THE POSTAL ESTABLISHMENT SUPPORTED DIRECTLY
BY THE STATE

The history of the British Post Office starts with the beginning of the sixteenth century. Long before this, however, a system of communication had been established both for the personal use of the King and for the conveyance of official letters and documents. These continued to be the principal functions of the royal posts until well on in the seventeenth century.

Before the sixteenth century, postal communications were carried on by royal messengers. These messengers either received stated wages or were paid according to the length of the journeys they made. We find them mentioned as early as the reign of King John under the name of nuncii or cursores; and payments to them form a large item in the Household and Wardrobe accounts of the King as early as these accounts exist.[1] They travelled the whole of the journey themselves and delivered their letters personally to the people to whom they were directed. A somewhat different style of postal service, a precursor of the modern method, was inaugurated by the fourth Edward. During the war with Scotland he found himself in need of a speedier and better system of communication between the seat of war and the seat of government. He accomplished this by placing horses at intervals of twenty miles along the great road between England and Scotland. By so doing his messengers were able to take up fresh horses along the way and his despatches were carried at the rate of a hundred miles a day.[2]

From an early period private letters were conveyed by carriers and travellers both within the kingdom and between it and the Continent. The Paston letters,[3] containing the correspondence of the different members of the Paston family, throw some light upon the manner in which letters were conveyed during the latter half of the fifteenth century. Judging from such references as we find in the letters themselves, they were generally carried by a servant,[4] a messenger,[5] or a friend.[6] The later letters of this series, written towards the close of the fifteenth century, show that regular messengers and carriers, who carried letters and parcels, travelled between London and Norwich and other parts of Norfolk.[7] From the fourteenth century down, we have instances of writs being issued to mayors, sheriffs, and bailiffs for the apprehension and examination of travellers, who were suspected of conveying treasonable correspondence between England and the Continent.[8] For the most part these letters were carried by servants, messengers, and merchants.[9]

Sir Brian Tuke is the first English Postmaster-General of whom we have any record. The King's "Book of Payments" for the year 1512 contains an order for the payment of £100 to Sir Brian for his use as Master of the Posts.[10] As the King's appointed Postmaster, he received a salary of £66 13s. 4d.[11] He named the postmen, or deputy postmasters as they were called later, and he was held responsible for the performance of their duties.[12] All letters carried by the royal postmen were delivered to him, and after being sorted by him personally were carried to their destination by the court messengers.[13] The wages of the postmen varied from 1s. to 2s. a day according to the number of horses provided, and they were paid by the Postmaster-General, who had authority to make all payments to those regularly employed.[14] If messages or letters were sent by special messengers, their payment entailed additional expense upon the state and the use of such messengers, when regular postmen were available, was strongly discouraged.[15]

In addition to his other duties Sir Brian was supposed to have a general supervision over the horses used for the conveyance of letters and of travellers riding on affairs of state. Of course on the regular roads there were always horses in readiness, provided by the postmen. Where there were no regular post roads, the townships were supposed to provide the necessary horses, and it was part of the Postmaster-General's duties to see that the townships were kept up to the mark.[16] It was largely on account of the fact that the same horses were used for conveying travellers and mails that the systems of postal and personal communication were so closely interwoven as well in England as in continental countries.[17]

The postmen along the old established routes and on the routes temporarily established for some definite purpose received a fixed daily wage. These men were called the ordinary posts.[18] If, however, letters should arrive in Dover after the ordinary post had left for London, they were generally sent on at once by a messenger hired for the occasion only. He was called a special post and was paid only for the work which he actually performed.[19] Those regular posts, who carried the royal and state letters between London and the place where the Court might be, were called "Court Posts."[20] During the sovereign's tours, posts were always stationed between him and London to carry his and the state's letters backward and forward. These were called extraordinary posts and received regular wages while so employed.[21] In addition there were always messengers employed to carry important despatches to foreign sovereigns. These received no fixed wages, but were paid according to the distance travelled and the expenses incurred on the road.[22]

Apart from his regular duties as outlined above, the Postmaster-General had little initiative power. He could not on his own responsibility order new posts to be laid. Such decisions always originated with the King or the Council and Tuke simply executed their orders.[23] Any increase in the wages of the posts also required the consent of the King or Council.[24]

