The History of the Post Office Part 1

The History of the Post Office.

by Herbert Joyce.

CHAPTER I

EARLY POSTS

1533-1609

The early history of the posts is involved in some obscurity. What little is known on the subject is touched upon in the first Annual Report of the Post Office, the Report for 1854; but the historical summary there given is, as it purports to be, a summary only. The object of the following pages is nothing more than to fill up the gaps and to supply some particulars for which, though not perhaps without interest, an official report would be no fitting place. The origin and progress of an inst.i.tution which has so interwoven itself with the social life of the people as to have become one of the most remarkable developments of modern civilisation can hardly, we think, be considered a subject unworthy of study.

It seems almost certain that until the reign of Henry the Eighth, or perhaps a little earlier, no regular system of posts existed in England, and that then and for some considerable time afterwards the few posts that were established were for the exclusive use of the Sovereign.

"Sir," writes Sir Brian Tuke to Thomas Cromwell in 1533, "it may like you to understonde the Kinges Grace hathe no moo ordinary postes, ne of many days hathe had, but bitwene London and Calais ... and sens October last, the postes northewarde.... For, Sir, ye knowe well that, except the hakney horses bitwene Gravesende and Dovour, there is no suche usual conveyance in post for men in this realme as is in the accustumed places of France and other parties." Sir Brian Tuke held the appointment of Master of the Posts, and he had received the King's commands to set up posts "in al places most expedient."

Before Henry's reign the only letters of which any record exists, letters to or from the Court and on affairs of State, were sent by couriers employed for the particular occasion. These couriers, styled "Nuncii" and "Cursores," appear to have answered to the Queen's messengers of our own time, and, as is evident from records still extant and dating back to the reign of Henry the Third, must have formed an important branch of the royal establishment.

To establish posts and to control them when established was not all or nearly all that Brian Tuke had to do. He had also to see, even where no posts existed, that the royal couriers were not kept waiting for horses; and this probably was his original function. The horses were provided by the towns.h.i.+ps, and the towns.h.i.+ps were kept up to their duty by the Master of the Posts. In some cases, indeed, special provision appears to have been made. At Leicester,[1] for instance, the members of the Corporation bound themselves under penalty to keep four post-horses in constant readiness for their Sovereign's use; but this can hardly have been a common practice. Where horses were not provided voluntarily, the magistrates and constables had orders to seize them wherever they could be found.

[1] 9 April, 17 Elizabeth.--Further att the same Common Hall [of the town of Leicester] it was for dyuers cawses thought good and mete for the service of the Prince to have at the chargies of the Towne certen poste horses kepte, whearevppon theare was appoynted foure to be kepte, which, thees persouns vnderwritten have vndertaken to kepe, and to serve from tyme to tyme so oft as nede shalle requier, for and dureinge the s.p.a.ce of one wholle yeare nexte after the date hereof, viz. Mr. Roberte Eyricke, one; Fraunces Norris, chamberlayn, twoe; Thomas Tyars, one. For the which theyre is allowed vnto them of the towne for euerie horse thurtie-three s.h.i.+llinges and foure pence, that is to say for foure horses vili. xiiis. iiiid. Provyded always that if theye the said Robert Eyricke, Frauncis Norrys, and Thomas Tyars doe not kepe good and able horses for that purpose and to be readie vppon one half howres warnynge to forfitt, lose, and paye for euerie tyme to the Chamber of the Towne of Leycester the somme of fyve s.h.i.+llinges. For the payement of the said xxli. n.o.bles it is further agreed vppon, in the manner and forme followinge, That is to saye, the Mayor and euerie of his bretherene called the xxiiii. to paye iis. a pece, and euerie of the xlviii. xiid.

a pece, and the Resydue that shalbe then lackinge to be levied of the commonaltie and inhabitantes of the said towne and the liberties thereof.--Appendix to the Eighth Report of the Royal Commission on Historical Ma.n.u.scripts, p. 425.

The close connection between the posts and the Sovereign continued long after the reign of Henry the Eighth. In 1572 Thomas Randolph, Master of the posts to Queen Elizabeth, rendered an account of the charges to which he had been put in the execution of his trust during the preceding five years; and in this account, which is given in considerable detail, not a single post is mentioned without some qualification identifying it with the person of the Sovereign--a post daily serving Her Majesty, a post for Her Majesty's service and affairs, a post during the time of Her Majesty's progress, a post for the conveyance of Her Majesty's letters and those of her Council. As late as 1621 all the posts of the kingdom, which even then were only four in number, started from the Court. I. "The Courte to Barwicke," _i.e._ the post to Scotland. II.

