inexpensive, partly because the cost of railway conveyance is less to them than to the Post Office, partly because the delivery is generally performed by boys, but _mainly because the newspapers are not individually addressed_, each copy of a particular paper serving as well for one individual as another. The first and perhaps only desideratum, therefore, is a means for performing the same duty, viz., the distribution of papers not individually addressed at small cost in the rural districts.

Now the need of individual addresses may be superseded in the country by use of the means found available in towns: in other words, if lists similar to those which doubtless guide the boys in the town delivery be put into the hands of the Post Office rural messengers, the latter will be able to perform the duty of distribution with as little difficulty as the former.

Supposing this plan to be adopted, it becomes practicable to save labour in the Post Office to a much greater extent than at first sight appears.

At present, newspapers posted for rural districts have to be assorted from a mass of papers for all parts of the United Kingdom, and, indeed, of the world. Such as are for a distance have to undergo a like operation at one or more offices on their way to that where, by a final assortment, they are arranged according to the walks of the several messengers. Lastly, of course, each paper has to be delivered according to its particular address.

Now, upon the proposed plan, the publishers or the news vendors of the metropolis, or other centre, instead of folding, addressing, and posting the journals intended for the rural districts, would, as is now done to a great extent--naturally send them in bulk, in the parcels containing journals for the post towns; an arrangement which would relieve the Post Office, not only of the first assortment, but also of the duty of conveyance; thereby avoiding at once increased difficulty as to exchange of bags, and also interference or quasi interference, with parcel-traffic, unless in the acceptable way of augmentation; and the provincial news vendors, on receiving these parcels, would, while themselves dealing with the journals intended for town-delivery, and for such of the rural districts as they might prefer to serve, convey the remainder, still unfolded and unaddressed, to the local post office (which they would have previously supplied with corresponding lists, variable, say once a month), thus superseding the intermediate assortments; and, lastly, the postmasters would only have to arrange the journals, by number and kind, according to the rounds of the messengers; thus reducing the trouble of even the final assortment to a minimum.

Still further to lessen trouble to the Post Office, as likewise for just security, it would be well to require that payment for the month should be made in advance, viz., on delivery of the lists. It would also be necessary to rule that the sum to be so paid should in no case be below a certain amount.

And thus, by an actual reduction in Post Office labour, unattended with any counterbalancing disadvantage, the desired reduction in postage would be warranted.

It is obvious that papers thus dealt with would present no temptation to fraud, since the absence of particular address would altogether prevent their being used as substitutes for letters.

On the plan set forth above, if taken as a whole, I think it would be safe and justifiable to reduce the charge for what I have called the primary distribution of newspapers, &c., to one halfpenny the four ounces, that is to say to one-half the present rate.

Security against fraud generally, it may be pointed out, would be immeasurably increased if the proposed boon were accompanied with the entire abolition of the impressed stamp, the use of which, besides maintaining a constant temptation to dishonesty, demands, on the part of the Post Office and the public, the observance of a highly complicated set of rules, involving so much trouble that they are constantly violated with impunity.

This change, however, would have to be accompanied with the issue of a three-halfpenny adhesive stamp[275] (a measure actually contemplated some years ago) to supply the place of the impressed stamp of the same value now used by newspapers which, like the _Times_ or _Illustrated London News_ occasionally range in weight between four and six ounces. The use of the new stamp might very properly be extended to all other printed matter of like weight.

Before touching on further possibilities as respects newspapers, I return to the subject of letters, in relation to which much additional improvement is desirable. This might be arranged under the following heads:--

(_a_) Increase in the number of deliveries; at least in the large towns.

(_b_) The extension of periodic (not necessarily daily) delivery to every house, however remote, as in France, Prussia, and Switzerland; an improvement important, not only to commercial interests and social intercourse, but to jurisprudence, legislation, and political action.

(_c_) The establishment on one or two of the great routes--say after a trial for a short distance--of a mode of conveyance far more rapid than any yet employed, but delayed on account of its great expense, viz., tubular conveyance; by the use of which, in the opinion of the eminent engineers, Mr. C. H. Gregory and Mr. E. A. Cowper (as set forth by them in a report to myself dated October, 1859), a speed of from 120 to 150 miles an hour might be attained, though at a total annual cost (interest of capital inclusive) of about £800 per mile, from which, however, there would be a set-off of probably about two-thirds for present expenses saved. The use of such conveyance so far as Crewe on the one hand and Dover on the other, would bring Dublin, Edinburgh, Glasgow and Paris wholly within the reach of the London night mail, at the same time, of course, greatly lessening the effective distance to all places beyond. It would also, for reasons not necessary to be stated here, both facilitate the frequent despatch of mails, and aid greatly in the prompt distribution of newspapers to places directly or indirectly served; would, for instance, make it practicable to place the London morning newspapers on the breakfast tables of Birmingham, Liverpool and Manchester.

