Chapter XXVI: Appendix: C (4)

[358] "Si vous examinez set objet sous un point de vue fiscal, je vous dirai qu'en augmentant le tarif, vous diminuez le produit, en rendant la circulation de plusieurs feuilles impossible. Le plus l['e]ger surhaussement de taxe priverait de tout b['e]n['e]fice les autres des productions p['e]riodiques les plus utiles, telles que les journaux d'agriculture, de physique, d'histoire naturelle, de m['e]decine, etc., qui, par leur nature, ne sont pas susceptibles d'avoir un grand nombre de souscripteurs. Et les journaux que l'on aurait peut-[^e]tre en vue d'['e]carter sous le poids d'un imp[^o]t on['e]reux seraient pr['e]cis['e]ment ceux que l'avide curiosit['e] du public ferait r['e]sister [a'] la surtaxe. Personne d'ailleurs ne r['e]voquera ne doute que, de tous les commerces, celui des id['e]es soit le plus pr['e]cieux, et je crois que vous devez le favoriser de toutes les mani[e']res."--M. Larochefoucault, Assembl['e]e Nationale, 17 ao[^u]t 1791 (ibid.).

[359] The increase during the Revolutionary period was nevertheless considerable. Before the Revolution the cost of distributing 60,000 prospectuses by post was 200 livres. Under the rates then in operation it would be 3,000 livres, and under the new rates then (1796) proposed, 7,500 livres. Before the Revolution a volume could be sent from one end of France to the other for 12 sous.--A. Belloc, _Les Postes francaises_, Paris, 1886, p. 353.

[360] "Le conseil des Cinq-Cents, consid['e]rant qu'il importe de faciliter la circulation des ouvrages p['e]riodiques, brochures, catalogues, et prospectus tant pour encourager la libre communication des pens['e]es entre les citoyens de la R['e]publique que pour augmenter le total du revenu public...."--_Proclamation_, 1796.

[361] Law of 15th March 1827.

[362] Law of 16th July 1850.

[363] There was also at this time a tax on books.

[364] M. Rouher, Assembl['e]e Nationale, 21 mars 1850 (_Le Moniteur Universel_).

[365] Decree of 17th February 1852.

[366] The political Press was somewhat strictly controlled. The law of 1814 on the liberty of the Press, which was continued by the Press law of the 27th June 1849, imposed on every printer the obligation to deposit with the Procurator Imperial every article treating of political matters or social economy twenty-four hours before publication, under penalty of a fine of 100 to 500 fr. A decree of 1852 subjected political publications to a stamp duty.

[367] "Les journaux n'['e]tant plus dangereux et ne pouvant plus faire que du bien, l'honorable membre e[^u]t d['e]sir['e] qu'une l['e]g[e']re r['e]duction des droits de poste leur perm[^i]t d'acqu['e]rir une existence plus s[^u]r, plus ind['e]pendante, afin qu'on p[^u]t les retrouver fid[e']les et d['e]vou['e]s, si la France avait encore des jours difficiles [a'] traverser. Nul n'a oubli['e], en effet, l'admirable attitude de la Presse d['e]partmentale au milieu des ['e]v['e]nements de 1848, son empressement [a'] se rallier [a'] la cause du Pr['e]sident de la R['e]publique, le courage que ses r['e]dacteurs ont montr['e] pour la d['e]fense de l'ordre, courage que quelques-un on pay['e] de leur vie.

"Telles sont les consid['e]rations d'['e]quit['e] et de politique qui avaient fait r['e]clamer en faveur de la Presse d['e]partmentale une r['e]duction de taxe. Tout ce que la commission a pu obtenir, c'est qu'il n'y aura pas d'aggravation de taxe lorsque le num['e]ros circuleront dans les d['e]partments limitrophes. Rien ou [a'] peu pr[e']s rien ne sera done chang['e] aux charges que les journaux de province ont support['e]es jusqu'[a'] ce jour."--M. Paul Dupont, Chambra des D['e]put['e]s, 31 mai 1856 (_Le Moniteur Universal_).

[368] Motif du loi, cited A. Belloc, op. cit., p. 542.

[369] Ibid., p. 545.

[370] Law of 29th April.

[371] "La poste perd sur le transport des journaux et des imprim['e]s.

"Pour l'ann['e]e 1889, M. Jaccottey (_Trait['e] de l['e]gislation et d'exploitation postales_, p. 329) calculait que le co[^u]t, c'est-[a']-dire la d['e]pense moyennement, fait pour un objet quelconque de correspondance, n'avait pas ['e]t['e] sup['e]rieur [a'] 0 fr. 055. Il fixait de m[^e]me le produit moyen des imprim['e]s, par unit['e], [a'] O fr. 023, et il ['e]valuait la perte du Tr['e]sor [a'] 25 millions....

"Le nombre des Imprim['e]s de toute cat['e]gorie ['e]tait [a'] cette ['e]poque de 800 millions....

"Or, il y a eu, en 1895, dans la circulation int['e]rieure:--

"514,957,761 journaux ayant rapport['e] 8,378,873 fr. soit, par unit['e], 1 centime 62, 472,202,885 imprim['e]s de toute nature, dont 82,597,172 sou enveloppes, avec un produit total de 13,791,025 ou par unit['e] 2 centimes 92. Pour ces 987,160,646 journaux, p['e]riodiques, imprim['e]s de toute cat['e]gorie, circulent [a'] prix r['e]duit, la recette total a ['e]t['e] de 22,169,975 fr. et le produit moyen de 2 centimes 245.

"La perte a done ['e]t['e] de pr[e']s de 36 millions."--_Rapport portant fixation du Budget_, Chambre des D['e]put['e]s, 1907; No. 2701, p. 37.

[372] 29th April 1908.

[373] "Il serait [a'] d['e]sirer qu'on p[^u]t rem['e]dier [a'] une cons['e]quence regrettable de la disposition particuli[e']re qui r['e]serve aux seuls journaux paraissant au moins une fois par mois le tarif sp['e]cial accord['e] [a'] la Presse.

"En fermant la porte aux feuilles d'annonces trimestrielles on l'aussi ferm['e]e aux bulletins et annales de m[^e]me p['e]riodicit['e] publies par un grand nombre d'associations et de soci['e]t['e]s (soci['e]t['e]s litt['e]raries, arch['e]ologiques, scientifiques, agricoles, syndicats professionels et agricoles, associations professionelles amicales d'instituteurs, soci['e]t['e]s de secours mutuels, etc.), qui doivent [^e]tre encourag['e]es par tous les moyens au lieu d'[^e]tre g[^e]n['e]es dans leur essor."--Ibid., S['e]nat, 1908, No. 340, p. 84.

[374] Defined thus in the law of 1878: "Pour moiti['e] au moins de leur superficie [a'] la reproduction des d['e]bats des Chambres, des expos['e]s des motifs des projets de lois, des rapports de commissions, des actes et documents officiels, et des cours, officiels ou non, des halles, bourses, et march['e]s."

[375] P. Jaccottey, op. cit., p. 322.

[376] Certain questions arose on this point, and the Council of State decided that there was no need to inquire whether the printed sheet added to the newspaper constituted an accidental and unforeseen addition, whether it was the production of the paper, whether it really appertained to the paper, nor whether it was printed at the same time. All that was necessary, in order that it might be regarded as a supplement, was that it should bear the title and date of the number which it accompanied.--Ibid., p. 325.

The Keeper of the Seals concurred in this opinion, and held that it was unnecessary to inquire into the circumstance in which the supplement was joined to the paper, whether it was special or whether it was printed at the same time; but that the supplement ought to fulfil the conditions imposed on all newspapers, to mention the title of the paper, together with the date or serial number, and to preserve, at least materially, the appearance of an annexe to the principal journal.--Ad. Frault, _Manuel postal, th['e]orique et pratique_, Paris, 1893, pp. 385-6.

