accorded a privileged rate of one-third letter postage, with the
reservation that in no case could the postage charged be less than that
on a single letter. In 1848, when a low uniform rate for letters was
adopted, it was thought that the privilege given to samples need not be
continued. The suppression of the special privileged rate was found
almost to exclude samples from the mails, and in 1856 they were again
given a privilege by the extension to them of the rates and conditions
applied to printed matter.[506] The limit of weight for samples was
fixed at 3 kilogrammes, and the limit of each dimension at 45
centimetres; but these limits were found to be too great. The post
became encumbered with large packets which it could not enclose in the
mails, and which, as a matter of fact, it had not the means of dealing
with. Consequently, in 1858 the limit of weight was reduced to 300
grammes, and the maximum dimension to 25 centimetres.[507] It was still
found, however, that packets of samples gave rise to considerable
embarrassment in the service. Their irregular size rendered stamping
more difficult, and their volume and the unsatisfactory manner in which
they were made up for the post caused inconvenience, especially in the
travelling offices, where space is limited.
The object in view in establishing the sample rate had been to encourage
trade by the distribution of trade samples, and not to found a new
general means of conveyance for small parcels. But commercial houses
were not slow to take advantage of the means afforded for the
distribution of small packages of goods. At first it was made a
condition of acceptance at the privileged rate that the articles should
bear the name of the dealer or maker, but this precaution was abandoned
before long.[508]
A minimum rate of 1 centime for packets not exceeding 5 grammes in
weight had been fixed in 1856. This proved too low, and in 1871 the
minimum was raised to 30 centimes, which proved to be too high. The
number of samples, which in 1869 had been 9,751,970, fell in 1872 to
3,461,981.[509] In December 1873 this rate was reduced by one-half, and
in August 1875 the rate was fixed at 5 centimes for each 50 grammes.
Under this rate the numbers increased rapidly: 5,267,964 packets were
sent through the post at the sample rate in 1874, and by 1889 the
numbers had risen to 25,731,985. The present rate is 5 centimes per 50
grammes, with a maximum limit of 500 grammes. The number of sample
packets in the year 1912-13 was about 78 millions.[510]
* * * * *
GERMANY
Samples were first given a privilege in Prussia in 1825.[511]
Packets containing samples were then given single letter rate up to
1-1/2 loth, and half the letter rate for heavier packets. They must
either be sent enclosed in a letter or attached to a letter, and the
letter must not exceed 3/4 loth in weight.
In 1850 the following rates for samples were established:--
Not exceeding 10 German miles 1 silver groschen
10 to 20 German miles 2 "
Over 20 " 3 "
and for heavier packets, half letter rate.
Under the Austro-German Postal Union, established on the 6th April 1850,
the ordinary rate for single letters was charged in the case of samples
for each 2 loth, according to distance. In 1852 the Prussian internal
rates for samples were brought into accord with those of the Union.
Samples must be sent in unsealed covers and must be easily recognizable
as such. The maximum weight was 16 loth, and the maximum charge was not
to exceed six times letter rate.
In 1853 a further privilege was conceded. When sent together with a
letter, samples might be enclosed in sealed covers; but in order to
enable the administration to maintain a control over the use of the
privilege, the postal officials were empowered at discretion to require
the sender to open such packets.[512]
In 1860, when the Austro-German Postal Union was renewed, the limit of
weight for samples was reduced to 1/2 pound (15 loth). Following this
reduction the Prussian rates for samples were reduced in 1861: for
samples weighing more than 2 loth only the rate for a double letter
(according to distance) was to be charged. The reduction was not
followed by any large increase in the number of sample packets. Every
sample must still be accompanied by a letter, a circumstance which made
the application of the sample rate heavy. With a view to the further
encouragement of the traffic this requirement was removed in 1863, and
the despatch of samples under band, in envelopes, little bags, or
similar covers, authorized. New rates were introduced as follows: 4 pf.
for each 2-1/2 loth. To prevent abuse of the privilege it was provided
that no article of marketable value could be sent at the reduced rate.
