provided, not by the State, but by the University of Paris, which in the
twelfth and thirteenth centuries increased in importance and renown, and
attracted large numbers of students from all parts of France, and from
foreign countries. In order to provide a means of communication between
the students and their homes, the University obtained from the King
authority to employ for the purpose messengers, to whom were accorded
certain special privileges. Thus, in 1296, the messengers of the
University were exempted from payment of tolls, or of fees for entry
into towns. At first they travelled on foot, but at a later date on
horseback or by carriage. The system developed regularity and rapidity,
and in the fourteenth and fifteenth centuries was employed, although
without authority, by the public generally.[179]
This service continued until 1720, when the privileges of the University
were suppressed, monetary compensation (120,000 fr.) being paid from the
revenue of the posts.[180]
An ordinary postal service was re-established by Louis XI in 1464.[181]
Relay stations were set up on the main routes, four leagues apart. At
each station four or five horses were provided by the postmasters, who
were required to convey the royal despatches without special
remuneration. For conducting the royal couriers from stage to stage,
however, payment was made at the rate of 10 sous for each stage for
every horse.
In 1527 the postmasters were given the exclusive right of furnishing
horses for the use of couriers. In order to provide accommodation for
travellers, a system of relays was established in 1597, in addition to
the ordinary posts.[182] The stages were fixed at distances varying from
twelve to fifteen leagues, and the charge for a horse was 20 sous for
each stage. This system was amalgamated with the posts in 1602, and the
functions for which the relays had been established were exercised by
the posts until after the Revolution. They were definitely abandoned to
private enterprise in 1797.
The transmission of ordinary letters for private individuals was not at
first contemplated,[183] but it became common for the royal messengers
to carry letters for the public. The conveyance of private letters was
first definitely provided for by the State in 1576. In that year a
special system of messengers was established, whose function was to
convey legal documents between the Parliament and the inferior courts,
and was limited to the period during which Parliament was sitting.
These messengers were required to carry letters for private individuals
at the following rates:--
For a single letter 10 deniers
For a packet of three or four letters 15 "
For packets of letters weighing an ounce or more 20 "
irrespective of distance.[184]
Under Richelieu the ordinary posts were given a regular organization.
Fixed days of departure and arrival were appointed; offices were
established in the towns; and in 1627 the first general table of rates
was issued.[185] Previously the rate was fixed mutually between the
couriers and the senders or receivers of letters.[186]
For single letters the tariff of 1627 prescribed rates of 2 sous for
transmission between Paris and Dijon, and 3 sous for transmission
between Paris and Lyons, Paris and Bordeaux, Paris and Toulouse. For
letters composed of more than one sheet, but less than 1/2 ounce in
weight, the rate varied from 3 to 5 sous; and for larger packets the
rate was from 5 to 8 sous per ounce. In 1637 the posts were given the
monopoly of the carriage of letters.[187]
In the first years the posts had been a charge on the State, but at
about this time they were let at farm, and proved a fruitful and growing
source of revenue to the State. By 1672 the annual rent of the farm had
risen to 1,700,000 livres, and in 1791, the last year of the farm, the
net revenue was about 12,000,000 fr.
A new tariff was established in 1676, as follows:--
---------------------+------------------------------------+-----------
| Letters | Packets.
Distance. | |
| Single. | With Envelope. | Double. | Per ounce.
---------------------+---------+----------------+---------+-----------
Less than 25 leagues | 2 sous | 3 sous | 4 sous | 6 sous
From 25 to 60 | 3 " | 4 " | 5 " | 9 "
" 60 to 80 | 4 " | 5 " | 6 " | 12 "
Above 80 leagues | 5 " | 6 " | 9 " | 15 "
---------------------+---------+----------------+---------+-----------
The progression for distance was in decreasing proportion.