[377] The second oldest newspaper in Germany, the _Postavisen_, which appeared in Frankfurt in 1617, was published by the Taxis Postmaster, Johann von den Birghden. Cf. B. Faulhaber, _Geschichte des Postwesens in Frankfurt am Main_, Frankfurt, 1883, p. 62.

[378] Dr. Artur Schmidt, _Finanz-Archiv_, 1906, vol. 23, part 1. p. 64; _Archiv f[:u]r Post und Telegraphie_, 1884, p. 290.

[379] _Archiv f[:u]r Post und Telegraphie_, 1884, p. 291.

[380] Regulativ [:u]ber die k[:u]nftige Verwaltung des Zeitungswesens, 15th December 1821.

[381] Decree of 26th June 1848.

[382] Statute of 4th November 1867, fixing rates of postage for the North German Union:--

"Diese Bestimmung entsprang aus der Erkenntniss, dass die weniger h[:a]ufig erscheinenden Zeitschriften durch die volle Besorgungsgeb[:u]hr von 25 pct. des Verlagspreises um so h[:a]rter getroffen w[:u]rden, als letzterer der Natur der Sache nach in vielen F[:a]llen verh[:a]ltnissm[:a]ssig hoch sei."--_Archiv f[:u]r Post und Telegraphie_, 1884, p. 296.

[383] Statute of 28th November.

[384] "Wir haben heute in Deutschland Bl[:a]tter, deren Jahresabonnement j[:a]hrlich 2 Mark betr[:a]gt, und solche, deren Jahresabonnement bis 40 Mark betr[:a]gt. Die Post erhebt nun an Geb[:u]hr 25 Prozent von dem Abonnementspreise, womit sie die Bef[:o]rderungskosten decken muss. Die Post erh[:a]lt f[:u]r dieselbe Leistung von einem t[:a]glichen Blatte, welches 40 Mark Abonnementspreis erhebt, 10 Mark pro Jahr und von dem andern t[:a]glichen Blatt, welches bloss 2 Mark erhebt, 50 Pfennig pro Jahr. Das ist ein ganz unhaltbarer Zustand. Wenn Sie beide Bl[:a]tter nun auf ihren Inhalt pr[:u]fen, was erblicken Sie da? Auf der einen Seite Inseratenblatt, das den Text als Nebensache behandelt, das mit sehr niedrigen Redaktionskosten hergestellt wird. Auf der anderen Seite haben Sie ein Blatt, zu dessen Herstellung hervorragende Kr[:a]fte, mit einem Worte Intelligenz erforderlich ist, und dass die Intelligenz nicht billig ist, wissen wir alle miteinander; diese muss bezahlt werden. F[:u]r die Post bildet die Hauptsignatur der Zeitungen: viele Anzeigen--schweres Gewicht; niedriger Abonnementspreis--niedrige Postprovision (weil die Herstellungskosten durch die Inserate gedeckt werden). Die Post macht in Folge dessen ein schlechtes Gesch[:a]ft damit. Ein Blatt mit wenigen Anzeigen bedeutet auch gleichzeitig ein geringeres Gewicht und einen h[:o]heren Abonnementspreis, und das setzt eine hohe Postprovision voraus.

"Das sind Erscheinungen, [:u]ber die seit Jahren geklagt wird, und die durch die neue Vorlage in ein gerechteres Verh[:a]ltniss zu Leistung und Gegenleistung gebracht werden sollen."--Abgeordneter Dietz, _Reichstag, Official Reports_, 15th November 1899, vol. iv. p. 2799.

[385] Dr. Artur Schmidt, _Finanz-Archiv_, vol. 23, part i. p. 69.

[386] In 1871 the number of newspapers passing by post was 203 millions, and the average postage 87/100 pf. per copy.

[387] _Reichstag, Official Reports_, vol. iv. pp. 2923-4: "Seit 20 Jahren ist im Reichstag sowohl als auch in der Budgetkommission erneut die Forderung aufgestellt worden, es soll ein anderer Tarif aufgestellt werden. In der Budgetkommission ist namentlich in den letzten zehn Jahren von den verschiedensten Parteien anerkannt worden, dass die Post bei der Bef[:o]rderung der Zeitungen thats[:a]chlich mit Verlust arbeitet, und dass demzufolge seitens der Zeitungen eine h[:o]here Geb[:u]hr entrichtet werden m[:u]sste. Ich kann den Herren nur das Beispiel, welches in der Budgetkommission des [:o]fteren erl[:a]utert worden ist, wieder vorf[:u]hren. Wir bef[:o]rdern rund 400 Millionen Drucksachen; f[:u]r diese, 400 Millionen Drucksachen nehmen wir 15 Millionen ein. Demgegen[:u]ber stehen eine Milliarde Zeitungsexemplare und eine Einnahme von noch nicht 5 Millionen."--Von Podbielski (Postmaster-General), 21st November 1899.

[388] "Es musste ein Tarif gefunden werden, der auf dem Grundsatz der Abw[:a]gung der _Leistung und Gegenleistung_ beruht, der der Postverwaltung eine m[:a]ssige Mehreinnahme wenigstens f[:u]r die Zukunft, wenn auch nicht f[:u]r die unmittelbare Gegenwart sichert."--Dr. Oertel, 15th November 1899; _Reichstag, Official Reports_, vol. iv. p. 2801.

[389] Von Podbielski, 21st November 1899; _Reichstag, Official Reports_, vol. iv. p. 2924.

[390] "Die Inseratenpresse macht eine sehr starke Konkurrenz auch der Provinzialpresse, der kleinen Presse. Die erstere hat langsam den Abonnementspreis so weit herabgedr[:u]ckt, dass schliesslich die Provinzpresse, wenn sie nicht zu Grunde gehen wollte, gleichfalls mit einer Erm[:a]ssigung des Abonnementspreises hat vorgehen m[:u]ssen, mit einer Erm[:a]ssigung, die sich wirthschaftlich nicht aufrecht erhalten l[:a]sst. Die Abonnementspreise sind hier und da so niedrig geworden, dass manche Verleger wohl Ursache gehabt haben, zu schreien, man m[:o]ge ihnen seitens der Post durch einen gerechten Tarif entgegenkommen, um die furchtbare Konkurrenz in etwas zu mildern."--Abgeordneter Dietz, 15th November 1899; _Reichstag, Official Reports_, vol. iv. p. 2799.

[391] "Der Zonentarif ist meiner Ansicht nach vollkommen gerechtfertigt auch vom Gesichtspunkte der Leistung und der Gegenleistung aus. Die kleine Provinzpresse bleibt auf einen kleinen Verbreitungsbezirk beschr[:a]nkt, und dort ist sie in vielen Exemplaren an einem und demselben Orte verbreitet. Die grosse Presse dagegen geht in einzelnen Exemplaren durch das ganze Reich, sie verursacht demgem[:a]ss der Post bedeutend mehr Kosten und Lasten, mehr Arbeit als die kleine Presse. Der Herr Staatssekret[:a]r des Reichspostamts hat das in der Kommission selbst zugeben m[:u]ssen. Er wies z. B. darauf hin, dass schon jetzt durch die grosse Anzahl von Bl[:a]ttern, welche von Berlin aus in die Provinz hineingehen, die Post gezwungen w[:a]re, tagt[:a]glich einen Extrapostwagen zu stellen, welcher lediglich Zeitungen von hier nach K[:o]ln mit der Eisenbahn bef[:o]rdert; die Bef[:o]rderung dieses einen Wagens koste der Post 120,000 Mark. Bei dieser Bef[:o]rderung kommt aber im grossen und ganzen nur die grosse oder die farblose Presse, welche zu einem billigeren Preise gegeben wird, in Betracht. Die kleine Provinzpresse macht der Post nicht derartige Ausgaben, wie ich bereits vorhin betont habe. Daher erscheint es angebracht, dass wir zwei Zonen schaffen, dass die Zeitungen in der ersten Zone zu einem billigeren Satze versendet werden als diejenigen in der zweiten Zone."--Dr. Marcour, 15th November 1899; _Reichstag, Official Reports_, vol. iv. p. 2796.

