The Development of Rates of Postage Part 13

The total number of inland parcels posted during the year 1913-14 was about 52 millions.

PARCEL POST IN GERMANY

In the days of the horse-posts it was obviously undesirable to burden the mails with weighty packages, and the transmission of parcels by post was from the first discouraged in Germany, although not forbidden.

Parcels were charged as letters by the half-ounce, a sufficiently high rate to prevent the use of the posts for their transmission to any inconvenient degree. The first Imperial posts did not, indeed, undertake the transmission of parcels. The business was left to private enterprise, and was conducted by the _Boten-Anstalten_. The posts themselves were, however, made use of for the transmission of parcels of merchandise for private individuals at least as far back as the Thirty Years' War. Owing to the dislocation of industry and commerce during that war and the high rates of postage charged, the number of parcels was extremely small, and their transmission was confined to limited areas.[435]

As early as 1635 the messengers were allowed to carry parcels so long as their travelling was not thereby impeded,[436] and in 1652 a regular parcel service was in operation between Basel and Zurich, Schaffhausen, Lindau, and Ulm. In 1660 the Great Elector ordered that no parcels should thenceforward be carried by the posts free of postage. This may perhaps be taken as the origin of a recognized parcel post service in Prussia.[437]

The rates charged were at first based on the numerous diverse circ.u.mstances which governed the early letter rates. They were increased in the event of any rise in the price of provender, and varied according to the mode of transmission and according as the parcels were sent by day or night, in fine weather or in bad weather.[438] In some cases the rate was varied according to the nature of the contents of the parcels.

In 1699 a tariff, under which the rates were regulated according to the distance and without reference to the mode of transmission, was established between certain offices in Prussia, and in 1712 this tariff was extended generally. The rate from Magdeburg to Stendal was 3 groschen per pound, to Leipzig 5 groschen per pound, and to Berlin 7 groschen per pound. In 1713 the summer and winter rates were abolished in Prussia. The rate for ordinary parcels from Berlin to Hamburg was 1 groschen per pound, from Berlin to Magdeburg 7 pf. per pound, from Berlin to Frankfort 4 pf. per pound, from Berlin to Leipzig 1 groschen per pound, etc. For provisions the rates were reduced by one-half, and for fancy goods the rates were doubled, a method of charge which gave rise to many practical difficulties.

In Saxony, by an ordinance of the 27th July 1713, parcels were divided into four cla.s.ses, as follows:--

1. Packets of Doc.u.ments (_Akten-Pakete_). The letter rate was applied to these in the following manner:--

1-4 pound parcels were charged as 2-1/2 ounces 4-6 " " " " " 3 "

6-8 " " " " " 5 "

2. Money and fancy goods--

For the value of 1-3 miles 100 thaler current 2 groschen 4-6 " 100 " " 3 "

7-9 " 100 " " 4 "

and so on up to 30 miles. (NOTE.--_Distances are given in German miles throughout._)

3. Commercial goods--

-------+----------------------------------------------------------- Miles.

+-----+-----+-----+-----+-----+-----+-----+-----+-----+----- Weight. 1-3 4-6 7-9 10-12 13-15 16-18 19-21 22-24 25-27 28-30 +-----+-----+-----+-----+-----+-----+-----+-----+-----+----- Pounds. Gr. Gr. Gr. Gr. Gr. Gr. Gr. Gr. Gr. Gr.

1 1 2 3 4 5 5 6 6 7 8 2 2 3 4 5 6 7 8 8 10 11 3 2 3 5 6 8 9 10 12 14 15 10 5 7 9 13 17 23 24 32 38 44 100 14 24 34 50 58 70 79 90 110 124 -------+-----+-----+-----+-----+-----+-----+-----+-----+-----+-----

The weight was calculated for each pound up to 10 pounds, then for 15 pounds and 20. For parcels weighing more than 20 pounds the rate increased for each 10 pounds.

4. Valuable goods, e.g. gold, silver, cloth of gold, brocade, were charged double the rate for commercial goods.

In 1741 a parcel rate was established in Brunswick and Luneburg, based simply on weight and distance, without reference to the nature of the contents.[439]

The Prussian rates of 1712 continued in force until 1762, when a general revision of postal rates was necessitated by the financial difficulties resulting from the outbreak of the Seven Years' War. The rates for ordinary commercial transport in Prussia rose to such a degree that the post, still working on rates fixed in 1712, became the cheapest means of transport.

Consequently the parcel post traffic increased, but it was found that the expenses of the service were not covered by the revenue derived from the parcels. The rates were accordingly increased on the simple plan of raising them all by 100 per cent. (except in Ostfriesland, where the increase was 50 per cent.). A further revision of the rates was made in 1766. Apart from the fact that the rates were further increased, this revision was in many respects beneficial, since it introduced a uniform and definite rate for the whole country.[440] In 1770 the rates of 1712 were restored.

Up to this time the rates had been based partly on the actual length of the post routes, partly on the time occupied by the post-messengers in traversing the routes. They therefore varied according as the roads were good or bad.[441] In 1801 a mathematical measurement of the roads of Prussia was made, and thereafter the time factor was eliminated and the rates based on distance only. The distance was measured, not in a direct line, but by way of the post routes.

