THE HISTORY OF THE POST OFFICE IN
BRITISH NORTH AMERICA

CAMBRIDGE UNIVERSITY PRESS

C. F. CLAY, Manager

LONDON : FETTER LANE, E.C. 4

ALL RIGHTS RESERVED

THE HISTORY
OF THE POST OFFICE IN
BRITISH NORTH AMERICA
1639-1870

BY

WILLIAM SMITH

SOMETIME SECRETARY OF THE POST OFFICE DEPARTMENT OF CANADA

CAMBRIDGE

AT THE UNIVERSITY PRESS

1920

Printed in Great Britain by
Richard Clay & Sons, Limited,
brunswick st., stamford st., s.e. 1,
and bungay, suffolk.

PREFACE

My purpose, in the searches for material which led to the present volume, has been to give as complete an account as it lay in my power to do, of the beginnings and growth of the Canadian post office, with which I was associated for thirty-six years. As my studies progressed, however, I found it would be necessary to widen my field.

The Canadian post office did not come into being as an independent organization. It was but the extension into newly-acquired territories, of a system which had been in operation for nearly three-quarters of a century, with well-established modes of administration. Obviously, either reference should be made to well-known works on the older colonial postal system, or an account of it must be attempted in this volume.

Although careful studies of some aspects of this history have been made, this part of colonial history has, on the whole, received less of the attention of students than has been devoted to throwing light upon other phases of that history; and, what was important for my purpose, little has been done in the way of describing the relations between the colonial postal system and the general post office in London, to which it was subordinate.

The materials for this portion of the history are to be found in the records of the general post office, London, the British Museum, and in the journals of the colonial legislatures. A very interesting document is Franklin's Account Book, which is in the Boston Public Library.

The materials for the history of the post office in the provinces now composing the Dominion of Canada, are in the records of the general post office, the larger portion of which have been transcribed for the Public Archives of Canada; in the correspondence between the colonial governors and the colonial office, which can be found either in the original or in transcripts in the Public Archives, and in the Journals of the Provincial Legislatures.

In the preparation of the chapter on the postal service of Newfoundland, I had the advantage of a rather close acquaintance with that service, due to my having had charge of it some years ago for a period of several months. The material on which the chapter is founded has been gathered from the records of the general post office, and the legislative papers of the colony.

In collecting my material, I have received ready assistance from all to whom I have applied. To all these my hearty gratitude is tendered. A word of special acknowledgment is due to Mr. Edward Porritt, author of The Unreformed Parliament of Great Britain, who kindly read the manuscript, and to whose experience I am indebted for many valuable suggestions.

William Smith.

August 1920.

CONTENTS

PORTRAITS

HISTORY OF THE POST OFFICE
IN BRITISH NORTH AMERICA

CHAPTER I

Beginnings of postal service in former American colonies.

Benjamin Franklin relates that when the news reached America in 1763 that peace had been concluded between England and France, he made preparations to visit Canada, for the purpose of extending to it the postal service of the North American colonies, and that the joy bells were still ringing when he left Philadelphia on his journey northward. Franklin has universal fame as a philosopher and statesman, but is perhaps less widely known as one of the deputies of the postmaster general of England. He had, however, a long and useful connection with the post office a quarter of a century before this time. He was appointed postmaster of Philadelphia in 1737,[1] and for many years combined the duties of this office with that of newspaper publisher. He became deputy postmaster general in 1753.[2] Canada had been in the hands of the British since 1760, and until a regular system of government was established in 1764, its affairs were administered by a military council, which among other matters provided a rudimentary postal service. The merchants of Quebec were desirous of a regular post office; and, owing to Franklin's promptness, the post office was the first of the institutions of government which was placed on a settled footing after Canada became a British province.

On arriving at Quebec, Franklin opened a post office there with subordinate offices at Three Rivers and Montreal,[3] and established a monthly service between the Canadian post offices and New York, arranging the trips so that the courier should make as close connection as possible with the packet boats which sailed monthly each way between New York and Falmouth, England.

The postal system into which Canada was thus incorporated was of vast extent. It stretched from the river St. Lawrence to Florida. New York was its pivotal point, the mail couriers running north and south connecting there with one another, and with the packets from England. The system was under the control of two deputies, of equal authority, one of whom was Franklin, and the other John Foxcroft. As this system had a long history when Canada came to be comprised in it, it seems essential to a proper presentation of the subject that a sketch of that history should be furnished.

The first notice of a post office in North America appears in the records of the general court of Massachusetts Bay for the year 1639. The colony was just ten years old. Letters from home, always eagerly looked for, were then awaited with double anxiety in view of the distracted state of England.

King Charles was at this time midway in the course of his great experiment in absolute government, which ten years before had driven these people from their homes, and ten years later was to carry him to the block.

Some effective arrangement for the exchange of correspondence between New and Old England was a necessity. Until 1639 there was none. On the English side, it was the practice for sea captains, who intended making a trip to America, to give public notice of the fact, and to place a bag for the reception of letters in one of the coffee houses. On the day of sailing, the bag was closed and taken on board the vessel to America.