"The Courte to Beaumoris," _i.e._ the post to Ireland. III. "The Courte to Dover," _i.e._ the post to the Continent. IV. "The Courte to Plymouth," _i.e._ the post to the Royal Dockyard.

The setting up of a post for a particular purpose and letting it drop as soon as the purpose had been answered was another peculiarity of these early times. The post to Plymouth, ordained in 1621 to be one of the standing posts of the kingdom, had been dropped since 1611, having then been declared to be unnecessary except in time of war. Even the post to Ireland had at one time been dropped and was not revived until 1598. In the same year a second post to Ireland, Irish affairs being then considered to require "oftner dispatches and more expedition," was set up by way of Bristol, and this in its turn disappeared. Indeed, it would probably not be too much to say that at the beginning of the seventeenth century no post set up in England during a war had lasted longer than the war itself. This practice of dropping a post as soon as it had served its purpose, a practice which must almost necessarily have existed from the earliest times, would seem to explain Brian Tuke's meaning when, after stating that in 1533 except those he mentioned "the Kinges Grace hathe no moo ordinary postes," he adds, "ne of many days hathe had."

For the regulation of the posts the earliest instructions of which we have any record were issued by Queen Elizabeth. Every "post" was to keep and have constantly ready two horses at least, with suitable "furniture." He was to have at least two bags of leather well lined with baize or cotton, and a horn to blow "as oft as he meets company" or four times in every mile. He was, after receiving a packet, to start within fifteen minutes, and to run in summer at the rate of seven miles an hour and in winter at the rate of five. The address of the packet and the day and the hour at which he received it were to be carefully entered in a book to be kept for the purpose. But the packets which were thus to be treated were only such as should be on the Queen's affairs or the affairs of State. "All others" are dismissed in a word. These, the instructions state, are "to pa.s.se as by-letters." To pa.s.s as by-letters probably means that the letters were to go when and as best they might, but that the post was not to go for the purpose of taking them. This view is confirmed by an order of the subsequent reign, that "no pacquets or letters," except such as were on the King's affairs, should "binde any poste to ride therewith in post." But be the meaning what it may, the expression seems to shew that even in the reign of Elizabeth letters other than State letters had begun to be sent to the post-houses, and that such letters, if barely recognised, were yet not excluded.

But the conveyance of the Sovereign's letters was not the only purpose which the posts as originally established were designed to serve.

Another and hardly less important purpose was that there should be stationed and in constant readiness, at given distances along the chief roads of the kingdom, a relay of horses by which persons travelling on their Sovereign's concerns, even though not the bearers of letters, might pa.s.s between one part of the country and another. Of this second purpose a few words implanted in the English language, such as post-horse, post-boy, and travelling-post, are all that we have now left to remind us. But long after the public had been admitted to the free use of the post, the two objects of providing for letters and providing for travellers continued to be treated as inseparable. Hence the history of the posts during the seventeenth century and far into the eighteenth becomes complicated with the history of travelling.[2]

[2] The two posts were, at first, distinguished by different names. The travellers' post was called "The thorough poste," and the letter post was called "The Poste for the Pacquet."

Indeed, there can be little doubt that it was as a means of travelling and not as a means of correspondence that the post first came to be used by others than those employed on affairs of State. Writing, during the sixteenth century, was an accomplishment possessed by comparatively few, whereas any one might have occasion to travel; and the resources of travelling, so far as these partook of an organised system, were in the hands of the Sovereign. Wherever there were posts, it was at the Sovereign's charge and for the Sovereign's use that horses were maintained; and where there were no posts, it was only for the use of the Sovereign that the towns.h.i.+ps were under obligation to supply horses.

The natural consequence followed. People pretended to be travelling on their Sovereign's affairs who were really travelling on affairs of their own, and so procured the use of horses which would otherwise have been denied them. The horses, moreover, were overridden and overloaded, and the persons by whom they were hired not rarely forgot to pay for them.[3]

[3] Austria, in the infancy of her post office, appears to have had much the same experience. "The postmasters," writes M. Laeper, Director of Posts at Markirch, "were in no way protected from the most outrageous behaviour on the part of travellers, and were unable to prevent them from overloading the horses and vehicles with unreasonably heavy things, chests, boxes, and similar articles, by which the conveyance of the same was delayed. They could not hinder many travellers from riding heavily-laden horses at full speed over hill and dale without drawing rein, so that the animals were crippled, disabled, or even ridden to death, and in consequence the postmasters were frequently unable to carry out the service for want of horses. The worst treatment, however, which the postmasters experienced was at the hands of cavaliers and couriers, who often demanded more horses than they needed, took them by force, overloaded the coaches with two or three servants, and with an immoderate quant.i.ty of luggage, and paid an arbitrary sum, just whatever they pleased, often not half what was due."--L'Union Postale of October 1, 1885.