In 1703 the rates were raised mainly in order to provide funds to meet
the expenses of the wars of Louis XIV. Two reasons were assigned: the
necessity for increased revenue, and the necessity for remedying certain
defects in the existing rates, in regard to the distances and the
progression of weight--the charges should be proportionate to the actual
distance traversed by the couriers; and the existing rate of charge for
ounce letters was therefore unjust, because it required at least six
single letters to make up a weight of 1 ounce.[188]
As a matter of fact, the new rates fixed in 1703 did not vary exactly
with distance. The number of zones was doubled, and the distances were
reckoned according to the number of stages, and the routes actually
followed by the couriers. The charge for a single letter varied from 3
to 10 sous.
These rates remained in force until 1759, when a variety of causes led
to a further increase of rates. The Seven Years' War had made an
increase of taxation necessary; there had been a depreciation of money,
and an increase in the cost of all commodities, which had resulted in an
increase of the expenses of conducting the posts. Under the tariff of
1759 the eight zones of 1703 were maintained, and the rate for single
letters varied from 4 to 14 sous, with an additional rate of 1 sou for
all letters enclosed in an envelope. The principle of charge according
to weight was introduced for letters weighing less than 1 ounce, which
up to this time had been charged only according to the number of sheets.
Double letters weighing more than 1/4 ounce and less than 1/2 ounce,
were rated at 7 sous for the first zone, and for the other zones a "rate
2 sous less than the ordinary rate for double letters." Packets were
charged by the ounce, and the rate per ounce was four times that for a
single letter. As with the tariff of 1703, distances were calculated
according to the route actually followed by the couriers.
No further modification of the rates was made until after the
Revolution. The lease of the posts was due to expire on the 31st
December 1791, and it was decided that the Legislature should rectify
the tariff before the date at which the posts would revert to the
State.[189] A rectification was accordingly announced by the decrees of
the 17th-22nd August 1791. This revision slightly increased the rates of
1759. The initial rate of 4 sous for single letters circulating within
the same _d['e]partement_ was retained; the rate for letters circulating in
the same _arrondissement_ was fixed at 3 sous; between _d['e]partements_
the rate was increased, and varied from 5 to 15 sous, according to
distance of transmission; and the number of zones was increased to
eleven.[190]
Distances were no longer to be reckoned according to the length of the
route actually traversed, but from point to point as the crow flies. The
points were not, however, the actual points of posting and of delivery.
In each department a point was fixed upon, and the rate for all letters
posted or delivered in the _d['e]partement_ was calculated as from that
point; so that for a given weight the same rate was payable on all
letters exchanged between the same two _d['e]partements_. This system,
though comprising a very large number of rates, was much simpler than
the earlier systems. Any one town or village now had only 82 rates for
each step in the scale of rates, whereas under the previous system a
special rate must be calculated for every other town or village in
France. To assist the application of this tariff, a map showing the
central point fixed upon for each of the 82 _d['e]partements_, and the
distances from each central point to all others, was prepared and
supplied to every post office in France.
The tariff of 1791 also abolished the method of charge according to the
number of sheets, and substituted the simpler method of charge according
to weight alone. The maximum weight for a single letter was fixed at 1/4
ounce, and for heavier letters the rates were--
From 1/4 oz. to 1/2 oz. 1-1/2 times the rate for a single letter
" 1/2 " 3/4 " twice "
" 3/4 " 1 " 3 times "
" 1 " 1-1/4 " 4 times "
and so on, the increase being one single rate for each 1/4 ounce
increase of weight. The rate for letters circulating within the same
town remained 2 sous an ounce.
This tariff continued in operation only for a short period. In these
troubled times the public services fell into complete disorder, and the
control of the posts by the Government did not prove a success. When in
farm the rent had been comparatively large; but under State management,
even with the increased rates of 1791, the finances were altogether
unsatisfactory. In 1791 there had been a profit of 12 millions. Soon
there was a deficit: in 1793 it was found necessary to allow 4 millions
in aid. Further increases in the rates followed. In 1795[191] they were
made 2 livres 10 sous, 5 livres, 7 livres 10 sous, or 10 livres,
according to distance, but, like most other very high postage rates,
failed of their purpose. Instead of increasing revenue, they almost
destroyed correspondence. Transmission by private means became
widespread.[192] Other circumstances--the general insecurity of the
times, and the violation of the secrecy of letters by officers of the
Government--contributed to this development. At the end of six months
the rates were lowered to 3, 5, 7, and 9 decimes, according to distance,
but these rates were still high. The posts were reconstituted under the
Consulate and the Empire, and further minor changes introduced, the
object held in view in all these changes being chiefly to secure a
revenue sufficient to meet the expenditures of the service.