The packet must be marked to show that it contained a sample, and might
also bear the name and address of the senders, the trade mark, and the
number of samples and prices.
In 1871 the rate for the Imperial Postal Service was made 1/3 sgr. for
each 40 grammes with a maximum of 2 sgr. Practical difficulties arose
from the great increase of traffic which followed this reduction of
rate. Large packets and packets of awkward shape were posted, causing
practical difficulties, especially in the sorting carriages, and it was
found necessary to decline to accept samples over the counter, and to
forbid the acceptance of samples in roll form. The sample rate was,
moreover, complicated as compared with the letter rate. While there were
but two rates for letters, there were five for samples, viz. 4, 8, 12,
16, and 20 pf. In 1875 the sample rate was simplified by the
introduction of a single rate of 10 pf. for all sample packets, with a
maximum limit of weight of 250 grammes.
The maximum limit of weight was raised in 1898 to 350 grammes, and in
1914 to 500 grammes. The present rates for samples are:--
Not exceeding 250 grammes 10 pf.
250-500 grammes 20 pf.
Prepayment is compulsory.
The sample post traffic has increased, but has not attained large
proportions compared with letters. In 1878 the number of samples was
4,389,000 and in 1913-14, 87 millions (inland service). The minimum rate
(10 pf.) is high compared with the minimum rates for ordinary printed
matter and newspapers, and a minimum rate of 5 pf. has been
suggested.[513]
* * * * *
(III) COMMERCIAL PAPERS
UNITED KINGDOM
Letter postage was found to be high for the formal documents of
commerce, and from very early times there has been a disposition to
accord an exceptionally low rate to such documents. The Act of 1660
conferred a special privilege on merchants' accounts not exceeding one
sheet of paper, bills of exchange, invoices, and bills of lading. They
were to be "without rate in the price of letters," that is to say, no
account was to be taken of them. This privilege was continued by the 9th
of Anne.[514] The Postmasters-General contended that the privilege was
granted in the case of letters for foreign transmission only, but the
merchants affected to interpret the Act as applying in the case of
inland letters also. They naturally pointed out that restriction of the
privilege to foreign letters imposed on traders within the realm a
burden of postage not imposed on traders beyond the sea,[515] and the
Postmasters-General found so much difficulty in maintaining the
additional charge in the case of inland letters that they were
ultimately driven to apply to Parliament, in 1720, for the express
sanction of law.[516] From this time commercial or other papers obtained
no special advantage over ordinary letters in the inland service; and in
1801, when the Post Office was endeavouring by all possible means to
increase its net revenue, the privilege in the case of foreign letters
was withdrawn.[517]
The introduction of a specially low rate for commercial documents was
considered in the 'thirties of last century by the Treasury
Commissioners of Inquiry into the Management of the Post Office, who
recommended the adoption of a general 1/2d. rate.[518] Nothing came,
however, of this suggestion.
The privilege to commercial papers has since been restored by little and
little as extensions of the book post, established in 1847 (_q.v._), and
at the present time most of the formal documents of commerce not
exceeding 2 ounces in weight pass at the reduced rate of 1/2d.
* * * * *
FRANCE
(_Papiers d'Affaires_)
In the French service commercial papers (_papiers d'affaires_)
constitute a special category of postal packets. Documents included
under this heading may be described briefly as papers and documents,
whether wholly or partly written, containing communications which are
not of a personal character.
Until 1856 such papers were charged at the same rate as letters. This
rate was found to be burdensome,[519] and in 1856 a rate of 1 centime
for each 10 grammes was established--the same rate as that for samples
and ordinary printed matter--but the minimum charge was fixed at 50
centimes. In 1871 the rate was altered to correspond with that for
samples. It now became 30 centimes for the first 50 grammes, and 10
centimes for each further 50 grammes. As a consequence of the adhesion
of France to the Universal Postal Union, the rate, together with that
for samples, was changed in 1875 to 5 centimes for each 50 grammes. The
discarding, in the case of _papiers d'affaires_, of the principle of a
minimum charge equal at least to the minimum charge for letters, had
unfortunate results. It has been found extremely difficult always to
distinguish between documents entitled to be regarded as _papiers
d'affaires_ and documents which are of a personal character, and
therefore subject to letter postage. The privilege is at present
restricted to packets weighing not more than 20 grammes, and the rate of
postage is 5 centimes. Packets weighing more than 20 grammes are subject
to letter postage.