[392] Von Podbielski, 15th November 1899; ibid., vol. iv. p. 2797.

[393] Statute of 20th December 1899:--

"(_a_) 2 Pf. f[:u]r jeden Monat der Bezugszeit.

"(_b_) 15 Pf. j[:a]hrlich f[:u]r das w[:o]chentlich einmalige oder seltenere Erscheinen, sowie 15 Pf. j[:a]hrlich mehr f[:u]r jede weitere Ausgabe in der Woche.

"(_c_) 10 Pf. j[:a]hrlich f[:u]r jedes Kilogramm des Jahresgewichts unter Gew[:a]hrung eines Freigewichts von je 1 Kg. j[:a]hrlich f[:u]r soviele Ausgaben, wie der Geb[:u]hr zu (_b_) unterliegen."--Article 1 (sec. iii), Law of 20th December 1899.

[394] Dr. Artur Schmidt, _Finanz-Archiv_, 1906, vol. 23, part i. p. 74.

[395] Dr. Artur Schmidt, ibid., p. 69.

[396] Cf. Dr. Artur Schmidt, _Finanz-Archiv_, vol. 23, part i. p. 79.

[397] _Allgemeine Dienstanweisung f[:u]r Post und Telegraphie_, Berlin, 1901, Abschnitt V, i. pp. 69-70.

[398] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 278. The present regulations are as follow:--

"Als aussergew[:o]hnliche Zeitungsbeilagen werden solche ... die nach Form, Papier, Druck oder sonstiger Beschaffenheit nicht als Bestandtheile derjenigen Zeitung oder Zeitschrift erachtet werden k[:o]nnen, mit welcher die Versendung erfolgen soll.

"Jede Versendung aussergew[:o]hnlicher Zeitungsbeilagen muss von dem Verleger bei der Verlags-Postanstalt unter Entrichtung der Geb[:u]hr f[:u]r so viele Exemplare, als der Zeitung u. beigelegt werden sollen, vorher angemeldet werden. Das Einlegen in die einzelnen Zeitungs u. Exemplare ist Sache des Verlegers.

"Aussergew[:o]hnliche Zeitungsbeilagen d[:u]rfen nicht [:u]ber zwei Bogen stark, auch nicht geheftet, geklebt oder gebunden sein; die einzelnen Bogen m[:u]ssen in der Bogenform zusammenh[:a]ngen. Die Postanstalten sind zur Zur[:u]ckweisung solcher Beilagen befugt, die nach Gr[:o]sse und St[:a]rke des Papiers oder nach ihrer sonstigen Beschaffenheit zur Bef[:o]rderung in den Zeitungspacketen nicht geeignet erscheinen.

"Die Geb[:u]hr f[:u]r aussergew[:o]hnliche Zeitungsbeilagen betr[:a]gt 1/4 Pf. f[:u]r je 25 Gramm jedes einzelnen Beilage-Exemplars. Ein bei Berechnung des Gesammtbetrags sich ergebender Bruchtheil einer Mark wird n[:o]thigen Fallen auf eine durch 5 theilbare Pfennigsumme aufw[:a]rts abgerundet."--_Allgemeine Dienstanweisung f[:u]r Post und Telegraphie_, Berlin, 1901, Abschnitt V, i. p. 17.

[399] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 279.

[400] 22nd August 1874.

[401] When in 1700 Dockwra was dismissed from the comptrollership, one of the charges against him was that he forbade the acceptance of band-boxes or other parcels over 1 pound in weight--to the great inconvenience of traders and the peril of many sick folk who might have received "phisick" by the Penny Post.

[402] 5 Geo. III, cap. 25.

[403] "In 1839 Sir John Burgoyne wrote to complain that, for a packet of papers sent to him at Dublin, which had been forwarded from some other part of Ireland by mail-coach, as a _letter_, instead of a _parcel_ (i.e. a coach-parcel), he had been charged a postage of [L]11; that is to say, for a packet which he could easily have carried in his pocket, he was charged a sum for which he could have engaged the whole mail-coach, i.e. places for four inside and three outside passengers, with their portmanteaus, carpet bags, etc."--_The Post Office of Fifty Years Ago_, London, 1890, p. 7.

[404] "It has been suggested that if the proportional charge on Letters by Weight was more gradual, many Things which now pass as Parcels by the Mails and augment the Profit of the Proprietors would be sent by the Post on Account of the superior Safety.

"It is certain that great Numbers of small Parcels are sent by the Mail Coaches at an inferior Rate of Carriage, which, considering this Establishment as a Species of exclusive Carrying Trade, must subtract considerably from its Revenue." _Seventh Report_, July, 1797 (_Commons Reports_, vol. xii. p. 189).

[405] E.g., in 1829 the Secretary reported: "With respect to the conveyance of Pamphlets and Periodical Publications by the Post, Treasury has expressed itself to me as decidedly hostile to any such infraction of the carrying Trade of the Country. It is moreover physically impossible. We have the greatest difficulty in conveying Letters, Newspapers, and official packets; many of the official forms, etc., remain some days until we can take them by the Mail Coaches." And in 1847, when Sir Rowland Hill put forward his proposal for a Book Post, Colonel Maberley, then Secretary, said: "The Post ought to be confined to small packets as much as possible and to convey large packets only when the necessity is urgent." He was especially afraid of the inconvenience which would be caused to foot-messengers.--_British Official Records._ Cf. 10 & 11 Vict., cap. 85, [S] 2.

[406] See _supra_, p. 32.

[407] As they had always done. "The Post Office has recently absolutely entered into competition with the Railway Companies. As carriers, the Companies derived considerable profit from parcels. The Post Office, finding that railways afford the means of carrying any quantity of bulk, has seen fit to undertake the conveyance of books and other parcels at very reduced postal rates. If the Post Office should extend its operations a little further, it must be brought into absolute antagonism with the Companies. Books are heavier articles than laces or muslins, or many other fabrics, the conveyance of which enters largely into railway receipts. The Post Office having made book parcels profitable, may try to turn to account the conveyance of other, whether lighter or heavier, articles of trade. It might be thought advisable to carry a small valuable parcel to Aberdeen for 2d., a rate at which Railway Companies, having to pay interest on capital, certainly cannot hope to compete with a department which insists on the right of travelling on their roads at the mere actual cost. You will not, therefore, fail to see that the Post Office arrangements may be carried to a point at which great injustice would be done to Railway Companies."--Robert Stephenson before the Institution of Civil Engineers, January 1856 (S. Smiles, _Life of George Stephenson_, London, 1857, p. 525).

[408] See Leslie Stephen, _Life of Henry Fawcett_, London, 1885, pp. 417-18.

[409] 45 & 46 Vict., cap. 74.

[410] Jevons had foreseen that the rich would benefit; but he anticipated a large general traffic in household supplies. See W. S. Jevons, "A State Parcel Post," _Contemporary Review_, London, 1879, p. 209.

[411] See graphs at pp. 371 and 372, _infra._

[412] The estimates on which this statement is based are given below at p. 311, Cf. Leslie Stephen, loc. cit. p. 420.

[413] See p. 75, _supra._

[414] _Annual Reports of the Postmaster-General_, Washington, 1890 and 1891.

[415] I.e. under the Government frank, for the fraudulent use of which a penalty of $300 is imposed.

[416] "In point of fact there are but four strong objections to the parcels post, and they are the four great express companies, who would be just as well off with an 8- or 11-pound parcel post if the heavy freight of the Executive Departments and the immense packages of bogus serial books that are now thrown upon the mails were shut out and turned over to the express companies, where they belong."--_Report of the Postmaster-General_, Washington, 1891, p. 114.

[417] Ibid., 1904, p. 2.

[418] Cf. _supra_, p. 127, note 2.

[419] "When the British Government can secure better mail facilities in the United States for the English people than Uncle Sam can secure in this country for our own people, it is time that somebody be heard from."--Mr. Hartranft, Secretary of the Postal Progress League of California.