The last tariff under the old system of charge according to distance was
introduced in 1827.[193] The number of zones, which in 1810 had been
increased to fourteen, in order to provide for the extended territory
resulting from the French conquests, was reduced to eleven. The rates
ranged from 20 centimes to 1 fr. 20 for single letters, and the weight
limit for a single letter was fixed at 7 grammes. Distances were
reckoned as the crow flies. In 1829 a postal service was established in
the rural communes, and an additional rate of 1 decime imposed on all
letters received or delivered in the communes.[194] This surcharge was
abolished in 1846. As in England, the charges imposed on letters sent
for considerable distances were exceedingly heavy. The charge on a
letter from Paris to Marseilles, weighing 15 grammes, was no less than 2
fr. 20.
Attention was soon directed to Sir Rowland Hill's proposals for the
reform of the English system. Before the reform had been introduced in
England, the French Government were urged to improve the French service
on the lines proposed by Sir Rowland Hill. In July 1839 M. Lherbette,
member of the Chamber of Deputies, suggested the introduction of a
Government measure, and in this he met with considerable support. The
Government, however, contented themselves with remarking that it would
be better to await the result of the projected reform in England.
In the following years the question was frequently raised in the French
Parliament, on the Budget, or on reports and petitions, and there was
considerable public feeling in favour of the reform. In 1843, 65
_conseils g['e]n['e]raux_ presented petitions in favour of reduced
postage. In 1844 M. de St. Priest made a proposal to reduce the number
of zones to two, and to fix the rate of postage at 20 centimes for
distances up to 40 kilometres, and 30 centimes for greater distances. A
parliamentary Commission, appointed to examine this proposal, made an
estimate of the actual cost to the Post Office of the transmission of
letters, and found that while the cost of a letter going 40 kilometres
(postage 20 centimes) was 9.75 centimes, the cost of a letter going 900
kilometres (postage 1 fr. 20) was 14.75 centimes. The Commission
reported in favour of a uniform rate of 20 centimes, but the proposal
was not adopted. Other proposals for the introduction of a reformed
system were made in February 1846 and January 1848.
It was left to the Republican Government of 1848 to introduce the
reform.[195] The National Assembly had under consideration at the same
time two propositions for effecting the reform--that of M. de St.
Priest, and that of the Government itself, both proposing a uniform rate
of 25 centimes for single letters. These propositions were referred to a
parliamentary Commission, of which M. de St. Priest was a member, and
the report of the Commission, which recommended the reform, was adopted
by the Assembly.
The Government Bill to give effect to the recommendation of the
Commission was opposed in the National Assembly, mainly on the ground
that the benefit of the reduction of rate would accrue almost entirely
to the business and commercial interests and not to the general public;
and on the ground that a letter was a parcel, and should be charged like
any other parcel, according to its weight and according to the distance
transmitted. The Government's justification for the proposal rested
chiefly on the moral and social benefits which would result,[196] and
they contended that if, as the opposers of the reduction had argued,
commercial letters comprised seven-eighths of the total number of
letters passing by post, such an extraordinary fact itself did not show
that advantage from reduced rates would accrue only to business
interests. It showed the injustice of the existing rates, and would
never have existed if the postage on letters had not been higher in
France than in any other country in the world. The Commission had,
moreover, made a calculation of the actual cost of conveying and
delivering letters, which showed that the average cost per letter was
from 10 to 12 centimes.