No sooner had James the First come to the throne than he issued a proclamation having for its object to check these abuses. Only those were to be deemed to be travelling on public affairs who held a special commission signed by one or more of the princ.i.p.al officers of State. No horse was to be ridden, in summer, above seven miles an hour, and in winter above six; nor yet, without the knowledge and consent of the owner, beyond the next stage. The load, besides the rider, was not to exceed thirty pounds in weight. Persons riding with special commission were to pay for each horse 2-1/2d. a mile, besides the guide's groats, and "others riding poste with horse and guide about their private businesses" were to make their own terms. In all cases payment was to be made in advance. The proclamation contained another and most important provision, the effects of which were felt far into the next century.

This was that, wherever posts existed, those who had the horsing of the posts were also to have the exclusive letting of horses to travellers.

If the post-houses could not supply horses enough, the local constables with the a.s.sistance of the magistrates were to make good the deficiency.

The proclamation of 1603 was soon followed by another, prohibiting all persons not being duly authorised by the Master of the Posts from being concerned in the collecting, carrying, or delivering of letters. The effect, therefore, of the two proclamations together was that, except by private hand, no letter and, except along the bye-roads where posts did not exist, no traveller could pa.s.s between one part of the kingdom and another without coming under the observation of the Government. It has been suggested that the State monopoly of letters had its origin in a desire on the part of the Sovereign to reserve to himself the revenue which the letters brought; but in 1609, when the monopoly was created, the posts were maintained at a clear loss to the crown of 3400 a year, and this loss, as matters then stood, the erection of every fresh post would serve to increase. However it may have been in after years, the original object of the monopoly, the object avowed indeed and proclaimed, was that the State might possess the means of detecting and defeating conspiracies against itself. A system such as this object implies is absolutely abhorrent to our present notions; and yet it is a fact beyond all question that the posts in their infancy were regarded and largely employed as an instrument of police. It was not until the reign of William the Third that they began to a.s.sume their present shape of a mere channel for the transmission of letters.

But we are antic.i.p.ating. In 1609 the cloud which obscures the earlier history of the posts begins to break, and from that year it is possible to present a tolerably connected narrative of their progress.

CHAPTER II

THE BATTLE OF THE PATENTS

1609-1635

At the beginning of the seventeenth century the established posts were only four in number,--the post to Scotland, the post to Ireland, the post to Plymouth, and the post to Dover; and of these the most important by far, because the most used, was the last, the post through the county of Kent. It was through this county that the high-road to the Continent lay, and, while commercial relations as between one town and another within the kingdom were yet a thing of the future, the foreign trade of the country had already reached very considerable proportions. The persecutions in France and the Low Countries had driven a large number of foreigners to London, and here the Flemings introduced the manufacture of wool into cloth. In this commodity alone the exports from England to the Netherlands in the time of Philip the Second amounted to five millions of crowns annually.[4] In education no less than manufactures the Flemings were far in advance of our own countrymen.

There was scarcely a peasant among them that could not both read and write. While, therefore, the other three posts of the kingdom were still being little used except for letters on affairs of State, the post to the Continent had already become matter of public concern.

[4] An amusing ill.u.s.tration of the value which, at the end of the sixteenth century, was set upon cloth made in London is afforded by a letter from Frederick the Second of Denmark to Queen Elizabeth. This letter, dated the 14th of June 1585, is thus summarised in the 46th Annual Report of the Deputy-Keeper of the Public Records, Appendix ii., page 28: "Has for some years past had cloth prepared in London of different colours and after a particular pattern, for his use in hunting both in summer and winter. Hears now that certain German merchants, having found this out, have had similar cloth manufactured, which they sell everywhere, outside his Court and family, to many inquisitive and foolish imitators, at a very dear rate. It is no concern of his what anybody may wear, but still, as this cloth was made of a special kind and colour for himself, he takes it ill that it should be sold to others, and begs her therefore (on the application of his agent, Thomas Thenneker) strictly to prohibit the sale."