The number of packets passing as _papiers d'affaires_ increased rapidly,
but still forms only an inconsiderable fraction of the total number of
postal packets. In 1856 the number was 39,747; in 1889 it exceeded 15
millions; and in 1913 it reached 58 millions.
It is necessary to issue a long and detailed list showing the kinds of
documents admissible at the reduced rate, and the difficulty of
administering the rate is considerable.
* * * * *
GERMANY
(_Gesch[:a]ftspapiere_)
After the abolition of the old Prussian _Schriften- und Aktentaxe_[520]
in 1861, neither the North German Bund nor the Imperial administration
granted a special rate for wholly or partly handwritten communications
which were not of the nature of personal and individual correspondence.
Either letter or parcel rate must be paid on such packets. In the
international service the rate for such was the same as the rate for
printed matter, and the unfavourable position in the inland service in
this respect gave rise to public complaints. In 1900, therefore, a
special class of packets, named _Gesch[:a]ftspapiere_, was introduced in
the internal service of the German Imperial administration. Papers
partly or wholly written, but not of the nature of private or personal
communications, were admissible at a reduced rate of postage.[521]
Except for local traffic the new rates were:--
Not exceeding 250 grammes 10 pf.
250-500 grammes 20 pf.
500 grammes to 1 kilogramme (maximum) 30 pf.
Compared with the total postal traffic the number of packets passing at
the reduced rate is quite small, but it is increasing, and is
sufficiently large to indicate that the privilege affords a considerable
advantage to the public.
The number of packets of _Gesch[:a]ftspapiere_ was:--
1904 10,793,620
1907 16,789,260
1910 23,632,220
1913 34,328,950
* * * * *
(IV) POSTCARDS
The idea of postcards originated with Dr. H. von Stephan, who submitted
a proposal for their introduction at the meeting of the delegates of the
German Postal Union at Karlsruhe in 1865. Dr. von Stephan had realized
that the ordinary form of the letter missive, although most suitable in
many ways for many kinds of correspondence, was not always convenient.
Much commercial correspondence might be conducted with briefer and less
formal communications, and for such short and urgent messages a simple
and less costly means would be welcomed.
The proposal was therefore for the issue of cards which should be
addressed on the front, and at the back should bear the written
message.[522] The cards should be transmitted unenclosed. The proposal
was not well received by the delegates. It was, however, revived in 1869
by Professor Herrmann of Vienna, who brought it to the notice of the
Austrian postal administration. It was viewed favourably by that
administration, and the cards were introduced in the Austrian service on
the 1st October 1869, being sold at the price of 5 kreuzer. The
innovation was an immediate success, nearly three million cards being
sold in the first three months; and following on this success the cards
were soon introduced in most other countries.
Except in France, and for the first two years in Germany, the rate
charged has from the first been one-half the minimum rate for letters.
In France the minimum for postcards bearing ordinary messages has never
been less than 10 centimes.[523] This reduction of 50 per cent. cannot
be justified on any ground of cheaper handling. The manipulation and
conveyance of postcards is perhaps slightly less expensive than that of
ordinary light letters, but any such difference is small, and in point
of fact postcards are usually regarded as causing a little more trouble
in the process of sorting. For all practical purposes it may safely be
assumed that postcards and ordinary light letters involve approximately
the same cost for their handling and transmission.[524] This difference
in the rates of postage charged on ordinary light letters and postcards,
respectively, is therefore either a standing evidence of the fiscal
character of the rate for light letters, or of the uneconomic character
of one or other of the rates, or of both.