The Government estimated that the number of letters would double in the
first year (i.e. would increase from 55 millions[197] to 110 millions),
and the result would therefore be a diminution of 3,125,000 fr., or 6
per cent. of the total receipts. This would represent the total loss,
since the Minister of Finance assured the Assembly that, after the most
minute and persistent inquiries, he had received from the postal
administration definite statements that no increase in expenses would be
caused by the increase in the number of letters--a result explained by
the fact that the increase of traffic would be appreciable only in
certain large towns; in other places the result would simply be that the
postmen would each have a few more letters to carry. Moreover, under the
new system the manipulation of correspondence would be much simplified
and facilitated.[198]
Fr['e]d['e]ric Bastiat proposed to the Assembly, as an amendment, a
postage of 5 centimes on letters up to 10 grammes, and 1 fr. for packets
from 10 to 100 grammes. He said that the transmission of thought, of
communications between men, was the very essence of society, from which
arose wealth, business, civilization, and taxes themselves.
Consequently, to him it appeared an anomaly to place a tax on such
communication.[199]
On the economic aspect of the question he contended that a rate of 5
centimes would provide sufficient revenue to meet the expenses of the
service.[200]
The Government were not convinced, and maintained their original
proposal, which was carried. The new rates were--
Letters not exceeding 7-1/2 grammes 20 centimes
From 7-1/2 grammes to 15 grammes 40 "
" 15 " to 100 " 1 fr.
Over 100 grammes 1 fr. for each 100
grammes, or fraction
of 100 grammes
The special rates for local letters were continued, viz.--
Letters "de Paris pour Paris" not exceeding 15 grammes, 15
centimes; Letters circulating in the limits of the same post office
not exceeding 15 grammes, 10 centimes.
The reform, which took effect on the 1st January 1849, was much less
sweeping than the reform of 1840 in England--the initial rate was 20
centimes, corresponding to a twopenny rate--and the results were
naturally less striking in France. They were nevertheless quite
considerable. The total number of letters posted increased from
113,500,000 in 1848 to 148,600,000 in 1849, an increase of 31 per cent.,
compared with increase of 122 per cent. in the first year in England.
The gross revenue from letters and other packets fell from 48,816,861
fr. in 1848 to 36,582,009 fr. in 1849, a decrease of 11,234,852 fr. The
net revenue fell from 16,960,773 to 6,862,920 fr. Thus there remained a
substantial surplus.
Both the gross and net revenue recovered in much less time than in
England, as might have been expected, since the falling off had not been
nearly so great. Moreover, in 1850, on account of financial
stress,[201] the initial uniform rate was raised to 25 centimes, and the
rate for letters of from 7-1/2 grammes to 15 grammes, to 50 centimes.
The result of this was a set-back to the total numbers, which were only
148,500,000 in 1850, but an improvement in the gross and net revenue. By
1853 the net revenue had reached 17,176,229 fr., and by 1854 the gross
revenue had reached 50,019,801 fr.
In 1854 the initial rate for single letters was again reduced to 20
centimes, and the change was immediately reflected in the total number
of letters. In 1852 the number was 167,100,000, and in 1853,
170,400,000, an increase of 2 per cent. In 1854 the number was
195,900,000, an increase of 15 per cent. over the number for 1853.
Minor modifications were made in 1861 and 1862. The next important
change followed the war of 1870. It was necessary to increase existing
taxes wherever possible, and to impose fresh taxes, in order to meet the
heavy charges on the national exchequer resulting from the war. The
possibility of obtaining an increased revenue from increased rates of
postage was not overlooked. In 1871 the Government presented a Bill for
the purpose, solely as a fiscal measure.[202]
New rates as follows were established:--
Letters not exceeding 10 grammes 25 centimes
From 10 to 20 grammes 40 "
" 20 to 50 " 70 "
Over 50 grammes 50 " for each
50 grammes, or fraction
of 50 grammes
For local letters not exceeding 15 grammes the rate of 15 centimes was
continued.
The results of this increase of rates are somewhat difficult to
determine with any degree of precision. Other circumstances affected the
number of letters, such as the loss of Alsace-Lorraine (an industrial
province), the establishment of postcards in 1873, and the reduced means
of the people by reason of increased taxation. The number of letters,
which in 1869 was 313,360,723, was in 1872 only 292,466,678, and the
figures for 1869 were not regained until 1877. If the numbers are
adjusted by reckoning the loss of Alsace-Lorraine to have resulted in a
decrease in numbers proportionate to the numbers of its population, that
is, one twenty-third of the total population of France, and adding the
normal increase of 9 millions a year, the number in 1872 would have been
325 millions, whereas it was in point of fact 292 millions. The
reduction was even greater in the following years. In 1873 the total
number fell to 285,350,341.