During the sixteenth century there were three ways to send letters between England and the Continent: by the Royal Post, the Foreigners' Post, and the Merchant Adventurers' Post, apart from such opportunities as occasional travellers and messengers offered. The Royal Posts were presumed to carry only state letters, and consequently the conveyance of a large part of the private letters fell to the other two. Owing to industrial and later to religious motives there had been a large emigration of foreigners from the Continent to England. Edward III had induced many Flemings to leave their native country in the middle of the fourteenth century.[25] Froude says, probably with exaggeration, that in 1527 there were 15,000 Flemings in London alone.[26] In the fifteenth century many Italian artisans came over to reside but not to settle.[27] They were a thrifty people, who did much to place the industrial life of England on a better footing, and were probably more intelligent and better educated than the majority of the English artisans among whom they settled. It seems therefore only natural that they should seek to establish a better system of communication between their adopted and native countries. Their business relations with the cloth markets of the continental cities made necessary a better and speedier postal system than was afforded by the Royal Posts. In addition to this, it was only by act of grace that private letters were carried by Tuke's postmen. In the opening year of the sixteenth century, by permission of the state, the foreign merchants in London established a system of posts of their own between the English capital and the Continent. This was called the "Foreign or Strangers' Post," and was managed by a Postmaster-General, nominated by the Italians, Spanish, and Dutch and confirmed by the Council.[28] These posts were used largely by the English merchants in spite of considerable dissatisfaction on account of the poor service afforded and on political grounds. Their grievances were detailed in a petition to the Privy Council. They considered it unprecedented that so important a service as the carriage of letters should be in the hands of men who owed no allegiance to the King. Such a procedure was unheard of in any of the continental countries. "What check could there be over treasonable correspondence while the carriage of letters continued to be in the hands of foreigners and most of them Dutchmen?" In addition they were not treated so well as were their fellow merchants of foreign allegiance. Their letters were often retained for several days at a time, while all others were delivered as soon as they arrived. The foreign ambassadors could not complain if a change were made, for most of their correspondence was carried on by special messengers.[29] The "Strangers' Post" seems to have come to an end after the Proclamation of 1591 was issued, forbidding any but the Royal Posts from carrying letters to and from foreign countries.[30]

Sir Brian Tuke died in 1545 and was succeeded by Sir John Mason and Mr. Paget, who acted as joint Postmasters-General. Mr. Paget was the sleeping partner, and what little was done was by Mason.[31] They were succeeded in 1568 by Thomas Randolph.[32] He was occasionally sent as special ambassador to France and during his absence Gascoyne, a former court post, performed his duties. From Sir Brian's death until the end of Elizabeth's reign was a period of little advance in postal matters. The regular posts, and it is with them that our chief interest lies, appear to have fallen into disuse. The payments for special messengers are much larger than they had been during Henry's reign. In 1549, a warrant was issued empowering Sir John Mason to pay £400 to the special messengers used during the summer. If anything was left, he was instructed to use it in paying arrears due the ordinary posts.[33] Elizabeth is generally credited with being economical to the extreme of parsimony so far as state expenses were concerned. However this may be, she is responsible for an order to discharge all the regular posts unless they would serve for half of their old wages.[34] The postmen did not receive their wages at all regularly. Randolph was accused by the Governor of Berwick of withholding all of their first year's wages, of receiving every year thereafter a percentage of their salaries, and of demanding certain fees from them, all for his personal use. The Governor considered that Randolph's extortions were largely the cause of the general inefficiency in the posts,[35] but the accusation may have been due to personal grudge. At any rate one measure of postal reform may be credited to Randolph. In 1582, orders were issued to all the London-Berwick posts to the following effect. Every post on the arrival of letters to or from the Queen or Council was to fasten a label to the packet. On this label he was to write the day and hour when the packet came into his hands and he was to make the same entry in a book kept for the purpose. He was also to keep two or three good horses in his stable for the speedier conveyance of such packets.[36]

In 1590, John Lord Stanhope was appointed Postmaster-General by order of the Queen. The office was given to him for his life and then was to go to his son for his son's life.[37] Both the Stanhopes were men of action, but they looked upon their position rather as a means of enriching themselves than as a trust for the good of the state. They proved a stumbling block to the advancement of better men and it was not for sixty years that they were finally swept away to make room for men of greater ability. In 1621, the elder Stanhope was succeeded by his son Charles according to the terms of the original patent.[38] It had been the custom for the Postmasters-General to demand fees and percentages from their appointees. So lucrative were many of their positions from the monopoly in letting horses and the receipts from private letters that many applicants were willing to pay for appointments as deputy postmasters. The ordinary payments when Lord Charles was at the head of the posts amounted to 2s. in the pound as poundage and a fee of £2 from each man. These payments were considered so exorbitant that the Council ordered them to be reduced.[39] One, Hutchins, entered the lists as the champion of the postmasters. He himself was one of them and acted as their solicitor in the contest. Stanhope was glad to compound the case by the payment of £30. Hutchins gave the Council so much trouble that they gave orders that "turbulent Hutchins" should cease to act as the postmasters' solicitor and leave them in peace.[40] His object, however, seems to have been accomplished so far as Stanhope was concerned. The struggle with the Paymasters of the Posts was not so successful, for, supported by a report of the Treasurer, they continued to receive their shilling in the pound.[41]