The postcard has proved immensely popular. Its use for formal and
unconfidential communications is a great convenience. By avoiding the
necessity for folding and enclosing in envelopes, time is saved in the
making up of correspondence for the post; and the saving in postage when
a quantity is sent out is very considerable. The cards are a convenience
also in the practical working of the Post Office service. Their use
diminishes both the weight and bulk of the mails; on account of their
lightness and uniformity of size and shape large numbers can be packed
together in small space. In this respect they contrast strongly with the
irregularly shaped packets of books or of general merchandise, which
represent the maximum of encumbrance to Post Office working. The
introduction of the picture postcard gave a great impetus to the use of
this means of correspondence. Except in France, the traffic has assumed
large dimensions. In the United Kingdom in 1913-14 the total number of
postcards was about 926,000,000, while the total number of packets
passing at the letter rate was about 3,478,000,000.[525]
(V) RATE FOR PRINTED MATTER FOR THE BLIND
The low rate for matter printed in raised type for the use of the blind
is a purely philanthropic concession.[526]
In the United Kingdom the rates are:--
For a packet not exceeding 2 ounces in weight 1/2d.
" exceeding 2 ounces and not exceeding 5 lb. 1d.
" " 5 lb. " " 6 lb 2d.
It will be noted that the initial penny rate is maintained (the 2 ounces
for 1/2d. being merely the ordinary printed matter rate), but a
comparison with the ordinary parcel post rates (see Chapter III) will
show that if, as there is reason to believe, those rates are
unremunerative, the rates for literature for the blind must involve a
heavy loss on each packet. The number of packets is, however, only some
300,000 per annum.
Similar low rates are in operation in other countries. In the United
States packets containing matter of this kind are carried free.
* * * * *
(VI) MINOR RATES IN THE UNITED STATES AND CANADA
In the United States and Canada a special method of differentiating
rates of postage has been adopted. All postal traffic is termed "mail
matter," and is classified in four groups, to each of which is applied
an appropriate rate. The classification, which is almost identical in
the two countries, is based partly on the general character of the
packets (size, shape, etc.), but more largely on certain general
principles of administration, and on the intrinsic value of the
contents. Thus the ordinary letter, which is the most important and
valuable traffic, is placed in the first class of mail matter, and is
charged the highest rate. Newspapers and periodicals, which are regarded
as of great importance in aiding the education and enlightenment of the
people, are placed in the second class of mail matter and are given the
lowest rate.[527] Books and all other printed matter, commercial papers,
postcards, etc., are regarded as of less importance than letters, and
are deemed to be less entitled to encouragement from the State in their
distribution, but still entitled to preferential treatment as compared
with packets containing miscellaneous articles. They are accordingly
placed in the third class of mail matter, and are given a rate
intermediate between that of the first class and that of the second. All
other articles sent by post--the residuum of postal packets--are placed
together in a fourth class of mail matter, to which is applied a rate
higher than the third-class rate, but considerably lower than the
first-class rate.[528]
The rates for first-class matter (letters) and second-class matter
(newspapers and periodicals) in the United States have been dealt with.
They may be repeated here for purposes of comparison: the rate for
letters is 1 cent for each 2 ounces or fraction of 2 ounces; the rate
for newspapers is 1 cent a pound or fraction thereof when sent from
publisher to subscriber--when sent otherwise the rate is 1 cent for
every 4 ounces. On third-class matter the rate is 1 cent for each 2
ounces or fraction thereof, and on fourth-class matter the rate is 1
cent for every ounce or fraction of an ounce. With the view of
encouraging agriculture, seeds, cuttings, bulbs, scions, roots, and
plants are given the same rate as ordinary printed matter in the third
class.
In Canada the rate of postage on first-class matter is 2 cents per ounce
or fraction of an ounce, except on postcards, for which the rate is 1
cent, and local or "drop" letters, on which the rate is also 1 cent
(_supra_, p. 255). On second-class matter the rate is 1/4 cent a pound
when posted by publishers to subscribers, otherwise 1 cent for each 4
ounces or fraction thereof. On general third-class matter (including
samples) the rate is 1 cent for each 2 ounces or fraction thereof: a
special rate of 2 cents for the first 4 ounces and 1 cent for each
additional 4 ounces or fraction thereof is given for seeds, cuttings,
roots, bedding-plants, scions, or grafts. The object of this privilege
is evident. The rate on fourth-class matter is 1 cent for each ounce or
fraction thereof.