[420] "The difficulty now lies in the absence of a connected transportation conduit, which will receive the small shipment at the farm and convey it, like a letter, direct to the consumer."--Hon. David J. Lewis, _Postal Express_, 1912, 62nd Congress, 2nd Sess., Doc. No. 379, p. 5.

[421] Ibid.

[422] Mr. S. Norvell: "I found the conditions in Europe very much worse than I had anticipated. I found the way the people lived was entirely different from what I had anticipated, and no man who has simply lived in this country and has read in a general way about the conditions in Europe can appreciate how the people live in Europe without going among them and studying the subject. The business of Europe, while in the aggregate, of course, it is very large, as a matter of fact is a peanut business."--_Hearings before the Sub-Committee on Parcel Post_, Washington, 1912, vol. ii. p. 496. Cf. _Address at Atlantic City, N.J._, 16th November 1911.

[423] "The department believed and still believes that the parcel post, in time, will become an important factor in improving and cheapening the food supply of the great cities. Hence, on March 25, 1914, twelve of the large post offices were designated for special test of a farm-to-city service. Farmers were invited to register their names and designate the commodities they desired to sell. Lists of farmers and of the articles each offered were then printed and distributed by the carrier force. The results exceeded expectations; shipments of country products at the twelve offices named so materially increased that now eighteen additional offices have been named for similar exploitation of the farm-to-city service. The department's preliminary experience warrants the conclusion that direct shipment of food products that are consumed substantially in the same form in which they are produced offers practical possibilities of reducing the cost of living."--_Report of Postmaster-General_, Washington, 1913-14, p. 12.

[424] Law of 9 vend['e]miaire, an VI.

[425] _Vide infra_, p. 279.

[426] Art. 5 [S] 2, Convention of 1880.

[427] "En obtenant ainsi le concours des compagnies pour le transport des colis internationaux, M. le Ministre devait ['e]videmment [^e]tre frapp['e] des conditions dans lesquelles allait se trouver la circulation des colis [a'] l'int['e]rieur. Tandis que les premiers circuleraient en France avec la plus grande facilit['e] [a'] un prix forte r['e]duit, notre commerce int['e]rieur non seulement continuerait [a'] payer des taxes de transport relativement ['e]lev['e]es, mais encore resterait assujetti [a'] tous les inconv['e]nients qui r['e]sultent de la multiplicit['e] des taxes et du manque d'entente entre les compagnies."--_Journal Officiel de la R['e]publique francaise_, 27 janvier, 1881, p. 474.

[428] (1) La taxe sur la grande vitesse; (2) l'imp[^o]t du timbre; (3) la taxe de plombage; (4) le droit de statistique.

[429] _Tarif pour le Transport des Colis Postaux_, Paris, 1913, p. 38.

[430] "Sont consid['e]r['e]s comme encombrants: les colis d['e]passant 1 m. 50 dans un sens quelconque; les colis qui, par leur forme, leur volume ou lour fragilit['e], ne se pr[^e]tent pas facilement au chargement avec d'autres colis, ou qui demandent des pr['e]cautions sp['e]ciales."--Ibid., p. 6.

[431] Ibid., p. 17.

[432] _Rapport portant fixation du Budget g['e]n['e]rale_, S['e]nat, 1911, No. 189.

[433] "Il faut que le bureau soit situ['e] sur le parcours d'un courrier en voiture, et que les Compagnies de chemins de fer veuillent bien consentir [a'] accepter les colis [a'] acheminer sur le bureau de poste.... Bref, tout compte fait, il n'y a pas une commune sur six en France o[u'] l'on puisse recevoir [a'] domicile un colis postal."--Ibid., Chambre des D['e]put['e]s, Session 1907, No. 1247.

[434] "Il faudrait apporter au service des colis postaux dea perfectionnements que _les compagnies se refuseront [a'] effectuer et qui semblent plut[^o]t du ressort de l'Administration_. La reception et la distribution des colis postaux dans les communes rurales est une de ces am['e]liorations d['e]sirables.

"Il est inutile d'insister sur l'importance ['e]conomique de cette question. Les colis postaux fournissent ou devraient fournir un moyen facile et rapide de transport [a'] bon march['e]; ils devraient favoriser aussi bien les int['e]r[^e]ts du commerce que ceux de l'agriculture. II s'en faut de beaucoup qu'ils rendent tous les services que l'on est en droit d'en attendre."--Ibid., S['e]nat, 1911, No. 189.

[435] F. Haass, _Die Post und der Charakter ihrer Eink[:u]nfte, Stuttgart_, 1890, p. 95.

[436] Ordinance issued at Breslau; C. H. Hull, _Die deutsche Reichs-Packetpost_, Jena, 1892, p. 1.

[437] C. H. Hull, ibid. p. 2.

[438] E.g., "Wann die Botten innerhalb Landes verschickt werden, soll Ihnen von Jeder Meill Ein Groschen und sechs Pfennig des tages und dan zween Groschen, so des nachtes, und im b[:o]senschnee und regenwetter lauffen, sowohl auch des tages zween Groschen warttgeld, endtrichtet und gegeben werden."--Post und Botenordnung, 20 Juni 1614, Brandenburg; cited _F_. Haass, ibid.

[439] The new parcel rates were, e.g.:--

-----------+----------------+--------------
Weight. | Up to 2 Miles. | 15-16 Miles.
-----------+----------------+--------------
Pounds. | Pf. | Gr. pf.
1 | 8 | 1 8
2-10 | 5 | 1 10
10-30 | 3 | - -
30-60 | 1 | 6
-----------+----------------+--------------

[440] The rates of 1766 compared with those of 1712 as follows: For the transmission of a pound parcel from Berlin--

1766. 1712.
To Hamburg 1-1/2 gr. 1 gr.
To Magdeburg 10 pf. 7 pf.
To K[:o]nigsberg 3-1/2 gr. 2-1/2 gr.

--F. Haass, op. cit. p. 98.

[441] Dr. Artur Schmidt, _Finanz-Archiv_, 1906, vol. i. p. 80.

[442] H. von Stephan, op. cit. p. 746.

[443] Moch, _Archiv f[:u]r Post und Telegraphie_, 1893, p. 6. If the average price of oats in the most important districts in Prussia should exceed a thaler a bushel, the rate might be increased from 3 pf. to 4 pf.

[444] Cabinet Order of 5th March 1847.

[445] Law of 2nd June 1852.

[446] A similar system had been introduced in the German Postal Union in 1858. The sides of the squares were, however, 4 miles long, and were too large for the smaller distances of the North German Union.

[447] Motiv zur Posttaxnovelle vom 4 November 1867; cited F. Haass, op. cit. p. 100.

[448] Law of 17th May 1873.

[449] Motiv zur Posttaxnovelle vom 17 Mai 1873.

[450] Railway postal law of 20th December 1875.

[451] The parcel rate for 20 kilogrammes sent as one parcel or as four parcels each of 5 kilogrammes in each zone would be as follows:--

----------------------+----------------+---------------
Zone. | As one Parcel. | As 4 Parcels,
| Pf. | each of 5 kg.
| | Pf.
----------------------+----------------+---------------
I (up to 10 miles) | 100 | 100
II (10-20 " ) | 200 | 200
III (20-50 " ) | 350 | 200
IV (50-100 " ) | 500 | 200
V (100-150 " ) | 650 | 200
VI (Over 150 " ) | 800 | 200
----------------------+----------------+---------------

--C. H. Hull, op. cit. p. 21.

[452] Parcels in Imperial German Postal Service (Inland):--

-----+-----------------+-----------+-----------+-----------
Year | Parcels not | From 1 | From 5 | Over
| exceeding 1 kg. | to 5 kg. | to 10 kg. | 10 kg.
-----+-----------------+-----------+-----------+-----------
| Per cent. | Per cent. | Per cent. | Per cent.
1875 | 25 | 50 | 18 | 7
1880 | 20 | 61 | 17 | 4
1890 | 15 | 65 | 18 | 3
1900 | 12 | 69 | 17 | 2
-----+-----------------+-----------+-----------+-----------

--_Finanz-Archiv_,1906, vol. i. p. 89; C. H. Hull, op. cit. p. 28.