This post had long been jealously watched, the foreign merchants in London claiming to send their letters by their own agents, and the Crown insisting that they should be sent only through the established channel.

It was an old feud, extending far back into the sixteenth century. In 1591 a proclamation on the subject had been issued. This, in respect to the post through the county of Kent, established that State monopoly of letters which was not made general until eighteen years afterwards. It was to the protection of the same post that the proclamation of 1603 had been directed, the proclamation reserving to those who horsed the posts the exclusive right of letting horses to travellers. But these measures had been of little avail. The foreign merchants still employed their own agents to carry their letters, and these agents, instead of resorting to the post-houses, still procured horses where and as best they could.

Once more recourse was had to a proclamation, which differed little from others that had gone before except in one important particular. This was the open avowal that among the chief cares of the State it had been and continued to be by no means the least "to meete with the dangerous and secret intelligences of ill-affected persons, both at home and abroad, by the overgreat liberty taken both in writing and riding in poste, specially in and through our countie of Kent." The magistrates were enjoined to take care that horses were procured at the post-houses alone. No letters were to be sent except through the post, and notice to this effect was to be served upon all the merchants of the city of London, "both strangers and others." Unauthorised persons suspected of having letters upon them were, before entering or leaving the kingdom, to be searched. And any packets or letters found to be illicitly conveyed were to be sent up to the Privy Council, and the bearers of them to be apprehended and kept in safe custody pending the Council's orders.

At this time the office of Master of the Posts was held by Lord Stanhope of Harrington, and under Lord Stanhope, to superintend the foreign post, was employed a foreigner of the name of De Quester. This man, with the a.s.sistance of his son, appears to have discharged his duties efficiently. He made communication with the Continent both cheaper and more expeditious. His prompt.i.tude in forwarding the public despatches had attracted the attention of his Sovereign. In 1619, in recognition of these services, the King created the control of the foreign post into a separate appointment, independent of Lord Stanhope, and conferred it upon De Quester and his son, under the t.i.tle of "Postmaster of England for Foreign parts out of the King's Dominions."

It is possible that De Quester's appointment, though ostensibly a reward for good service, was dictated in part by policy. But if designed to appease the foreign merchants, it signally failed of its object. The truth seems to be that they were animated by feelings of profound distrust. Many years later, when De Quester had retired, the English merchants, in a pet.i.tion to the King, protested against the choice of a successor being left to the "strangers." This, they said, would be to their own great prejudice. Even the letters patent by which that successor was appointed give as a reason for not letting the strangers have a post of their own that thus the secrets of the realm would be disclosed to foreign nations. Such being the feelings on one side, it would be strange indeed if they had not also existed on the other.

De Quester's appointment, while displeasing to the foreign merchants, gave dire offence to Lord Stanhope. The letters patent by which this peer held his office had expressly declared that not only the internal posts of the kingdom were to be under his direction, but also those "beyond the seas within the King's dominions." This expression, repeated from former patents, applied, no doubt, to Calais. And yet, could it in reason be contended that his rights were not being infringed if the post through which all letters between London and the Continent pa.s.sed were transferred to other hands? Except for the practice of granting offices in remainder, Stanhope's death at this time would have settled the difficulty. As a matter of fact, however, the difficulty had only begun.

By a deed granted thirteen years before, his son and successor in the t.i.tle succeeded also to the office of Master of the Posts, and it soon became evident that the younger Stanhope had no intention, without a struggle, of letting the grant to himself be whittled away by a subsequent grant to another. The Council, not composed of laymen alone, but comprising among its members Coventry, soon to become Lord Keeper, and Heath, the Solicitor-General, advised the King that "both grants might well stand together, being of distinct places." Stanhope rejoined that his was "an ancient office tyme out of minde," and that by prescription it carried with it the control of letters pa.s.sing between England and the Continent as well as others. Again the Council reported against his claim. In support of it, they said, no patent or proofs had been adduced before them more ancient than the time of Henry the Eighth.

Stanhope, who remained unconvinced, now proceeded to a.s.sert his rights, or what he conceived to be his rights, with remarkable vigour. He caused De Quester to be molested in the discharge of his duties; he placarded the city of London, cautioning all persons against sending letters except by his own agents; he inst.i.tuted proceedings in the Court of King's Bench; and he even stirred up the foreign merchants to make common cause with himself against the intruder.