(_d_) Increase in the standard of weight, say, from half an ounce to an ounce, a change which would reduce the postage of heavy letters by about a half, besides avoiding much weighing of letters and vexatious overcharge for excess of weight.

(_e_) A reduced rate of postage, on certain conditions, for circulars. In most towns there is a time in every day at which the work in the post office is light, as also a delivery at which the amount of letters, &c., might be considerably increased without inconvenience, and circulars so posted as best to suit these opportunities, provided always they came in sufficient numbers and were taken to the head office, might reasonably be dealt with on lower terms, perhaps at half the present rate.

A plan in accordance with what is here set forth was drawn up by my son, Mr. Pearson Hill, and laid before the Secretary of the Post Office some time ago, but, as I understand, awaits decision. His plan is limited to local distribution; but, should it be adopted and prove successful, I should be ready to suggest means for giving it general effect.

Now beneficial concessions in the case both of letters and newspapers would be greatly facilitated by the establishment of more equitable and more equable arrangements than the present between the Post Office and the railway companies. Opportunity for this is likely soon to arise through inevitable demand for the extension to railway traffic of that abolition of tax on locomotion which is now imminent in respect of other modes of conveyance, a concession which may fairly be accompanied with the legal enactment of the tariff of charges, and other modifications in the laws affecting the Post Office proposed in paragraphs 23 and 24 of my Report on Railways, dated 7th May, 1867, which forms part of the Report of the Royal Commission on Railways laid before Parliament in the same year.

Perhaps, also, means may be devised for such further improvement of the apparatus used in exchanging bags as to remove the present objection to increased weight.

Supposing these two important advantages to be secured, the Post Office would then be able, without injustice to other interests, to receive the newspapers (of course still in bulk and unaddressed, though assorted according to districts and accompanied with respective lists) directly from the metropolitan or other central publishers or vendors, and to forward them, without further intervention, to their ultimate destination; thus, in effect, reducing still further the charge for their distribution throughout the country.

As reduction in labour, not only to the Post Office but also to senders, will obviously attend every reduction in number of packets, perhaps two or more publishers or vendors may, under either of the above arrangements, send combined packets, lists, &c., a course which will not in any way impede or modify distribution.

The operation of the plans recommended in this paper would, I believe, open the way to additional advantages which it would now be premature to mention.

ROWLAND HILL.

June 12, 1869.

APPENDIX N.

[See p. 394.]

_Letter to the Lords of the Treasury--Superannuation Grant._

Hampstead, 17th March, 1864.

MY LORDS,--The Postmaster-General, as requested by your Lordships, has done me the favour to furnish me with a copy of your minute of 11th instant, granting me a special superannuation allowance on retiring from my office as Secretary to the Post Office, and conveying to me the very favourable opinion, which your Lordships are pleased to express, of the manner in which I have discharged my duties.

It cannot be necessary to assure your Lordships of the deep gratification with which I have received so handsome and elaborate a recognition of my services. I have only to beg that you will be pleased to accept my most respectful thanks.

In a document so highly complimentary, I hesitate to notice what would appear to be an admission, inadvertently made, to the effect that the adoption of the uniform penny postage was urged by others before the development of my plans. This, I assure your Lordships, is an error; and, as uniformity of rate constitutes the main feature of my plan, I am naturally anxious to place before you the real facts of the case. I trust, therefore, you will pardon me if I request attention to the enclosed memorandum on the subject.

I need scarcely add that, should the expectations of my medical friends, of improved health from rest, be realised, and any occasion arise in which it may appear to your Lordships that my assistance or advice in further postal improvements may be of advantage, I shall feel honoured by being permitted to place them at your disposal.

I have, &c., ROWLAND HILL.

The Right Hon. The Lords Commissioners of Her Majesty's Treasury, &c., &c., &c.

MEMORANDUM.

A low and uniform rate of postage forms the most essential feature of my plan of postal reform, and I have no hesitation in stating that its conception originated wholly with myself. To guard against future error I ask permission to place on record a brief statement of facts.