The events of the Napoleonic period resulted in a great increase of prices in Prussia, and in order to meet the additional expense of conducting the posts, the rates were increased by 50 per cent. between 1805 and 1811, but the general basis of charge remained unchanged. In 1824 important modifications were introduced. The discrimination according to the nature of contents of parcels was abolished, and the rates were based solely on considerations of weight and distance of transmission. Further, the distance between post offices was no longer to be reckoned according to the distance by way of the post routes, but according to the direct distance.[442] The general parcel rate was fixed at 3 pf. per pound for each 5 miles, with a minimum charge of twice letter rate for parcels not exceeding 4 pounds in weight, and three times letter rate for parcels weighing more than 4 pounds. In the case of several parcels directed to the same place, the postage was reckoned according to the total weight. The Postmaster-General was authorized to increase the rates in the event of a rise in the cost of forage.[443]

A special rate, in addition to ordinary postage, was also introduced in respect of parcels directed to or sent from offices for which no normal rate had been fixed. In 1826 a reduction of postage by 10 per cent. was authorized where the total yearly weight of parcels was between 10,000 and 20,000 pounds, and of 15 per cent. where the total yearly weight exceeded 20,000 pounds. This reduction was, however, abolished in 1848.

With the introduction of railways and the transformation of the transportation industry which ensued, the rates of 1824 were found to be too high. In 1842 they were accordingly reduced by one-half, experimentally, but only in respect of parcels sent on certain railway routes. In 1847 this reduction was extended to all railway routes,[444]

and in 1848 the rate for parcels not conveyed exclusively on railway routes was reduced to 2 pf. per pound for each 5 miles. The distinction was, however, found inconvenient and was removed in 1852.[445] A general rate of 1-1/2 pf. per pound for every 5 miles was then established, with a minimum postage of twice letter rate, and a provision that odd ounces, which had previously been ignored, should be charged as a full pound, and that when several parcels were directed to the same address the postage must be reckoned for each parcel singly.

Under the German-Austrian Postal Union, established in 1850, it was at first arranged that separate parcel rates should be charged by each administration to and from the frontier, according to its own inland rates. Later the rate was fixed at 2 pf. per pound for each 5 miles, to be charged by each administration concerned in the transmission. In 1857 one definite parcel rate was established for the whole territory of the Union, graduated according to direct distance, viz. 2 pf. per pound for each 4 miles, with minima of from 1-1/2 to 7 sgr. The whole revenue from parcels was credited to a common fund and divided according to certain percentages.

A new parcel rate, based on weight and distance only, was established at the founding of the North German Union in 1867. The method of calculating the distance of transmission for the purpose of determining the postage charge was also modified. The then existing arrangement in Prussia, based on the regulations of 1824, provided that the rate should in all cases be reckoned according to the actual distance between the post offices concerned. Under this method, when a new post office was established, a parcel rate for every other post office must be calculated, causing much labour and wasting much time. This method was now abandoned. The whole territory of the North German Union was divided into imaginary squares, with sides 2 miles in length, the points of intersection of the diagonals being taken as the centres from which all distances were calculated.[446] The rates between any offices in two different squares were made identical. Such a method rendered unnecessary the calculation of a special rate of postage for every post office, and also rendered unnecessary any fresh calculations of rates in respect of any new post offices. The progression of distances was by stages of 5 miles up to 30 miles, of 10 miles from 30 to 100 miles, and of 20 miles thereafter, the increase in the length of the steps being justified on the ground that the cost of transportation does not increase in direct proportion to the distance.[447] The rate was 2 pf.

per pound for each step in the scale of distances.

The rate of 1867 was applied to the Imperial Post Office by the law of 28th October 1871. This tariff, with its comparatively small progressions of distances, was found inconvenient, especially with the large growth of the traffic. The rates had, moreover, been found too high for small parcels sent over long distances. In point of fact, by far the greater part of parcels under the weight of 5 kilogrammes were less than 2-1/2 kilogrammes in weight. New parcel rates were accordingly introduced on the 1st January 1874.[448] For all parcels not exceeding 5 kilogrammes in weight, uniform rates were established, on the ground that an increase of postage according to the distance of transmission was unjustifiable in the case of light parcels.[449] For the first 10 miles the rate was 25 pf., and for all other distances 50 pf. A zone tariff based on six zones of distance was established for parcels of greater weight than 5 kilogrammes. For the first 5 kilogrammes such parcels were charged the uniform rate applicable to parcels not exceeding 5 kilogrammes in weight, and the following table shows the charges for the weight exceeding 5 kilogrammes:--

Distance. For each kg. after the first 5 kg.

Zone I Not exceeding 10 miles 1/2 sgr. (5 pf.) " II From 10-20 miles 1 "

" III " 20-50 " 2 "

" IV " 50-100 " 3 "

" V " 100-150 " 4 "

" VI Over 150 " 5 "

For c.u.mbrous and unwieldy parcels an additional charge not exceeding 50 per cent. of the ordinary postage might be made. With the increase of traffic it was found impossible to forward all the parcels by the postal trains, and the Post Office was only permitted to send a limited quant.i.ty of parcels by the ordinary express trains.[450] In 1880 it was arranged that parcels which must be delivered without delay--e.g. those containing fish or flowers--should be forwarded by express train on payment of a special fee of 1 Mark each. In 1886 this additional fee was made applicable to all urgent parcels, whatever the contents.