[453] Average postage per parcel (pf.):--

Zone. 1875. 1890.
Ortssendungen 26.2 26.8
I 32.3 29.7
II 62.1 57.4
III 66.5 57.4
IV 69.3 57.4
V 74.3 58.5
VI 86.6 73.8

--Ibid., p. 24

[454] Average weight of parcels in Imperial German Postal Service (Inland):--

-----+--------------+------------------+--------------
Year.| All parcels. | Parcels not | Parcels over
| Kg. | exceeding 10 kg. | 10 kg.
-----+--------------+------------------+--------------
| | |
1875 | 4.3 | 3.6 | 16.2
1880 | 4.2 | 3.8 | 15.4
1885 | 4.1 | 3.8 | 15.0
1890 | 4.0 | 3.9 | 14.5
-----+--------------+------------------+--------------

--Ibid., p. 26.

[455] "Angenommen es h[:a]tte im Jahre 1890 unter 10 Packeten das Gewicht eines in Zone III 12.4 Kg.; eines in Zone IV 8.7 Kg.; eines in Zone V 7.5 Kg., oder eines in Zone VI 6.9 Kg., das der anderen neun je 5 Kg. betragen, so st[:a]nde der Durchschnittsportobetrag schon auf seiner thats[:a]chlichen H[:o]he."--C. H. Hull, loc. cit. p. 25.

[456] _Statistik der Deutschen Reichs-Post- und Telegraphen-Verwaltung_, 1910, Berlin, 1911, p. 20.

[457] An analysis of the traffic of the Imperial Post Office gives the following result:--

Numbers-- 1887. 1900.
Per cent. Per cent.
Parcels not exceeding 1 kg. in weight 17.158 12.163
" " 1-5 kg. " 62.086 68.874
" " 5-6 kg. " 7.095 7.783
" " 6-7 kg. " 3.984 4.081
" " 7-8 kg. " 2.629 2.364
" " 8-9 kg. " 1.809 1.466
" " 9-10 kg. " 1.353 .986
" over 10 kg. in weight 3.886 2.193

Revenue and distance of transmission--

Per cent. Postage, M.
Local parcels 0.216 42,826
Zone I 42.535 9,639,750
" II 15.865 6,849,005
" III 25.258 10,906,357
" IV 14.610 6,321,769
" V 1.452 604,909
" VI 0.064 29,200

--F. Haass, ibid. p. 77; _Finanz-Archiv_, 1906; vol. i. p. 89; cf. Statistik, 1900, p. 31.

[458] Total number in 1870, 37 millions; in 1880, 60 millions; in 1890, 97 millions; in 1913, 280 millions.

[459] "Infolge seiner Billigkeit hat sich f[:u]r viele Handels- und Erwerbszweige ein unmittelbarer Verkehr zwischen Produzenten und Konsumenten entwickelt (Butter-, Fleisch-, Fischsendungen, u.s.w.), der fr[:u]her durch Zwischenhandel verteuert und erschwert wurde. Ganz neue Erwerbszweige haben sich gebildet, indem Erzeugnisse, die fr[:u]her am Produktionsorte fast gar nicht verwertbar waren, in Massen billig nach weit entfernten Gegenden versandt werden k[:o]nnen, um dort Verwertung zu finden. Auch die Hausindustrie ist durch direkten Bezug von Rohstoffen f[:u]r Spinnerei, Weberei, u.s.w., neu belebt worden."--Dr. Artur Schmidt, _Finanz-Archiv_,1906, vol. i. p. 84.

[460] "'Der Eisenbahn den Gross- und Massenverkehr, der Post den Kleinverkehr,' empfiehlt auch _de Terra_. In der Tat erscheint dieser Vorschlag verlockend. Denn die Post kann den ungeheueren Paketverkehr schon jetzt nur mit M[:u]he bew[:a]ltigen und ist zu dem Zwecke oft zur Einstellung kostspieliger Transportmittel (Eisenbahnbeiwagen) gen[:o]tigt."--Ibid., p. 90.

[461] Ibid., p. 91.

[462] "Abgesehen aber von diesem rein politischen Einwand w[:u]rde die Aufstellung eines komplizierten Zonentarifs bei dem heutigen Umfang des Packetverkehrs den Dienst unertr[:a]glich erschweren und verz[:o]gern. Es l[:a]sst sich wohl fragen ob, wenn jedes Packet auf seine Bef[:o]rderungsentfernung zu pr[:u]fen w[:a]re, der Dienst sich technisch durchf[:u]hren liesse, wenigstens zu Geb[:u]hren, welche den Verkehr nicht allzusehr einschr[:a]nken w[:u]rden."--C. H. Hull, op. cit. p. 31; _vide_ also Dr. Artur Schmidt, _Finanz-Archiv_,1906, vol. i. p. 87.

[463] E.g. "Es ist sogar wahrscheinlich, dass, wenn zu den Kosten der Eisenbahnleistungen f[:u]r Packetpostzwecke ein Betrag f[:u]r Verzinzung des Eisenbahn-Anlagekapitals noch hinzugerechnet wird, die Packetpost dann mit einem Defizit arbeitet."--C. H. Hull, op. cit. p. 152; ibid., p. 139. Cf. G. Cohn, _Finanzwissenschaft_, Berlin, 1889, p. 383, F. W. Grunow, _Zur Reform des Paketportos in Deutschland und OEsterreich-Ungarn_, Leipzig, 1898, p. 131; contra, _Handw[:o]rterbuch der Staatswissenschaft_, Jena, 1910, vol. vi. p. 1092.

[464] _British Official Records_, 1847.

[465] _British Official Records_, 1847.

[466] The new rates were--

Not exceeding 4 ounces 1d.
" " 8 ounces 2d.
" " 1 pound 4d.
2d. for every additional half-pound.

[467] See _supra_, pp. 129-131.

[468] 6th April, 1869; _Parl. Debates_ (_Commons_), vol. cxcv. col. 258.

"The Post Office revenue is derived mainly from the circulation of letters which pay 1d. for half an ounce, and if they exceed half an ounce, another 1d. The writers of those letters are not necessarily rich people, or persons to whom the postage is a matter of indifference; they are, in a certain sense, the helots who bear the burden of the expense of the Department. Is it, then, not a question worth considering, whether--supposing we accede to this request and carry 2 ounces of printed matter for a 1/2d., for the benefit of a particular class of the community--that might not interfere with the possibility of maintaining the 1d. postage on letters?"--Chancellor of Exchequer in House of Commons, 6th April 1869; _Parl. Debates_ (_Commons_), vol. cxcv. col. 254.

[469] The growth of the traffic is shown by the following table:--

Average Annual
Year. Number of Book Packets
1872-76 143,000,000
1882-86 323,000,000
1892-96 570,000,000
1900-05 811,000,000
1909-10 974,000,000
1912-13 1,079,000,000
1913-14 1,172,000,000

--_The Post Office: An Historical Summary_, London, 1911, p. 14; and _Annual Reports of Postmaster-General_.

[470] See _First Report of the Committee on Retrenchment in the Public Expenditure_, 1915 (Parliamentary Papers, Cd. 8067 and Cd. 8068); _Times_ newspaper, 28th September 1915.

[471] A. Belloc, _Les Postes francaises, Recherches historiques_, Paris, 1886, p. 353.

[472] Law of 4 thermidor, an IV (22nd July 1796).

[473] P. Jaccottey, op. cit. p. 327.

[474] "Gedruckte B[:u]cher und Aemter-Rechnungen, Akzise-, Zoll-, und Messzettel, sowie f[:u]r Stempelpapier."--_Archiv f[:u]r Post und Telegraphie_, 1880, p. 268.

[475] This rate was, e.g., 2 groschen per pound from Berlin to Xanten or Duisburg, 1 groschen to Hamburg, and 2 pf. to Spandau.--Ibid., p. 269.