The financial result was no more satisfactory. The revenue in 1869 was
60,989,454 fr. In 1872 it had risen to 72,615,276 fr., an increase of 20
per cent. only, while the rates had been raised 25 per cent. for letters
from office to office and 50 per cent. for local letters. In 1873 the
yield was less. It was, indeed, little more than would have resulted
from the old rates if the normal increase of numbers under those rates
had continued, although it may be doubted whether this would have been
the case in view of the heavy financial strain imposed by the war of
1870. In any case, the financial result of the increase of rates, which
pressed heavily on commercial and social intercourse, was extremely
small.[203]
But if the rates were higher in France than in other countries, there
were yet some aspects in which the French service was in advance.[204]
Compared with England, for example, the uniform rate covered a much
greater extent of territory, and a daily delivery of letters was
afforded to every hamlet, and even to every isolated house, throughout
that greater territory.[205] This service was provided by a body of
19,010 rural postmen, the number of rural postmen in England at this
time being only 6,000. Facilities for the posting of letters were also
more extended in France: the number of posting-boxes was 45,000, as
compared with some 22,000 in the United Kingdom.[206]
It was always desired to withdraw the increase of 1872 as soon as the
financial situation would allow. This course was hastened by the
establishment in 1874 of the Universal Postal Union, of which France
became a member. The international rate for ordinary letters adopted by
the Union was 25 centimes. As a result the internal rates of France were
much higher than the rates for letters posted in France for places in
other countries of the Union. Such a situation could not continue, and
in August 1875 the internal rates were reduced. The new rates were:--
Letters not exceeding 15 grammes 25 centimes
From 15 to 30 grammes 50 "
" 30 to 50 " 75 "
Over 50 grammes 50 " for each
50 grammes, or fraction
of 50 grammes
The special local rates were retained.
The letter rate still remained comparatively high, and in the following
year numerous proposals were put forward in Parliament for a reduction.
In November 1876 the Government proposed the reduction of postage on
ordinary letters to 20 centimes, and on postcards to 10 centimes, the
special rates for local letters being continued. These proposals were
referred to the Budget Commission, who expressed the opinion that the
time had arrived for the introduction of complete uniformity of
rate,[207] and recommended a uniform initial rate for letters of 15
centimes for 15 grammes, and a uniform rate of 10 centimes for
postcards.
Further consideration of the proposals was interrupted by the
dissolution of the Chamber. In the next session, M. Caillaux, Minister
of Finance, adopted the report of the Commission, and in April 1878 the
rate for letters was reduced to 15 centimes for each 15 grammes, or
fraction of 15 grammes. The general rate was thus brought to the level
of the local rate, which now disappeared.
The results of this reform were eminently satisfactory. The total number
of letters, which had during the years 1872 to 1877 increased by only
4,365,412, or some one and one-third per cent. per annum, increased from
318,659,158 in 1877 to 403,853,626 in 1879, or 26 per cent. in two
years, and from 1879 to 1889 the rate of increase was 6.6 per cent. per
annum. The Government had estimated that the reduction would involve a
loss to the revenue of some 15 millions for the first year. The actual
loss was 15,323,571 fr.
These figures are figures of gross revenue. The figures for net revenue
are less satisfactory, both in character and in the amounts indicated.
Their character is unsatisfactory because the expenses of the postal and
telegraph departments were not separate; and the figures for net revenue
therefore represent the net revenue on the whole service, both postal
and telegraph, and not merely for the postal traffic alone. At this
time, however, the telegraph business was small comparatively, and the
figures indicate generally the result of the reform. In 1877 the net
revenue was 47,706,293 fr. In 1878 it fell to 29,343,953 fr., and in
1879 to 21,084,699 fr., from which date there was a gradual, but steady,
recovery. In 1888 it had reached 48,811,146 fr. 25, an amount higher
than that of 1877, and in 1889 the net revenue passed 53 millions, a sum
never before reached in France.[208]