It was at this point that the scheme failed. There was no one in America charged with the duty of receiving and distributing the letters; and consequently, many letters were misdelivered, and many not delivered at all. It was to provide a remedy for this state of things that an ordinance[4] was passed on the 5th of November, 1639.

By this ordinance public notice was given that all letters from beyond the seas were to be taken to the tavern kept by Richard Fairbank, in Boston, who engaged that they should be delivered according to their addresses. He was to receive a penny for every letter he delivered, and was to answer for all miscarriages due to his neglect. The Fairbank's tavern was a resort of some prominence. Through the correspondence of the time, it appears as the meeting place for various committees of the colony, and returns to the surveyor general were ordered to be made at Fairbank's in 1645.

The ordinance of 1639, besides giving directions for the receipt and delivery of letters coming to Boston from beyond the sea, also authorized Fairbank to provide for the despatch of letters posted at his house, and addressed to places abroad. He was licensed to receive letters from the citizens of Boston for transmission across the sea; but the ordinance laid it down carefully that "no man shall be compelled to bring his letters thither unless he please."

This proviso is quite in keeping with the spirit of the time. At present and for more than two centuries past, the exclusive right of the post office to engage in the conveyance of letters is conceded without question. But at that time, its claims to a monopoly in letter carrying were contested on all sides.

Indeed anything presenting the appearance of a monopoly found small favour. The natural jealousy with which every claim to exclusive privilege is viewed, was heightened to the point of hatred during the struggle for constitutional government, by the fact that trading monopolies which were granted to courtiers, not only enhanced unreasonably the price of many of the necessities of life, but also furnished the means, which enabled the king to pursue his illegal and arbitrary courses in defiance of parliament.

The privy council in England had adopted in 1635 a scheme for the administration of the post office, one of the features of which was the bestowal upon it of the sole right to carry on the business of conveying and delivering letters in England. This was contested in the courts, and in 1646 was pronounced illegal.

The claim had received an earlier blow at the hands of the long parliament, which in 1642 condemned the post office monopoly. The arguments for monopoly, however, were not long to be gainsaid; and when Cromwell took up the question of the post office, and passed a comprehensive act on the subject in 1656, the monopoly as regards the conveyance of letters was conferred on the post office in express terms.

This act was confirmed after the Restoration in 1660; and the post office has remained undisturbed in the enjoyment of its monopoly since that date. In the North American colonies, the post office monopoly was never popular, though, owing to the ease with which it was evaded, it was regarded with indifference until close upon the war of the Revolution.

In 1663, the English government began to see the necessity for a postal service between England and its colonies in America. On the 1st of June of that year, the king wrote to the governor of Barbados[5] that it had become a matter of daily complaint that there was no safe means of communication with Virginia, New England, Jamaica, Barbados and other colonies in America; and he directed the governor to establish a post office within Barbados and the Caribbee Islands.

The post office was to be under the control of the postmaster general of England, to whom the accounts should be sent; and the rates of postage were to be the same as those fixed for England by the act of 1660. Nothing seems to have been done at this time towards establishing a post office in either Virginia or New England.

So far as the interests and convenience of the people of New England were concerned, these in no way suffered from the lack of attention on the part of the home government. The coffee house on the one side, and the tavern on the other, with the vessels passing between as often as business warranted, answered every reasonable demand.

In Virginia it would not appear that the legislature at this period took any steps towards providing a place of deposit and delivery, such as Fairbank's, for letters passing between the colonists and their correspondents beyond the sea. But the want of this convenience caused little restriction on the exchange of letters by means of the trading vessels which visited Jamestown.

New York contained the only other considerable group of settlers at this time. It was a recent acquisition, having passed into the hands of the English in 1664. The Dutch, the former possessors, had arrangements for the exchange of letters with Amsterdam, not dissimilar from those in force in New England. In 1652 the Dutch West India Company informed their director general in New Amsterdam, that having observed that "private parties give their letters to this or that sailor or free merchant, which letters to their great disadvantage are often lost through neglect, remaining forgotten in the boxes or because one or the other removes to another place," they had a box hung up at their place of meeting in which letters might be deposited for despatch by the first vessel sailing; and they directed that the same step might be taken in New Netherland.[6]

Seven years later, finding that the people of New Netherland persisted in disregarding the measures taken for the safety of their letters, the company repeated their order, and reinforced it by a fine of one hundred Carolus guilders for each infraction.[7]

For some years after 1664, the trade between England and its new possession was of small proportions, and the opportunities for sending letters from one to the other, few. Lord Cornbury, as late as 1702,[8] informed the Lords of Trade that there were so few vessels running between New York and ports in England that he had to depend for his correspondence on Boston or Philadelphia, which places had regular communication with the mother country.

Nor was the case of New York materially improved in 1708. Cornbury, in that year, pleaded with the board of trade for a regular packet service to some part of the American continent. Sometimes many months elapsed, without his hearing in any way from home. Before he received his last letters in May, he had heard nothing from England for fifteen months.

There were but two safe ways of sending letters to England, which were the Virginia fleet, and the Mast fleet of New England. From Virginia there was no post, and it was very hard to know when that fleet would sail. From Boston there was a post by which Cornbury could hear once a week in summer, and once a fortnight in winter, so that they had a sure conveyance by the Mast fleet. Advantage had to be taken, as opportunity offered, Cornbury informed the board of trade, of the packets running from the West Indies to England, but as several of the packet boats had been captured, this was a very uncertain mode of communication.