[476] Ibid.

[477] Law of 21st December 1849.

[478] The first penalty applied also to sample packets.

[479] "Zeitungen, Journale, Preis-Courante, gedruckte Cirkularien, Empfehlungsschreiben, Correkturbogen ohne beigef[:u]gtes Manuskript und gedruckte Lotterie-Gewinnlisten."

[480] To include "Druckschriften, Ank[:u]ndigungen und sonstige Anzeigen."

[481] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 273.

[482] Order of 11th April 1856.

[483] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 274.

[484] Ibid., p. 275.

[485] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 276.

[486] Ibid., p. 278.

[487] Order of 3rd March 1873.

[488] Order of 18th December 1874.

[489] "Alle durch Buchdruck, Kupferstich, Stahlstich, Holzschnitt, Lithographie, Metallographie, und Photographie vervielf[:a]ltigten Gegenst[:a]nde" (Sofern sie nach ihrer Form und sonstigen Beschaffenheit zur Versendung mit der Briefpost geeignet erscheinen).--_Archiv f[:u]r Post und Telegraphie_, 1880, p. 281.

[490] "Auch der Erh[:o]hung des Meistgewichts l[:a]sst sich das Wort nicht reden. Mit dieser Massnahme w[:a]chst sofort die Unhandlichkeit der Sendungen und damit die Vermehrung und Kostspieligkeit der Betriebsmittel. Bereits jetzt m[:u]ssen zur Bew[:a]ltigung der Massen v.a. in den Bahnposten, besonders infolge der vielfach vertretnen Rollenform, ausserordentliche Austrengungen gemacht werden. Zudem bietet das billige Paketporto hinreichend g[:u]nstige Gelegenheit zur Versendung schwerer Drucksachen. Zu einer Aenderung des Drucksachentarifs liegt demnach ein Bed[:u]rfniss nicht vor."--_Finanz-Archiv_, 1905, vol. ii. p. 178.

[491] _Statistik der Deutschen Reichs-Post- und Telegraphen-Verwaltung_, 1910, p. 15.

[492] H. Joyce, _History of the Post Office_, p. 177.

[493] "For the Port of every Single Letter, or Piece of Paper, to or from any Place not exceeding Eighty _English_ Miles distant from the said General Post Office in _London_, and within that Part of _Great Britain_ called _England_, and not coming from or directed on Shipboard, Three-pence; and for the like Port of every Double Letter, Sixpence; etc."--9 Anne, cap. 10, [S] 6.

[494] "For every Single Letter or Cover containing One or more Paper or Papers with Patterns, or containing One or more Pattern or Patterns of Cloth, Silk, Stuff, or One or more Sample or Samples of any other Sort of Goods, or One or more Piece or Pieces of any Sort of Thing enclosed therein, or affixed thereto, though not Paper, if the same together do not weigh an Ounce Weight, the Rates payable for a Double Letter shall be paid, and no more."--26 Geo. II, cap. 13, [S] 8.

[495] 35 Geo. III, cap. 53, [S] 9.

[496] 41 Geo. III, cap. 7, [S] 11.

[497] 45 Geo. III, cap. 1, [S] 1.

[498] 52 Geo. III, cap. 88, [S] 2.

[499] 7 Will. IV & 1 Vict., cap. 34, [S] 28.

[500] 2 & 3 Vict., cap. 52, [S] 1.

[501] 3 & 4 Vict., cap. 96, [S] 4.

[502] _Vide_ _Annual Reports of the Postmaster-General_ 1859 et seq.

[503] _British Official Records_, 1863.

[504] See _supra_, p. 31.

"The public felt aggrieved at the restriction, and, as the difficulty of defining samples in all cases could not be overcome, it was decided to reduce the inland letter postage to such an extent as would enable the public to send through the post in closed covers not only patterns and samples, but also any light articles for a moderate charge; thus abolishing altogether the distinction between letters and samples, and providing a cheap and convenient post for small parcels."--_Seventeenth Report of the Postmaster-General_, London, 1871, p. 4.

[505] _Report of Select Committee on Estimates of Revenue Departments_, 1888, p. 24.

It may be noted, in justification of the view sometimes advanced that additional traffic can without loss be undertaken by the Post Office at rates lower than those for the main services, that in this case the Post Office anticipated that no direct additional expense would be incurred in the provinces in dealing with the increase of traffic, and that in London the additional expense would only amount to some [L]500 a year.

[506] See _supra_, p. 223.

[507] Arr[^e]te of 4th March 1858. In 1881 these limits were raised slightly--to 350 grammes and to 30 centimetres respectively.

[508] In 1871 the Compagnie des Chemins de Fer de l'Est filed a petition in which they contested the right of the Post Office to send samples of merchandise by railway without specially remunerating the railway company. They claimed that under the law they were obliged to carry free only "letters" and "despatches." The case was, however, decided against the company.--P. Jaccottey, op. cit., p. 334.

[509] Ibid., p. 333.

[510] _Statistique g['e]n['e]rale du service postal_, Berne, 1914, p. 7.

[511] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 270.

[512] _Archiv f[:u]r Post und Telegraphie_, 1880, p. 273.

[513] Dr. Artur Schmidt, _Finanz-Archiv_, 1905, vol. ii., p. 180.

[514] 9 Anne, cap. 10, [S] 13.

[515] H. Joyce, _History of the Post Office_, p. 332.

[516] 6 Geo. I, cap. 21.

[517] 41 Geo. III, cap. 7, [S] 4.

[518] "We find that in France, and generally on the Continent, the circulation of Prices Current, at a low charge, is encouraged by the Government, and we are of opinion that any facility which can be given for the transmission of mercantile information must tend to promote the commercial interests of the country; we therefore beg to recommend to your Lordships, in the first place, that English Prices Current, and Publications of a similar nature published in this country, be permitted to pass through the medium of the Post Office without the imposition of a charge so high as to impede their general circulation.... We hope ... your Lordships may find it practicable to permit the free transmission of Prices Current by post, if printed on paper bearing a halfpenny stamp."--_Fifth Report of Commissioners_ (11th April 1836), pp. 3, 4.

[519] "Cette assimilation les soumettait [a'] des taxes exorbitantes; elle provoquait la fraude, et multipliait les contraventions au monopole de la poste."--P. Jaccottey, op. cit., p. 319.

[520] See _supra_, p. 225.

[521] "Als Gesch[:a]ftspapiere sind zugelassen: alle Schriftst[:u]cke und Urkunden, ganz oder teilweise mit der Hand geschrieben oder gezeichnet, welche nicht die Eigenschaft einer eigentlichen und pers[:o]nlichen Korrespondenz haben, wie Prozessakten, von [:o]ffentlichen Beamten aufgenommene Urkunden jeder Art, Frachtbriefe oder Ladescheine, Rechnungen, Quittungen auf gestempelten oder ungestempelten Papier, die verschiedenen Dienstpapiers der Versicherungsgesellschaften, Abschriften oder Ausz[:u]ge aussergerichtlicher Vertr[:a]ge, gleichviel ob auf gestempelten oder ungestempelten Papier geschrieben, handschriftliche Partituren oder Notenbl[:a]tter, die abgesondert versandten Manuskripte von Werken oder Zeitungen, korrigierte Sch[:u]lerarbeiten mit Ausschluss jeglichen Urteils [:u]ber die Arbeit, Militarp[:a]sse, Lohn-, Dienst- oder Arbeitsb[:u]cher, u.s.w. ([S] 9, Postordnung)."--_Finanz-Archiv_, 1905, vol. ii., p. 180.

[522] _L'Union postale_, Berne, 1st July 1876.

