the provision of facilities for the transmission of ordinary inland
parcels within France.[427] The companies were accordingly required to
undertake also the transportation of inland parcels upon their railways
and the delivery of inland parcels in localities adjoining their lines
under the same conditions and for the same remuneration as in the case
of parcels in the international service. A difficulty existed in the
fact that small parcel traffic (_l'envois par messagerie_) was subject
to special taxation.[428] These taxes frequently exceeded the charge for
transmission, and in some cases the value of the parcel itself. In order
to encourage the use of the service, these taxes were reduced or
modified by a series of laws at a sacrifice of revenue exceeding two and
a half million francs a year. The service, which was established on the
1st May 1881, did not include the whole of France, but extended only to
localities served by the State railways, the six contracting companies,
and certain subsidiary companies which contracted for the business with
the larger companies. The maximum limit of weight was fixed at 3
kilogrammes, and the rates of postage were 60 centimes for parcels
transported from railway station to railway station, and 85 centimes for
parcels delivered at the residence of the addressee. The service became
immediately popular, the number of parcels posted during 1881 being at
the rate of over half a million a month.
Soon after its establishment the service was extended to the smaller
subsidiary lines, and to districts not served by railway. The latter
extension, which it was not found easy to arrange, was provided for by
introducing into the contracts for the conveyance of the ordinary mails
in those districts a clause empowering the administration to require the
contractor to convey post parcels for a remuneration of 15 centimes per
parcel--the amount to be increased to 25 centimes for parcels delivered
at residence.
The Lisbon Congress (1885) raised the limit of weight in the
international service from 3 kilogrammes to 5 kilogrammes, but a
corresponding increase was not made in the internal French service until
1892. The maximum limit of weight was raised to 10 kilogrammes in 1897,
and the following rates of postage are now in operation:--
----------------------------------------------------------
Weight. | Delivered at | Delivered at
| Railway Station. | Residence or
| | Poste Restante.
--------------------+------------------+------------------
| fr. | fr.
Not exceeding 3 kg. | 0.60 | 0.85
3-5kg. | 0.80 | 1.05
5-10 kg. | 1.25 | 1.50[429]
--------------------+------------------+------------------
Cumbersome parcels are charged rates 50 per cent. greater than the
ordinary rates.[430] Parcels redirected or returned to sender are
subject to an additional rate of postage, and to a tax (_droit de
timbre_) of 10 centimes.[431]
Parcels for despatch are accepted only at the railway stations or
offices of the companies or by their agents. They are delivered at the
stations of the companies or at their offices in towns or at the offices
of their agents, to be called for, or they are delivered at residence;
but the latter service is undertaken only when a delivery service
organized by the companies, or their agents, for their own purposes
already exists.
Parcels are accepted for localities not served directly by the
contracting companies, but such parcels are conveyed only to the point
served by railway nearest to the place of destination. It is left to the
public to provide for their further transmission. In the case of parcels
delivered only at the railway station, an advice of delivery is sent to
the addressee by the company or their agents within twenty-four hours of
the receipt of the parcel. This advice is sent by post, and the
postage, 5 centimes, is recovered from the addressee. If parcels are not
called for within eight days, the sender is asked to give instructions
regarding their disposal.
The control of the service in districts served by railway rests entirely
in the hands of the railway companies. The postal administration takes
no part directly in its management, but co-operates with the companies
by affording certain small facilities in regard to parcels. For example,
on payment of the usual delivery fee of 25 centimes a parcel may be
delivered from the railway station to the local post office, where it
will be retained in the poste restante. In districts not reached by the
railway or their agents, the management of the service falls on the
postal administration. The service in such districts is, however, far
from complete. There are in France some 36,000 communes, but the parcel
post service extends only to some 12,000 railway stations, and only at
about one-half of these can parcels be delivered at the residence of the
addressee.[432] To a limited extent a service is given in certain
localities not directly served by railway. In these cases, which are
arranged only with the concurrence of the companies, the service is
conducted by the ordinary road carriers.[433] The extension of the
service in the rural districts is one of the problems which face the
postal administration.[434]
A local parcel post service was established in Paris in 1881 by
arrangement with the Compagnie des Messageries Nationales, but it did
not prove profitable, and was discontinued in 1887. A new service was
set up in 1890. The contractor is required to make two deliveries on
week-days and one on Sundays and feast days (_les jours f['e]ri['e]s_),
and to maintain an office in each arrondissement. The system has,
however, developed. Three daily deliveries are now given, and nearly 500
offices have been opened. The rate of postage is 25 centimes for parcels
not exceeding 5 kilogrammes, and 40 centimes for parcels between 5 and
10 kilogrammes.
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
circumstances 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 classes, as follows:--
1. Packets of Documents (_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 L[:u]neburg, 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 cumbrous 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
quantity 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 assumed 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 documents
"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 class 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 anticipated that
the rates proposed would yield some profit to the revenue.