The probable explanation of Stanhope's conduct is that De Quester's appointment touched him in that most sensitive part, the pocket. His salary as Master of the Posts was 66:13:4 a year, and this he would of course receive in any case; but on letters to the Continent there were certain fees to be paid, a fee of 8d. on each letter to or from Amsterdam, and a like sum between London and Antwerp or London and Hamburgh, and these, as seems to have been admitted in the suit at law, were the motive cause.

In vain the King proclaimed against Stanhope's proceedings. The Privy Council met to consider the question as between him and De Quester, and separated without coming to a conclusion. Four more meetings were held, and with an equally unsatisfactory result. Clearly there was a conflict of opinion at the Council Board. Meanwhile the decisions as regards the merchants were marked by extraordinary vacillation. First, the Merchant Adventurers were "to have a post of their owne choice" to the city of Hamburgh and town of Delph, "where the staples of cloth are now fetched or to such other place or places whither the same shall happen to be removed"; then they were summoned before the Council to shew cause why they also should not send their letters by De Quester; then the concession was not only confirmed in the case of the Merchant Adventurers, but extended to all other "Companies of Merchants"; and then in the case of these other companies the concession was withdrawn, but only, in the course of a few weeks, to be restored. Only few restrictions were imposed. No one carrying the merchants' letters was to "keepe any publick office," to "hange up any Tables," or to "weare any Badge"; nor was he to be employed until his name had been submitted to the Secretary of State for approval. It was also provided that in times of war or danger the Secretary of State, if he required it, was to be "made acquainted" with the letters and despatches which the messenger carried.

The final decision of the Council, which left the merchants in possession of a post of their own, practically superseded De Quester's appointment, and this drew forth an indignant protest from Sir John c.o.ke. The two Secretaries of State, of whom c.o.ke was one, had been specially charged with the protection of De Quester's office, and the decision had been arrived at in their absence. Meanwhile a broker, of the name of Billingsley, was carrying the merchants' letters, and the same man was being employed by Stanhope. c.o.ke's indignation knew no bounds. "I confess," he said, "it troubleth me to see the audacity of men in these times, and that Billingsley, a broker by trade, should dare to attempt thus often to question the King's service, and to derive that power of foreign letters unto merchants which in all states is a branch of regal authority." Can any place in Christendom be named where merchants are allowed to send their letters except through the authorised post? It is true that, as an act of grace, the Merchant Adventurers here have been suffered to send and receive their letters by private hand; but such letters have been only to and from their own mart towns and concerning their private business. That this man of theirs should be suffered to carry any letters he please--letters from merchants in general, and even from amba.s.sadors, is a thing that has never been heard of nor durst any attempt it before. "Indeed the merchants' purse hath swayed very much in other matters in former times, but I never heard that it encroached upon the King's prerogative until now." A pretty account will those who are charged with the peace of the realm be able to give in their places "of that which pa.s.seth by letters in or out of the land if every man may convey letters, under the covers of merchants', to whom and what place he pleaseth." c.o.ke went so far as to suggest that advantage had been taken of a small attendance at the Council Table to extort the concession from the King upon wrong or imperfect information. Surely His Majesty cannot have been informed "how unfit a time this is to give liberty to every man to write and send what he list."

Nor did c.o.ke's indignation confine itself to words, for it is impossible not to conclude that he was at the bottom of the high-handed proceeding that followed. Stanhope had gained his suit at law; yet the Council, far from revoking De Quester's patent, granted him an order consigning Billingsley to prison. It was not until he had been there for three months that Parliament, which had recently pa.s.sed a vote against arbitrary imprisonments, pet.i.tioned the King for his release.

Of the final issue of the contest nothing is known. But it seems probable that the foreign merchants were not deterred by the treatment which Billingsley had received from keeping up a post of their own.

Other and more serious matters were beginning to occupy the attention of the Court, and it may well be believed that irregularities which had been challenged before might now be allowed to pa.s.s unnoticed. Be that as it may, in 1632 De Quester, who had lost his son, and had become old and infirm, a.s.sociated with himself in the execution of his office two men named Frizell and Witherings, and to these persons he shortly afterwards a.s.signed his patent. Frizell appears to have been little more than a sleeping partner; but Witherings soon established a high character for ability and powers of organisation. The foreign post had not been under his charge for more than three years before the King commissioned him to examine also into the inland posts, and to put them on another and better footing.

CHAPTER III

THOMAS WITHERINGS

1635--1644