[523] A proposal to introduce postcards in France was made by M. Wolowski in the National Assembly on the 23rd August 1871, in the debate on the Bill for raising the rates of postage. The proposal was rejected on account of the probable effect on the revenue. The cards would no doubt substitute letters to some extent, and at the time, of course, the chief object in view was an increase of revenue. M. Wolowski repeated his proposal in 1873 as an amendment to the Budget. He was able to point to the effect in England of the introduction of postcards--an increase of 6 per cent. in the number of letters, as compared with an increase of 6 per cent. in the year preceding their introduction. The proposal was opposed by the Budget Commission and by the Government, but the amendment was voted by the Assembly and was incorporated in the law of the 20th December 1872. The rate of postage was fixed at 10 centimes for cards circulating within the area served by the same office and 15 centimes for others. (The minimum letter rate was at this time 15 centimes for letters circulating in the area served by the same office and 25 centimes for others.) In 1878 the rate was made uniform at 10 centimes for all cards. This rate still continues in respect of cards bearing written messages in the nature of personal communications, but it has been reduced to 5 centimes in respect of picture postcards or commercial advertisement cards which do not boar a written communication of more than five words. The circulation of postcards is naturally much restricted, and the reduction of the general rate to 5 centimes is much desired. There has been a good deal of discussion of the matter by the parliamentary Budget Commissions, but financial considerations have so far prevented the concession of this boon.

[524] See _infra_, pp. 303-4; cf. C. H. Hull, op. cit., p. 146.

[525] _Annual Report of Postmaster-General_, 1913-14, p. 1.

[526] E.g., "As to books for the blind, there can be only one opinion. The afflicted must be looked after before anybody else."--Sir Adolphe Caron, _Parliamentary Debates, Canada_ (_Commons_), 13th May 1898.

[527] Cf. _supra_, Chapter II.

[528] "Inland post comprehends all matter deposited in a post office in Canada for delivery either from the same or from any other post office in Canada.

"Such matter is divided into four classes:--

"(1) Letters, postcards, and all matter either wholly or partly in writing or typewriting, except the manuscript of books or newspapers and certain documents of the Dominion and Provincial Governments and of Municipal Authorities, which belong to Class 3.

"(2) Newspapers and periodicals.

"(3) Printed matter not included in Class 2, samples, and certain miscellaneous matter.

"(4) Merchandise."--_Canada Official Postal Guide_, 1912, p. 4.

[529] See _supra_, p. 158.

[530] See _infra_, pp. 336-7.

[531] See _The Practical Method of the Penny Post_, London, 1681.

[532] The "General Post" was the term applied to the service throughout the country as distinguished from local services.

[533] The General Post Office only provided for the delivery of letters within a restricted area. See _Ninth Report of Commissioners of Post Office Inquiry_, 1837, p. 5.

[534] 12 Car. II, cap. 35, [S] 2.

[535] 9 Anne, cap. 10, [S] 6.

[536] 4 Geo. II, cap. 33. See D. Macpherson, op. cit., vol. iii., p. 169.

[537] _Ninth Report of the Commissioners of Post Office Inquiry_, 1837, pp. 1 and 2.

[538] "We have said that to us who live at the end of the nineteenth century it may appear incredible that up to April 1680 the General Post Office in Lombard Street was the only receptacle for letters in the whole of London. But it is by no means certain that our descendants may not think it more incredible still that London, with all its boasted progress, has only now recovered a post which, in point of convenience and cheapness, at all approaches that which an enterprising citizen established more than two hundred years ago."--H. Joyce, _History of the Post Office_, pp. 41, 42.

[539] "No stage-coach entered London without the driver's pockets being stuffed with letters and packets, and he was moderate indeed if he had not a bagful besides. The waggoner outstripped his waggon and the carrier his pack-horse: and each brought his contribution. The higgler's wares were the merest pretext. It was to the letters and packets that he looked for profit."--H. Joyce, ibid., p. 55.

[540] When threatened by the Postmasters-General with prosecution "according to the utmost rigour of the law," he replied, according to their account, that "he should not be so unjust to himself as to lay down his undertaking at our demand, that his case was not as Mr. Dockwra's was, neither did we live under such a constitution as he did when the penny post was first set up (that is, an arbitrary government and bribed judges)."--_Ninth Report of the Commissioners of Post Office Inquiry_, 1837, p. 71.

[541] 5 Geo. III, cap. 25, [S] 11.

[542] _Ninth Report of the Commissioners of Post Office Inquiry_, 1837, p. 66.

[543] 5 Geo. III, cap. 25, [S] 14.

[544] 34 Geo. III, cap. 17.

[545] 41 Geo. III, cap. 7.

[546] _Ninth Report of the Commissioners of Post Office Inquiry_, 1837, p. 6.

[547] 45 Geo. III, cap. 11.

[548] Clause 1.

[549] These changes followed the recommendations of the Commissioners of Revenue Inquiry, who, in their Twenty-first Report (1830), remarked strongly on the intricacy and confusion of the boundaries of the posts in London, viz. the General Post, the Foreign Post, the twopenny post (town delivery), and the twopenny post (country delivery). All these had different delivery areas, and in addition there was the "threepenny post town delivery," comprising the area lying between the limits of the General Post delivery and those of the town delivery of the twopenny post.

[550] The following statement shows the rates charged in the twopenny post:--

"For every letter transmitted by such Post within the limits of
delivery for the time being of the General Post 2d.

For every letter transmitted by such Post between a place within
the said limits and any place beyond the same, or between places,
both of which are beyond the said limits 3d.

And for every letter originally sent by the General Post directed
to places beyond the said limits, and for every letter originally sent
by the Twopenny Post, and afterwards passing through the General Post,
in addition to all other rates chargeable thereon 2d.

Newspapers sent by the Twopenny Post, and not passing or intended
to pass by the General Post, are charged each 1d.

But newspapers by the General Post and delivered by the Twopenny Post, received by the Twopenny Post and afterwards passing by the General Post, have, since August 1836, been exempted from postage."--_Ninth Report of the Commissioners of Post Office Inquiry_, 1837, p. 4.

[551] "It is on this principle that it has been found that where a letter has been dropped into the post office in a city, and delivered by a letter-carrier, it does not pay to deliver it for 1 cent, which is just half the rate charged in any other country in the world; and this provision is to assimilate the rate to that prevailing in other countries."--Mr. Haggart, _Parliamentary Debates, Canada_ (_Commons_), 9th April 1889.

[552] "We have been influenced to make this change from the fact that in large cities and towns the departmental stores, the manufacturing establishments, and other concerns which do a large postal business, use the messenger service to deliver their letters as they found it cheaper, and in this way a large amount of revenue was lost to the Post Office.... Several firms will amalgamate their messenger service, employing say five or ten boys, to whom they will pay 1 cent or 1/2 cent for each letter, and in that way they will make a profit. Of course, this action on their part is illegal, but it is one of those illegalities that we can hardly prosecute, and we thought it was better to adopt the uniform 1-cent rate which we had formerly."--Hon. R. Lemieux (Postmaster-General), _Parliamentary Debates, Canada_ (_Commons_), 16th June 1908.

[553] A. de Rothschild, _Histoire de la Poste aux Lettres_, Paris, 1879, p. 98.

[554] "16 ao[^u]t 1653.--On fait [a'] scavoir [a'] tous ceux qui voudront ['e]crire d'un quartier de Paris en un autre, que leurs lettres, billets ou m['e]moires seront fid[e']lement port['e]s et diligemment rendus [a'] leur addresse, et qu'ils en auront promptement responce, pourvu que lorsqu'ils escriront, ils mettent avec leurs lettres un billet qui portera: _port-pay['e]_, parce que l'on ne prendra point d'argent; lequel billet sera attach['e] [a'] la dite lettre, ou mis autour de la lettre ou pass['e] dans ou en telle autre mani[e']re qu'ils trouveront [a'] propos, de telle sorte n['e]anmoins que le commis le puisse voir et oter ais['e]ment. La date sera remplis du jour ou du mois qu'il sera envoy['e]. Le commis g['e]n['e]ral qui sera au Palais rendra de ces billets de _port-pay['e]_ [a'] ceux qui en voudront avoir, pour le prix _d'un sol marqu['e]_; et chacun est adverti d'en acheter pour sa n['e]cessit['e] le nombre qu'il lui plaira, afin que lorsqu'on voudra escrire, l'on ne manque pas pour si peu de chose [a'] faire ses affaires."--Advertisement issued by M. Velayer, cited A. de Rothschild, _Histoire de la Poste aux Lettres_, Paris, 1879, p. 101.