These rates have not been calculated with reference to the cost of the
service in each case. Classification was introduced in the United States
Postal Service as far back as 1863, but until 1906 no attempt had been
made to apportion the total cost between the various classes. The
estimate then made showed that the second-class mail involved a heavy
loss, probably equal to six or seven times the rate of postage.[529]
* * * * *
V
LOCAL RATES
UNITED KINGDOM
Local postal services, providing for the delivery of local letters at
reduced rates of postage, existed in the United Kingdom over a long
period. The first service was established in London in 1680. Up to this
time the business of the Post Office had been restricted to the
transmission of letters between the post towns, and no rate of postage
existed except in respect of letters sent over appreciable
distances.[530] The idea of a local service seems to have originated
with a Mr. Robert Murray; but the London local post was actually
established by William Dockwra, "a merchant, a Native and Citizen of
London, formerly one of his Majesty's Sub-Searchers in the Custom House
of London." Other citizens of London were concerned in the undertaking,
which was established without reference to the authorities of the Post
Office, and was intended to be purely a private commercial
undertaking.[531]
Under Dockwra's scheme London, with Westminster and the suburbs, was
divided into seven districts or "precincts," in each of which was a
"sorting house." Scattered over the City and suburbs were from four
hundred to five hundred receiving houses for the taking-in of letters.
Messengers called at the houses for letters every hour. Letters and
parcels not exceeding 1 pound in weight or [L]10 in value were accepted
and conveyed at the uniform charge of 1d., payable in advance.
The service was not restricted to letters for delivery within the London
area and the surrounding district. Letters which were to be transmitted
through the General Post[532] were accepted at any of the receiving
offices, and conveyed to the General Post Office in Lombard Street; and
letters received in London by the General Post were delivered by the
penny post, if for places outside the General Post delivery.[533] This
facility proved of much advantage to the public, and led to a large
increase in the number of General Post letters. When well established,
Dockwra's new system proved profitable and attracted the attention of
the authorities of the General Post Office. They contended that the
service was an infringement of the monopoly conferred on the
Postmasters-General by the Act of 1660,[534] and in 1683, at the
instance of the Duke of York, in whom were vested the profits of the
General Post Office, an action was brought against Dockwra to restrain
him from continuing a breach of the privilege of the
Postmasters-General. Dockwra was ordered by the court to pay nominal
damages, and was forbidden to continue his penny post.
The post was not, however, abolished, but was taken over and managed by
the Postmasters-General. Although the service had been decided to fall
within their monopoly, the rates charged rested on no legal authority.
No statute authorized the conveyance anywhere of letters at the rate of
1d. No authority existed for any rate below the minimum General Post
rate of 2d., under the Act of 1660, a state of affairs which continued
until the passing of the Act of 1711. A penny rate of postage was then
fixed for all letters "passing or repassing by the carriage called the
Penny Post, established and settled within the cities of London and
Westminster, and borough of Southwark, and parts adjacent, and to be
received and delivered within 10 English miles distant from the General
Post Office in London."[535] At first the service had included only the
cities of London and Westminster, the borough of Southwark, and the
immediate suburbs; but the residents in the neighbouring towns and
villages, recognizing the advantage of the system, soon asked that it
might be extended to include their respective localities, voluntarily
agreeing to pay an additional penny on delivery, on each letter. This
further charge was at first appropriated by the messengers as their
remuneration; but as the amount received by them in this way was found
to exceed what might fairly be regarded as reasonable wages, the second
penny was in 1687 made part of the ordinary revenue of the Post Office.
There was, however, no legal authority for the collection of this
additional charge, which remained a voluntary payment until 1730.[536]
The limit of weight for packets sent by the penny post was also
extended, parcels of considerable size and weight being accepted. The
rate of postage, however, remained uniform at a penny. One of the
charges against Dockwra in later years, when he was dismissed from the
office of Comptroller of the Penny Post, to which he had been appointed
under William III, was that he forbade the taking in of any but very
small band-boxes, and all parcels over 1 pound in weight.[537]