But, although the three groups of colonies had each its own connection with England, until 1672 there was no connection whatever between these groups. Nor was any thought to be necessary. The groups were separated from one another not only by space, but by social and political differences.

The Puritans of New England and the Cavaliers of Virginia, had little in common but the memories of a quarrel, which was still warm; and New York was still largely Dutch, though even at that date it was taking on the cosmopolitan character, which has since distinguished it.

As for the trade of the colonies, Mr. Woodrow Wilson stated—"the main lines of trade run straight to the mother country, and were protected when there was need by English fleets. Both the laws of parliament and their own interest bound the trade of the colonies to England. The Navigation Act of 1660 forbade all trade with the colonies except in English bottoms; forbade also, the shipment of tobacco any whither but to England itself; and an act of 1663 forbade the importation of anything at all except out of England, which it was then once for all determined must be the entrepôt and place of staple for all foreign trade. It was the Dutch against whom these acts were aimed."[9]

As has happened so often, however, that which could not be accomplished by reason of the feebleness of the common interest was brought about by the presence of impending danger. In 1672, war broke out between the English and the Dutch, the object of which was maritime supremacy and colonial expansion. The stakes were the colonies in Africa, the East Indies, the West Indies and America.

The English having ousted their rivals from New York presented a strong front on the North American continent; and the only thing lacking was cohesion among the several colonies. At the outbreak of the war, the king directed governor Lovelace, of New York, to see what could be done towards establishing a regular postal communication between the colonies.

Lovelace arranged for a monthly service by courier between New York and Boston.[10] There was no road between the two places; and governor Winthrop was asked to provide an expert woodman, who would guide the courier by the easiest road.

The courier was directed to blaze the route, and it was hoped that a good road might be made along the route pursued. The courier made his trips for a few months only, when New York was captured by a Dutch fleet which came suddenly upon it. The town was restored to the English at the conclusion of the war in 1674, and with the disappearance of the danger, the communication also was dropped.

A few years later danger of a more serious character threatened from another quarter, and again the colonies were compelled to recognize the necessity of yielding something from the attitude of jealous independence, which characterized them. Between the English colonies and the French in Canada there was a steady rivalry for the possession of the fur trade of the Western country. Each had Indian allies, whose methods of warfare carried terror among their opponents.

The English were in numbers very much superior to the French; and if united and determined could have overwhelmed them. The unwillingness of the English to take any action in common was costing them dearly, as the outlying parts of all the colonies were being constantly harassed by the Indian tribes in league with the French.

In 1684 a conference took place at Albany between the representatives of the several colonies and of the Iroquois nations. This conference was important in several respects, but particularly in the fact that it was the first in which all the colonies took part. Even remote Virginia sent a delegate.

While the colonies were in this mind, Colonel Dongan, governor of New York, determined to make an effort to establish a permanent postal service among them. His plan was to establish a line of post houses along the coast from the French boundaries to Virginia. The king, who was much pleased with the proposition, directed Dongan to farm out the undertaking to some enterprising contractor, for a period of three or five years, and to turn over at least one-tenth of the profits to the Duke of York.[11]

The duke appears to have had a claim on the revenues of the post office on two grounds. He was proprietor of the colony of New York; and under the post office act of 1660, he was recognized as entitled to a share in the profits from the English post office.

How far Dongan succeeded with this extensive scheme does not appear. He planned to visit Connecticut, Boston, and, if possible, Pemaquid. In March 1685, he had an ordinance adopted in the council of New York for a post office throughout the colonies, and fixed the charges for the conveyance of letters at threepence for each hundred miles they were carried, and for the hire of horses for riding post, threepence a mile.

Dongan's jurisdiction did not, however, extend beyond the colony of New York; and the records of the other colonies are silent as to their acquiescence in this arrangement. The only evidence that has appeared as to the operation of the service, and it establishes the fact that the service was performed for a time at least, is that Leisler, an insurrectionary leader, who seized the government of the colony in 1689, arrested the mail carrier on his way from New York to Boston, and confiscated his letters.[12]

In July 1683, a weekly post was established in Pennsylvania. Letters were carried from Philadelphia to the Falls of Delaware for threepence; to Chester for twopence; to New Castle for fourpence; and to Maryland for sixpence.[13]

As part of the scheme of James II for the confederation of the New England States under a royal governor, a postmaster was appointed for the united colonies. The choice fell upon Edward Randolph, who had just previously been made secretary and registrar of the new province. The appointment was dated 23rd of November, 1685.[14] He seems to have discharged the duties of postmaster[15] until the fall of the Andros government, which followed closely the deposition of James II in 1689.

Until this time, then, the post office would be classed generally among the merely temporary conveniences of the state, and not among its permanent institutions. When William III was settled on his throne, he managed, amid his cares at home and abroad, to give some attention to the affairs of the colonies. Those in North America had been growing rapidly, and at the end of the period of the revolution in England, the population is believed to have been about 200,000.