[555] A. de Rothschild, ibid., p. 145.

[556] A. Belloc, _Les Postes francaises_, Paris, 1886, p. 200.

[557] Moch, _Archiv f[:u]r Post und Telegraphie_, 1893, p. 38.

[558] 30th May 1865.

[559] Order of 22nd October 1869.

[560] Moch, ibid.

[561] Moch, ibid.

[562] Administrative order of 18th December 1874.

[563] Moch, _Archiv f[:u]r Post und Telegraphie_, 1900, p. 735.

[564] "Als Nachbarorte im Sinne des Gesetzes sollen solche Orte der engen unmittelbaren Nachbarschaft gelten, deren bebaute Ortsgrenzen nicht zu weit von einander entfernt bleiben und die wegen ihrer Lage und ihres wirtschaftlichen Zusammenhanges als ein einheitlicher Verkehrsbezirk (Taxgruppe) angesehen werden k[:o]nnen, ferner aber solche Orte, die zwischen zwei hiernach eine Taxgruppe bildenden anderen Orten an der diese verbindenden Strasse oder Eisenbahn liegen, auch wenn ein wirtschaftlicher Zusammenhang hier nicht vorhanden ist."--Moch, ibid.

[565] Ibid., p. 736; Articles 2 and 3 of law of 20th December 1899.

[566] _Reichstag, Official Reports_, vol. ii., p. 1006.

[567] "Um ein klar wirkendes Bild von dem Umfange der Verkehrszunahme zu geben, sei nur erw[:a]hnt, dass die Ober-Postdirektion in Berlin im Kalenderjahre 1900 eine um 106 Beamte und 1,606 Unterbeamte h[:o]here. Personal verst[:a]rkung f[:u]r ihren Bezirk hat eintreten lassen mussen als im Jahre vorher; am 1 April 1900 sind allein--ohne die zahlreichen Aush[:u]lfskr[:a]fte--860 Unterbeamte neu eingestellt worden."--_Deutsche Verkehrs-Zeitung_, Berlin, 8th March 1901, p. 131.

[568] Ibid.

[569] Ibid., p. 132.

[570] Order of 20th March 1900. See Moch, _Archiv f[:u]r Post und Telegraphie_, Berlin, 1900, p. 737.

[571] Order of 29th March. W. Hess, ibid., 1910, p. 448.

[572] _Reichstag, Official Reports_, 17th May 1906.

[573] _Finanz-Archiv_, 1906, vol. ii., p. 253.

[574] "Une partie des pays qui out pris part au Congr[e']s de Berne avait fix['e] le maximum du poids des lettres [a'] 250 grammes; l'autre partie n'avait fix['e] aucune limite de poids. Dans certains pays, l'['e]paisseur des lettres ['e]tait limit['e]e. Au Danemark, par exemple, elle ne pouvait pas d['e]passer 2-5/8 centimetres. La Grande-Bretagne avait fix['e] le maximum de dimension des lettres pour l'['e]tranger [a'] 2 pieds (60 centim[e']tres) en longueur et [a'] 1 pied (30 centim[e']tres) en largeur ou ['e]paisseur.

"Le port des lettres se calculait tant[^o]t pas 7-1/2 grammes, tant[^o]t par 10 grammes et tant[^o]t par 15 grammes; parfois aussi l'['e]chelle de progression ne comportait que deux poids (lettres de 15 grammes et lettres de plus de 15 grammes).

"Les taxes des lettres d'un pays diff['e]raient presque pour chaque pays correspondant; en outre, la taxe d'une lettre pour un seul et m[^e]me pays variait fr['e]quemment suivant la voie d'exp['e]dition. L'Allemagne n'avait pas moins de 7 taxes pour les lettres affranchis [a'] destination des autres pays d'Europe (abstraction faite des taxes r['e]duites pour les rayons limitrophes); la France n'en avait pas moins de 6, et la Grande-Bretagne pas moins de 9; les Etats-Unis d'Am['e]rique en avaient 5 pour leurs rapports avec 10 pays europ['e]ens. La moins ['e]lev['e]e de ces taxes ['e]tait, pour l'Allemagne, de 10 pfennig jusqu'[a'] 15 grammes (20 pfennig de 15 [a'] 250 grammes); pour la France, de 25 centimes par 10 grammes; pour la Grande-Bretagne, de 3 pence par 1/2 once; pour les Etats-Unis d'Am['e]rique, de 6 cents par 1/2 once. La plus ['e]lev['e]e ['e]tait, pour l'Allemagne, de 30 pfennig par 10 grammes; pour la France, de 70 centimes par 10 grammes; pour la Grande-Bretagne, de 6 pence par 1/4 once; pour les Etats-Unis d'Am['e]rique de 10 cents par 1/2 once.

"Les taxes des lettres [a'] destination des pays d'outre-mer variaient davantage encore; elles ['e]taient, en outre, toujours extr[^e]mement ['e]lev['e]es. Une lettre affranchie de l'Allemagne pour le P['e]rou, [a'] exp['e]dier par la voie de Hambourg, payait 100 pfennig par 15 grammes; si elle ['e]tait exp['e]di['e]e par la voie d'Angleterre ou de France, elle payait 120 pfennig par 15 grammes. Pour une lettre d'une 1/2 once de la Grande-Bretagne pour la Bolivie, l'exp['e]diteur devait payer 1 shilling 6 pence et une taxe additionnelle ['e]tait, en outre, r['e]clam['e]e du destinataire. Une lettre simple de la Russie pour la Cochinchine (voie des paquebots francais) payait 75 kopecks; de l'Autriche pour la R['e]publique de Honduras (voie de Panama), 84 kreuzer; de l'Italie pour la R['e]publique Argentine ou l'Uruguay (voie de Belgique), 2 lire 40 centesimi.

"Pour ses relations avec le Japon, la Russie no disposait pas de moins de 9 voies d'['e]xp['e]dition, pour lesquelles il existait 8 taxes diff['e]rentes rien pour les lettres affranchies."--M. E. Ruffy, _L'Union postale universelle_; _sa fondation et son d['e]veloppement_, Lausanne, 1900, pp. 20, 21.

[575] Austria, Belgium, Costa-Rica, Denmark, Ecuador, Spain, France, Great Britain, Italy, Holland, Portugal, Prussia, the Sandwich Islands, Switzerland, and the Hanse Towns.

[576] M. E. Ruffy, _L'Union postale universelle; sa fondation et son d['e]veloppement_, Lausanne, 1900, p. 13.

[577] Or, as they were called, "principes g['e]n['e]raux de nature [a'] faciliter les relations de peuple [a'] peuple par la voie de la poste et pouvant servir de base aux conventions internationales destin['e]es [a'] r['e]gler ces relations."--Ibid.

[578] _Documents du Congr[e']s postal international_, Berne, 1874, pp. 3-7. See M. E. Ruffy, ibid., pp. 39, 40 and 41.

[579] _Documents du Congr[e']s postal international_, Berne, 1874, p. 23.

[580] "Toutefois, comme mesure de transition, il est r['e]serv['e] [a'] chaque pays, pour tenir compte des convenances mon['e]taires ou autres, la facult['e] de percevoir une taxe sup['e]rieure ou inf['e]rieure [a'] ce chiffre, moyennant quelle ne d['e]passe pas 32 centimes et ne descende pas au dessous de 20 centimes....

"Pour tout transport maritime de plus de 300 milles marins dans le ressort de l'Union, il pourra [^e]tre ajout['e] au port ordinaire une surtaxe qui ne pourra pas d['e]passer la moiti['e] de la taxe g['e]n['e]rale de l'Union fix['e]e pour la lettre affranchie."--Article 3 of Convention, ibid., p. 140.