By a Privy Council Proclamation issued in 1603, all posts receiving a daily fee were required to have two leather bags, lined with "bayes" or cotton, and the post himself was to sound a horn whenever he met any one on the road or four times in every mile. The packet of letters was not to be delayed more than fifteen minutes and was to be carried at a rate of seven miles an hour in summer and five in winter. The time at which it was delivered into a post's hands and the names and addresses of the people by whom and to whom it was sent were to be entered in a book kept for the purpose. All posts and their servants were exempted from being "pressed" and from attendance at assizes, sessions, inquests, and musters.[42]

It is doubtful how far the postmasters were held responsible for the delivery of letters to the persons to whom they were addressed. This did not become a burning question, however, until after the recognition of the fact that the letters of private individuals should receive as good treatment at the hands of the postmen as the letters of the state officials. Lord Stanhope in 1618 issued an order to the Justices of the Peace in Southwark to aid the postmaster of that place in the delivery of letters within six miles.[43] This was followed two years later by a general order to establish two or three foot-posts in every parish for the conveyance of letters.[44]

During the early part of the seventeenth century, Stanhope had employed a foreigner, de Quester, as one of the King's posts "beyond seas." He commended himself to the notice of his superiors by his promptitude in dealing with the foreign letters.[45] In 1619 James appointed him Postmaster-General for "foreign parts" and henceforth he was his own master.[46] This was followed four years later by a formal proclamation, confirming to de Quester and his son the position already granted to the father.[47] He was to have the sole monopoly of carrying foreign letters and was to appoint the necessary officials. All persons were formally prohibited from entrenching upon the privileges granted him in 1619. From this time until 1635, the foreign and inland posts were under separate management and the accounts were kept separate until long after the latter date. Stanhope was unwilling to submit to the curtailment of his profits, which necessarily followed the appointment of de Quester. There was much to be said for Stanhope's contention that the patent of 1623 was illegal for, ever since there had been a Postmaster-General, his duties had extended to the foreign as well as to the inland office. The question was referred to a committee, composed of the Lord Chamberlain, one of the Secretaries of State and the Attorney-General, who decided that Stanhope's patent extended only to the inland office.[48] The whole question was finally brought before the Court of King's Bench, which decided the case in favour of Stanhope.[49] This was in 1625, but de Quester seems to have paid no attention to the decision for it is certain that he continued to act as Foreign Postmaster until 1629[50] and in 1632 he resigned his patent to Frizell and Witherings. It can be imagined what must have been the chaotic condition of the foreign post while this struggle was going on. The Merchant Adventurers established posts of their own between London and the Continent under Billingsley. The Council issued the most perplexing orders. First they forbade Billingsley from having anything to do with foreign letters.[51] Then they decided that the Adventurers might establish posts of their own and choose a Postmaster.[52] Then they extended the same privilege to all merchants. Next this was withdrawn and the Adventurers were allowed to send letters only to Antwerp, Delft and Hamburg or wherever the staple of cloth might be.[53] These orders do not seem to have been passed in full council for, in 1628, Secretary Coke in writing to Secretary Conway said that "Billingsley, a broker by trade, strives to draw over to the merchants that power over foreign letters which in all states is a branch of royal authority. The merchant's purse has swayed much in other matters but he has never heard that it encroached upon the King's prerogative until now." He adds "I confess it troubleth me to see the audacity of men in these times and especially that Billingsley." He enclosed a copy of an order "made at a full Council and under the Broad Seal," which in effect was a supersedeas of the place which de Quester enjoyed.[54] When de Quester resigned in favour of Frizell and Witherings, the resignation and new appointments were confirmed by the King.[55] Of these men Witherings was far the abler. He had a plan in view, which was eventually to place the foreign and inland systems on a basis unchanged until the time of penny postage. In the meantime he had to overcome the prejudices of the King and get rid of Frizell. In order to raise money for the promotion of his plan, Witherings mortgaged his place. Capital was obtained from the Earl of Arundel and others through John Hall, who held the mortgage. The King heard of this and ordered the office to be sequestered to his old servant de Quester and commanded Hall to make over his interest to the same person.[56] There were now three claimants for the place, Frizell, Witherings, and de Quester. Frizell rushed off to Court, where he offered to pay off his part of the mortgage and asked to have sole charge of the Foreign Post. "Witherings," he said, "proposes to take charge of all packets of State if he may have the office, but being a home-bred shopkeeper, without languages, tainted of delinquency and in dislike with the foreign correspondents, he is no fit person to carry a trust of such secrecy and importance."[57] Coke knew better than this, however, and through his influence Witherings, who had in the meantime paid off the mortgage and satisfied Frizell's interest, was made sole Postmaster-General for Foreign Parts.[58] With Witherings' advent a new period of English postal history begins. His dominant idea was to make the posts self-supporting and no longer a charge to the state. It had been established as a service for the royal household and continued as an official necessity. The letters of private individuals had been carried by its messengers but the state had derived no revenue for their conveyance. The convenient activity of other agencies for the carriage of private letters was not only tolerated but officially recognized. The change to a revenue-paying basis tended naturally to emphasize the monopolistic character of the government service.[59]