The greater part of the increase was in the middle states of New York, New Jersey and Pennsylvania; though in the south, the colonies of Maryland and Virginia showed considerable gain, and a beginning was made in the settlement of the Carolinas.

The question of providing the American colonies with a postal system was submitted to the king by Thomas Neale, Master of the Mint, who coupled his representations on the subject with a petition for authority to establish such a system in America at his own charges. He pointed out in his memorial that there had never been a post for the conveying of letters within or between Virginia, Maryland, Delaware, New York, New England, East and West Jersey, Pennsylvania, and northward as far as the king's dominions reach in America; and that the want thereof had been a great hindrance to the trade of those parts.

The king thereupon, on the 17th of February, 1691, granted a patent to Neale, conferring upon him authority to set up one or more post offices in each of the chief ports of the several islands, plantations and colonies in America, and to carry on all the functions of postmaster, either in person or by deputy. He might collect as his own, the postage accruing from the business, the rates being fixed by the English post office act of 1660; or he was at liberty to charge such other rates "as the planters and others will freely agree to give for their letters or packets upon the first settlement of such office or offices."

In order to secure to Neale a monopoly of the postal business, the patent imposed a prohibition on any person except Neale from setting up post offices during the term of the patent, which was twenty-one years. Neale was held bound to provide an efficient service; in case of dissatisfaction, or of his failure to put the service in operation within two years, the patent was to become invalid. The consideration that Neale was to give for the patent was merely nominal; he was to remit six shillings and eightpence to the exchequer each year at the Feast of St. Michael the Archangel.

Having secured his patent, Neale sought a suitable person to act as his deputy. His choice fell upon Andrew Hamilton, an Edinburgh merchant, who after seven years' residence in New Jersey, was made governor of that province in 1692. Hamilton was a man of energy and ability; and in the difficult task of conciliating sensitive legislatures, and bringing them into agreement with his views, he had much success. It was to him that the colonies were indebted for their first effective postal system.

Neale's patent did not give him power to set up a postal service, and fix his charges without regard to the will of the people. He might either apply the rates fixed by the act of 1660; or come to terms with the people or their representatives as to the rates they would agree to pay. The latter was the alternative chosen.

Accordingly, during the year 1693, Hamilton addressed himself to the several colonial governments, setting forth his plan, and begging that they might "ascertain and establish such rates and terms as should tend to quicker maintenance of mutual correspondence among the neighbouring colonies and plantations, and that trade and commerce might be better preserved."

The colonies having responded favourably to his overtures, Hamilton prepared a draft bill, which he submitted to the legislatures for their acceptance. This bill provided for a general post office or chief letter office in the principal town of each colony, the postmaster of which was to be appointed by Hamilton. The monopoly conferred on Neale by his patent was enforced in the proposed bill by considerable penalties for infringements.

The postal charges, as well as the privileges and appurtenances to be granted to post masters and mail couriers, were discussed between Hamilton and the several legislatures. There was some variety in the privileges allowed to postmasters and couriers. In Massachusetts, Pennsylvania, and Connecticut, the mail couriers were granted free ferriage over the rivers and other water courses which lay along their routes. In the acts passed by New York and New Hampshire, there was no mention of free ferries, but in each of these acts a rather peculiar exemption is made in favour of the postmasters, that they should not be subject to excise charges on the ale and other liquors which formed the stock in trade of their business as innkeepers.

The postmasters in all the colonies were made exempt from all public services, such as keeping watch and ward, and sitting on juries. Shipmasters on arriving at a port with letters in their care were enjoined to deliver them to the nearest post office, where they would receive one halfpenny for each letter.[16]

The principal postal rates, as settled between Hamilton and the legislatures concerned were as follows: on letters from Europe or from any country beyond sea, if for Massachusetts, New Hampshire and Pennsylvania twopence; if for New York ninepence. In the interchange among the colonies themselves, the charge on a letter passing between Boston and Philadelphia was fifteen pence, and between New York and Philadelphia fourpence-halfpenny.

There was a peculiarity in the postage on letters passing between Boston and New York. It differed according to the direction the letter was conveyed. A letter from New York to Boston cost twelvepence; while ninepence was the charge from Boston to New York. This is one of the consequences of the separate negotiations carried on by Hamilton with the different legislatures.

The Massachusetts act fixed the charge on the letters for delivery in Boston; and the New York act on the letters for New York. From Virginia, to Philadelphia, New York and Boston, the charges were ninepence, twelvepence and two shillings respectively. All the acts concurred in the stipulation that letters on public business should be carried free of charge.

The foregoing contains the substance of the acts passed by New York and Pennsylvania. Massachusetts went a step further. To that legislature it appeared desirable to put a binding clause requiring Hamilton to give a satisfactory service. Massachusetts was as willing as the others to grant a monopoly of letter carrying to Hamilton, but it was of opinion that the exclusive privilege should carry an obligation with it. The postal service was being established as a public convenience; and if Hamilton was to have the power to prevent any person else from providing the convenience, he should be bound to meet the public requirements himself.

The Massachusetts legislature, after authorizing Hamilton to settle a post office in Boston, fixing the postal charges, and conferring a monopoly on him, accordingly added a clause binding Hamilton to maintain constant posts for the carriage of letters to the several places mentioned in the act; to deliver the letters faithfully and seasonably; and it imposed a fine of £5 for each omission.