The tariff of 1873 has proved too high both for heavy and for very light parcels, and some curious anomalies result from the combination of zone rates and uniform rates. A parcel of 5 kilogrammes sent for any distance greater than 10 miles costs 50 pf. Eight parcels of 5 kilogrammes each could, therefore, for 4 Marks be sent for any distance; but if made up into one parcel of 40 kilogrammes the postage would be 7 Marks 50 for places in the third zone (20 to 50 miles), and for places in the sixth zone (over 150 miles) no less than 18 Marks.[451] It is therefore to the advantage of the public to divide a heavy parcel, though such a proceeding obviously increases the cost to the administration of its handling and transmission. The despatch of heavy parcels by post is naturally discouraged, and the proportion of such parcels is decreasing.[452] Of the total number of parcels sent by post in 1900, more than 88 per cent. were less than 5 kilogrammes in weight, and the number of greater weight than 10 kilogrammes formed less than 3 per cent. The average amount of postage per parcel on parcels falling in Zones III, IV, V, and VI is not appreciably greater than that on parcels falling in Zone II.[453] The number of heavy parcels in the higher zones is, therefore, negligible,[454] and is least in the highest zones.[455]

In the case of very light parcels also the rate is excessive. The number of parcels under 1 kilogramme in weight, which in 1870 formed about 30 per cent. of the total, fell in 1874 to 26.6 per cent., in 1878 to 21.8 per cent., and in 1910 to 12.616 per cent.[456] Similarly the rates for the longer distances are too high generally, and the number of parcels falling under the higher zone rates is extremely small. In 1887, 42.5 per cent. of the total number of parcels were delivered within the first zone, and 84 per cent. within the first three zones, those in the sixth zone forming only .064 per cent.[457] Notwithstanding these defects in the scheme of rates, the total number of parcels has largely increased,[458] and the cheapness of many of the rates has led to the development of a traffic in certain food-stuffs, and has encouraged numerous localized industries.[459]

In view of the small number of heavy parcels it has been suggested that the post should be restricted to parcels not exceeding 10 kilogrammes in weight, parcels of greater weight being left to the railways.[460] This would result in the exclusion of about 3 per cent. only of the parcels.

The proposal is, however, objected to on the ground that the postal service for such parcels ought not to be withdrawn unless the railways can afford as punctual, speedy, and cheap a service as the Post Office;[461] an argument which is sound only if the present rate is profitable to the Post Office (which is doubtful), or otherwise so long as it is a.s.sumed that the Post Office ought to continue the present service for the public advantage, regardless of considerations of cost and revenue.

To meet the difficulty with light parcels a lower rate has been proposed for parcels under 1 kilogramme in weight, but a further modification in favour of parcels between 1 kilogramme and 5 kilogrammes in weight is deprecated as involving an undesirable complication of the uniform rates.[462] The parcel post business is conducted as part of the general Post Office business, and consequently it is not possible to eliminate from the general expenses of the whole service the expenses incurred in dealing with parcels. It cannot be said, therefore, whether either the light parcels or the heavy parcels, the short-distance parcels or the long-distance parcels, are or are not profitable to the administration, or, indeed, whether the parcel post service as a whole is a remunerative service or otherwise; but German writers on the subject hold the opinion that the cost of the service exceeds the revenue derived from it.[463]

IV

MINOR RATES

(I) BOOK POST

UNITED KINGDOM

In 1847 Sir Rowland Hill proposed the provision of special facilities for the transmission by post in the United Kingdom of books and other printed matter. He thought such a concession expedient as a matter of policy, especially in view of the "state of the public mind on the important subject of education." A low rate of postage would facilitate the transmission of scientific and literary reports and other doc.u.ments "tending to the extension and diffusion of knowledge," and would be highly prized by the Literary and Scientific Societies, which were a feature of those days. Private families, especially the rural clergy, would also in that way be enabled to obtain valuable publications otherwise, to them, unattainable. Sir Rowland Hill recognized that there were objections to the granting of a special rate for a special cla.s.s of matter; but he argued that, in effect, the proposal was nothing more than an extended application of an existing principle, applied to newspapers and Parliamentary Proceedings, and (in regard to certain places abroad) ordinary periodical publications.[464]

The rate proposed was 6d. per pound, which was virtually the rate charged on newspapers, with this difference to its advantage, that, whereas 6d. paid on newspapers would represent six packets to be dealt with separately, 6d. paid under the proposed book post rates would be in respect of one packet only. The high minimum charge of 6d. was proposed as a security against fraud: with such a minimum there would be no temptation to send a packet as a cover for a written communication. As a measure of economy it was proposed to send the packets by the day mails as far as possible, by this means avoiding loading heavily the important night mail trains and adding to their cost; and it was antic.i.p.ated that the rates proposed would yield some profit to the revenue.