The principle of uniformity of rate, now that it has been in successful operation for nearly a quarter of a century, appears, perhaps, simple and obvious; but so far from its having been, as it is sometimes supposed, the happy thought of a moment, it was the result of most laborious investigation on my part. Indeed, a slight consideration will show that its conception necessarily involved a previous discovery--viz., that the cost per letter of mere transit within the limits of the United Kingdom was practically inappreciable, or, at least, that it was not dependent mainly on distance; being, in fact, quite as much dependent on the number of letters contained in the particular mail as on the distance that mail was carried. Indeed, it was shown, from careful investigation, that the cost of mere conveyance, even for so great a distance as from London to Edinburgh, was only the thirty-sixth part of a penny per letter. From this and other facts, it followed that a uniform rate was more just than one varying according to distance. The convenience of uniformity was obvious.

I may add that when I first entered on the investigations preparatory to the construction of my plan, I myself had no conception of the practicability of a uniform rate, and that the discovery referred to above was as startling to myself as it proved when announced to the public at large.

A reference to my original pamphlet--a copy of which is, I presume, still in your Lordships' possession--or to my evidence before the Select Committee of 1838, appointed to inquire into the practicability of my plans, will show the various steps by which I arrived at the conclusion that a uniform penny rate was at once just and practicable.

There is but one other person, so far as I am aware, to whom the suggestion of a uniform penny rate has, with even the slightest plausibility, ever been assigned--I refer to the late Mr. Wallace, formerly Member for Greenock, and Chairman of the Select Committee on Postage in 1838; but though Mr. Wallace frequently urged, among other useful reforms, a great reduction in the postal charges, I can say from personal knowledge that he had no idea whatever of a uniform rate until after the publication of my pamphlet. Indeed, this sufficiently appears from his speech in Parliament in July, 1836, the last occasion on which, before the publication of my pamphlet, he referred to the rates of postage. The following is an extract from "Hansard" (Vol. xxxv., 3rd series, p. 422):--

* * * * *

"At the same time the rates of postage ought to be reduced. It would be proper not to charge more than 3_d._ for any letter sent a distance of 50 miles; for 100 miles, 4_d._; 200 miles, 6_d._; and the highest rate of postage ought not to be more than 8_d._ or 9_d._ at most."

* * * * *

Further evidence upon this point is also in my possession, which can be submitted, should it be deemed necessary.

ROWLAND HILL.

Hampstead, 17th March, 1864.

FINIS.

THOS. DE LA RUE AND CO. PRINTERS. BUNHILL ROW LONDON.

INDEX

A

Abbott, Mr., vol. ii. 300

Aberdeen, Earl of, vol. ii. 217, 218, 222-225, 287

Accounts. See Post Office

Admiralty, vol. ii. 369. See also Packet Service

Ady, Joseph, vol. ii. 82

Airy, Sir G. B., correction of statement about M. Biot, vol. i. 499; R. H.'s letter to him, 506; letters to R. H., 507, 509; signs R. H.'s recommendation for the Royal Society, vol. ii. 359; present at his funeral, 431

Alarum water-clock, vol. i. 83, 157

Algeria, vol. ii. 311

Algerine ambassador, vol. i. 172

Allen, Ralph, vol. ii. 9

Alton, vol. ii. 276

Amiens, peace of, vol. i. 19, 38

Angas, Mr. G. F., vol. i. 221

Anson, General, vol. i. 279

Applegarth, Mr., vol. i. 224

Architecture, study of, vol. i. 61, 128

Argyll, Duke of, vol. ii. 349; Government loans to railways, vol. ii. 279, 280; Civil Service examination, 303; his character; facility of composition, 355; signs recommendation of R. H.'s admission to Royal Society, 359; provisionally Postmaster-General, 361; letters to R. H., 344, 356; R. H.'s letters to him, 280, 302, 330; out of England at the time of R. H.'s funeral--his affection towards him, 430

Arithmetic, mental, vol. i. 92, 128

Armstrong, Sir W., vol. i. 242

Armstrong, Mr., vol. ii. 49, 72

Arnold, Dr., vol. i. 100, 101, 115, 124

Arnott, Dr., vol. i. 210

Ashburton, Lord, vol. i. 279, 469; evidence before Parliamentary Committee (1838) 310, 317, 321; letter to R.H., 362

Ashford, Mary, vol. i. 85

Ashley, Lord (Earl of Shaftesbury), presents a memorial from Bath, vol.