In order that the public might be in a position to detect any delays in the delivery of letters after they reached a post office, the postmaster was required to mark on each letter the date on which it was received at his office. New Hampshire followed Massachusetts in adding this clause to its post office acts.

The four acts were sent to London, and laid before the king in council, as all colonial acts were. The acts of New York, Pennsylvania and New Hampshire passed council and became law. On the advice of the governors of the post office, the Massachusetts act was disallowed.[17]

The grounds for the discrimination against Massachusetts are difficult to understand. The Massachusetts act undoubtedly contained departures from the terms of the patent. But they were such departures as might be expected when an act is drawn up, by a person unlearned in the law, who, having the patent before him, aims at substantial rather than at literal conformity therewith. There can be no question that the drafts presented to the several assemblies were prepared by one person. Their practical identity establishes the fact.

There can be equally little doubt that the draftsman was Hamilton himself. The governors of the post office, who framed the objections,[18] noted first that the patent provided that the appointment of Neale's deputy should, at his request, be made by the postmaster general; whereas the Massachusetts act appeared to appoint Andrew Hamilton postmaster general of the colonies, independently of the postmaster general of England, and not subject to the patent.

The patent required Neale to furnish accounts at stated intervals to enable the treasury to establish the profits from the enterprize. It also stipulated for the cancellation of the patent in certain eventualities. Both these terms are omitted from the act. Insufficient care was taken in safeguarding the post office revenue, and no provision was made for a successor in case of the removal of Hamilton from his position.

The points to which the post office drew attention were, as will be seen, far from wanting weight; and if they had not been pressed against the Massachusetts bill alone, would have excited little comment. But the Massachusetts general court noted and resented the discrimination. When Neale was informed of the disallowance, he begged the governors of the post office to prepare a bill which they would regard as free from objections, and to lend their efforts to have it accepted by Massachusetts.[19]

A bill was drawn up; and Lord Bellomont, the governor of New England, was instructed to invite the favourable consideration of the Massachusetts legislature to it.[20] The bill was laid before the general court on June 3, 1699, and it was ordered to be transcribed and read.[21]

Five days later it came up for consideration, but it was resolved that the committee on the bill should "sit this afternoon,"[22] and it appeared in the assembly no more. The rejection of the bill, however, was of little or no practical consequence. The post office was too great a convenience to be refused; and so it was established and conducted as if the bill were in operation, except that it had no monopoly in that colony.

But the legislature, which was evidently desirous of extending in its own way all reasonable aid to Hamilton, passed an order in 1703[23] requiring shipmasters to deliver all letters they brought with them from oversea at the post office of the place of their arrival, for which they were to receive a halfpenny each from the postmaster. Massachusetts equally with the other colonies made an annual grant to the post office for the conveyance of its public letters.

So far the narrative deals only with the northern colonies. The proposition for a post office, however, was submitted to Virginia and Maryland as well. It would seem, however, that the mode of approaching these governments differed from that taken in laying the proposition before the northern colonies. In case of the northern colonies Hamilton dealt with the legislatures in person. The draft bill which he prepared was submitted as a basis for discussion. So far as it went it was accepted, and Hamilton agreed to such additions as the legislatures considered necessary in view of local circumstances.

Virginia and Maryland were approached quite differently. They were advised of the scheme not by Hamilton, but by the English court. In the minutes of council of both governments,[24] it is recorded that the proposition was laid before them in a letter from the queen. This fact will account for the very different consideration the proposition received from these colonies. Maryland rejected it outright. On the 13th of May, 1695, the scheme was laid before the house of burgesses. It was set aside,[25] and nothing more was heard of it.

Virginia gave attentive consideration to the proposition to establish a post office, though the ultimate results were no greater than in Maryland. There had been since 1658 an arrangement for the transmission of letters concerning the public affairs of the colony.[26] An order was issued by the council that all letters superscribed for the public service should be immediately conveyed from plantation to plantation to the place and person directed, and that any delay should subject the person at fault to a fine of one hogshead of tobacco.

No arrangements of a systematic nature were made for the conveyance of private letters. When information of the patent granted to Neale reached Virginia, the colony showed immediate interest. The council on the 12th of January, 1693, appointed Peter Heyman deputy postmaster,[27] and proceeded to draw up a post office bill. This bill, which became law on the 3rd of April 1693,[28] authorized Neale to establish a postal system in the colony, at his own expense.

The conditions were that he was to set up a general post office at some convenient place, and settle one or more sub-post offices in each county. As letters were posted in the colony or reached it from abroad, they were to be forthwith dispersed, carried and delivered in accordance with the directions they bore, and all letters for England were to be despatched by the first ship bound for any part of that country.

The rates of postage were to be threepence a single letter within an eighty mile radius; fourpence-half penny for single letters outside the eighty mile radius; and eighteen pence for each ounce weight. Public letters were to pass free of postage. No provision was made for postage on letters addressed to places beyond the boundaries of the colony; and it was expressly stipulated that the act did not confer a monopoly on Neale. Merchants were not restrained by this act from employing the services of shipmasters and others, to carry their letters abroad.

The Virginia act of 1693 was local in its scope and provincial in its character. There is a certain simplicity in the extent of its demands as compared with the paucity of its concessions. Neale, at his own cost, was to establish a postal system, comprising a general post office at a place agreed upon, and one or more subordinate offices in each county. Couriers were to be available to take letters anywhere within the colony—without postage if on public business, at rates fixed by the colony if they were private letters. But no person need employ the post office, should any other more convenient or cheaper mode of conveyance offer itself.

A post office, like other kindred accommodations, creates business for itself; but Virginia did not intend that Neale should have any assurance of the business he had brought into existence. As soon as it reached a point at which it was worth struggling for, a competitor might step in and deprive Neale of the fruits of his enterprise.

The act of 1693 seems to have been adopted before the colonies were made aware of Hamilton's connection with the American post office. When the council of Virginia were advised of Hamilton's appointment, they opened communication with him. The notes of the correspondence as they appear in the minutes of council[29] do not give much information, but they show that Hamilton's proposition when submitted to council was not found acceptable; and as subsequent communications failed to remove the difficulties, matters remained as they were until after the Neale patent had expired.

In 1710, the subject was reopened, and the governor reported to the board of trade, that for two months past he had been expecting Hamilton to visit Virginia, for the purpose of opening a post office, and connecting it with the other colonies. The governor believed that the scheme was feasible, and would do his utmost to encourage it. He foresaw a difficulty in the lack of small currency, tobacco which was the only specie, being in the governor's words "very incommodious to receive small payments in, and of very uncertain value."[30]

The line of posts established by Hamilton extended from Portsmouth, New Hampshire, to Philadelphia. Over this long line, couriers travelled with the mails weekly each way.[31] The volume of correspondence carried cannot be ascertained, as the great mass of it, being on public business, would be free of postage. But the postage collected throughout North America during the first four years, from 1693 to 1697, was only £1456 18s. 3d., an average receipt of considerably less than £400 a year.

By way of comparison it may be noted that, in 1693, the revenue between London and Edinburgh was £500; and it was explained that nearly the whole of that amount was for government despatches. The expenses of the Portsmouth-Philadelphia service during those years were £3817 6s. 11d.[32] The deficit of £2360 8s. 8d. fell upon Neale. Results such as these would be sufficiently discouraging. But Neale and his deputy, Hamilton, were hopeful, and drew comfort from the fact that the revenue of New York which was quite insignificant the first year had doubled itself in the third year.

At the end of the sixth year, the revenue had increased to the point at which all the expenses were met, except Hamilton's salary.[33] In 1699, Hamilton went to England, and joined Neale in an appeal to the treasury.[34] After pointing out the benefits accruing to the colonies from the post office—the increase in the transatlantic and intercolonial trade, the rapid diffusion of intelligence in time of war, and the facilities afforded for the delivery of public letters—they declared that unless steps were taken to secure to them the transmission of the whole, and not a mere portion of the oversea correspondence, they might be compelled to abandon the undertaking.

The plan Neale and Hamilton proposed to this end, was to put a stop to the collection of letters at the English coffee houses, and to compel the shipmasters to take all their letters from the local post office, where they would be made up in sealed bags.

Besides ensuring to Neale, by this means, the postage on all the correspondence passing between the mother country and the colonies, the measure proposed would prevent certain abuses which were incident to the existing arrangement. Where the bag hung open in a coffee house, any person might examine its contents on the pretext that he wanted to get his own letter back, and when the ship had reached its destination it was the practice of some captains to delay the delivery of the letters in their hands until they are ready to sail again, and then they got rid of their letters in any way they could.

If the mails were made up in post offices, and the captains were compelled by law to deliver them to the post office at the port of destination before they broke bulk, these evils would be corrected, and a large revenue now lost to the post office would be saved.

Neale and Hamilton also submitted a revised tariff of postal charges, in which there was a general increase. The postmasters general in England rather deprecated the increased postal rates, stating that experience had taught them that low rates were found to be more productive of revenue than those which placed the post office beyond the reach of the mass of the people. They approved of the suggestion that post offices should be established in England for the handling of oversea mails, and hoped that a few years of good management would make the service a remunerative one.

At this point the postmasters general in London threw out a suggestion, which was worth discussion. They doubted whether a post office in private hands would ever commend itself to the colonies in the same way as if it were directly in the hands of the king. The post office depended for its prosperity on the maintenance of its monopoly, a thing naturally distasteful. The monopoly was easily evaded, even if the colonial governments supported it heartily, but any lack of inclination on their part would leave it valueless. They were of opinion that it would require all the authority possessed by the king to induce the colonial governments to co-operate with the heads of the post office in the efforts of the latter to put the service on a sound footing.

Neale, who was sinking deeper and deeper into debt, seized on this expression of opinion, and offered to surrender his patent at any time, on such consideration as seemed just. The treasury, however, were not yet ready to take over the American posts, but they directed the postmasters general to give Hamilton every assistance in their power, and requested the governors of the colonies to do the same, adding that when the value of the post office could be ascertained, they would give the question of the resumption of the patent, further consideration.

Neale's indebtedness to Hamilton for salary now amounting to £1100, he assigned his patent to Hamilton, and to one Robert West, who had made some advances to Neale some years before. The new patentees besought the government to extend their term, which in ordinary course would expire in 1712. Their confidence in the eventual success of the scheme, however, suggested to the postmasters general that the time was now ripe for the crown to take back the patent, and manage the postal service through the general post office in England.

The transfer was made; and John Hamilton,[35] son of the founder of the American post office, who died in 1703, was entrusted with the management of the service, as the deputy of the postmaster general. The results were no better than when the service was privately administered. In 1709, there was a yearly deficit of £200; and as the queen would not allow her losses on this head to be augmented, the postmasters were not being paid.[36]

The postmaster of New England made a strong representation to the government of Massachusetts, pointing out that he had received nothing from the government since 1706, although he had saved the colony £150 a year by the delivery of the public letters. The remonstrance was fruitless, and he renewed his application in 1711. The legislative council on each occasion was prepared to pay what was due to the postmaster, but the assembly could not be brought to authorize it.

FOOTNOTES:

[1] Parton, Life and Times of Benjamin Franklin, I. 240.

[2] Ibid., p. 330.

[3] G.P.O., Treasury Letter-Book, 1760-1771, p. 95.

[4] Coll. Mass. Hist. Soc., third series, VII. 48.

[5] Calendar of State Papers, America and West Indies, 1661-1668, no. 463.

[6] New York Colonial Documents, XIV. 186.

[7] Ibid., p. 446.

[8] N. Y. Col. Docs., IV. 1017.

[9] A History of the American People, II. 16.

[10] Coll. Mass. Hist. Soc., fifth series, IX. 83-84.

[11] Cal. S. P. Col. Am. and W. I., 1681-1685, no. 1848.

[12] N. Y. Col. Docs., III. 682.

[13] Winsor, Narr. and Crit. Hist of Am., III. 492.

[14] Edward Randolph, I. 270 (Publications of the Prince Society).

[15] Samuel Sewall to Thomas Glover, July 15, 1686 (Sewall Letter-Books, I. 21).

[16] The several colonial acts were as follows: New York, passed November 11, 1692 (Laws of Colony of N. Y., I. 293); Massachusetts, June 9, 1693 (ch. 3, 1 sess. Province Laws, I. 115); Pennsylvania, May 15, June 1, 1693 (Duke of York's Laws, p. 224); New Hampshire, June 5, 1693 (N. H. Prov. Laws, p. 561); Connecticut, May 10, 1694 (Pub. Rec. of Conn., 1689-1706 p. 123).

[17] Note to this effect attached to the act (ch. 3, 1 sess. 1693, Province Laws, I. 117).

[18] Cal. S. P. Col. Am. and W. I., 1693-1696, no. 2234.

[19] Cal. S. P. Col. Am. and W. I., 1696-1697, no. 505.

[20] Ibid., no. 1286.

[21] Prov. Laws of Mass., I. 263.

[22] Ibid., p. 420.

[23] Coll. Mass. Hist. Soc., third series, VII. 64.

[24] Minutes of council, Virginia, January 12, 1693, Cal. S. P. Col. Am. and W. I., 1693-1696, no. 21; minutes of council, Maryland, September 24, 1694, ibid., no. 1339.

[25] Minutes of council, Maryland, ibid., no. 1816.

[26] Hening's Statutes at Large, I. 436.

[27] Minutes of council, Virginia, Cal. S. P. Col. Am. and W. I., 1693-1696, no. 20.

[28] Hening's Statutes at Large, III. 112; Journals of the House of Burgesses, 1659/60—1693, pp. 444-446.

[29] Minutes of council, Virginia, May 25, November 10, 1693; October 19, 25, 1694; May 3, July 25, 1695; Cal. S. P. Col. Am. and W. I., 1693-1696, nos. 371, 671, 1430, 1454, 1804, 1975.

[30] Spottswood Letters (published by Virginia Hist. Soc.), I. 22.

[31] Minutes of council, New Hampshire (N. H. Prov. Papers, 1686—1722), p. 100.

[32] G.P.O., Treasury, II. 256.

[33] Cal. Treasury Papers, 1697-1702, p. 289

[34] G.P.O., Treasury, II. 253.

[35] G.P.O., Treasury, VI. 205. John Hamilton was appointed deputy postmaster general by the queen in 1707.

[36] Coll. Mass. Hist. Soc., third series, VII. 69.

CHAPTER II

Colonial post office under Queen Anne's act—Early packet service.

For some years various circumstances had been arising which made it necessary that the post office in Great Britain and the colonies should be established on a footing different from that on which it then stood. The legislative union between England and Scotland in 1707 called for a uniform postal service throughout Britain; but without additional legislation the postmaster general of England could not dispose of the revenues of the post office in Scotland.

The colonies were in their infancy when the English law of 1660 was enacted, and they were not mentioned in it at all. The only clause in that act which affected the colonies in any way was that which required all masters of ships who brought letters with them from beyond the seas, to deposit them at the nearest post office. There was no penalty attached to the disregard of this clause, and the attempt to induce the shipmasters to obey the law by paying them a penny for every letter they delivered in the English post office was pronounced by the auditors to be illegal, and there was a threat made that these payments would be disallowed in the accounts.

There were a number of other circumstances arising out of the growth of the kingdom and its colonial expansion, which compelled the postmaster general to take action in advance of legal authority. When the treasury, after the union of England and Scotland, learned that a new post office law was necessary, they determined to take advantage of the fact to serve their own purposes. The war of the Spanish Succession, which began in 1702, while ruinous to France, also seriously crippled England; and the treasury saw that the enactment of a new post office act might be utilized to increase the postal charges, and additional sums raised for carrying on and finishing the war.

In 1710, accordingly, a post office bill was presented to parliament.[37] It was passed by parliament; and this act was the first measure which dealt in a comprehensive way with the British post office. Substantially it was the law of the post office for more than a century afterwards.

The effect of the new law on the colonial post office was profound. Until 1710 the terms and conditions under which the post office in the colonies was operated, were matters of arrangement between Hamilton and the several legislatures. While the Neale patent enabled Hamilton to set up post offices in the colonies, the postal charges were fixed by the colonial legislatures at such rates as "the planters shall agree to give."

The Neale patent had been resumed by the crown in 1706, but not abrogated. Hence, until the new act came into force, the crown simply stood in the place of the patentees, and operated under the legislation agreed upon between Hamilton and the colonial governments. New York and Pennsylvania, as their short term acts expired, renewed them with the crown; and New Jersey, which established a postal system in 1709, fixed the rates of postage by act of the legislature, but placed the management of the service in the hands of the postmaster general.

The post office act of 1710 made it no longer necessary to consult the colonial legislatures as to the charges to be made for the conveyance and delivery of letters in North America. The supreme control of the postal system throughout the British dominions, beyond the sea, as well as at home, was vested in the postmaster general of England. The rates of payment were fixed by the act, and the mode in which the surplus revenues were to be disposed of was set forth in the same enactment.

In America, the general post offices at Boston, New York and Philadelphia, which stood quite independent of one another, were reduced to the rank of ordinary offices, and made parts of the system, the headquarters of which were placed by the act in New York.[38] The administration of the system, as reconstructed, was continued in the hands of John Hamilton.

As in all other parts of the British dominions, the rates of postage were sensibly increased.[39] Under the Neale patent, a letter from New York for Philadelphia cost fourpence-halfpenny. The act of Queen Anne raised the charge to ninepence, just double the former rate. A letter posted in Boston, and addressed to Philadelphia, which under the Neale patent cost for postage fifteen pence, cost twenty-one pence under the act of 1710. But these figures give no adequate idea of the magnitude of the postal charges as fixed by the act of Queen Anne.

An explanation of the system to which these rates applied will make the matter clearer. At the present time the postage on a letter passing anywhere within the British Empire, or from Canada to any part of the United States or Mexico, is two cents per ounce weight, whether the letter is addressed to the next town or to the farthermost post office in the Yukon.

In 1710, and indeed in Canada until 1851, the distance a letter was carried was an element which entered into the cost. It would have been thought no more proper to ignore the element of distance in fixing the postage on a letter than in fixing the charge for the conveyance of a parcel of goods. By the act of 1710 the postage on a single letter passing between two places sixty miles apart or less was fourpence; where the places were from sixty miles to one hundred miles apart the charge was sixpence.

Besides the distance, however, there was another factor which helped to determine the amount of the postage. This factor will appear from a description of the classes into which letters were divided.

Letters were single, double, and treble, and ounce. A single letter was one consisting of one sheet or piece of paper, weighing less than one ounce. If with this single sheet letter, a piece of paper was enclosed, no matter how small, the letter was called a double letter. The treble letter was a letter consisting of more than two sheets or pieces of paper, under the weight of an ounce.

Whatever the postage of a single letter might be, the postage on a double letter was equal to that of two such single letters; and that on a treble letter was three times that on a single letter. There were no envelopes in use at this period, and the sheet on which the letter was written was so folded that an unwritten portion came on the outside, and on this space the address was written.

The question will occur as to how the presence of enclosures could be detected among the folds of the larger single sheet. There were several means of detection born of ingenuity and experience. The approved method and the one long in service, was to hold every letter up to a lighted candle, and by some skilful manipulating, the taxable enclosures could be seen.

But it was not only enclosures to which the attention of the officials was directed. The postal charges were found so oppressive that several merchants who had letters to send to the same town used to write their several communications on the same sheet, which on reaching the person addressed was by him passed on to the others, whose letters were on the same sheet.

In the post office the practice was much condemned. As it was not specifically provided against in the act, it had to be tolerated until the act was amended; and thereafter when several letters were written on one paper, each was to be charged as a distinct letter. The letter inspectors then had to satisfy themselves that there was no more than one person's handwriting in the sheet, which was, of course, carefully sealed with wax.

The ounce letter needs no explanation. At present the ounce is the unit of weight for letters sent from Canada to every part of the civilized world. In this aspect it corresponds with the single letter of the pre-penny postage days. But the ounce letter of 1710 and of over a century afterwards was far removed from the single letter in the matter of postage.

In that respect the ounce letter was equal to four single letters, and was charged four times the rate of the single letter. Thus, while a single sheet weighing less than an ounce could pass between two neighbouring towns not over sixty miles apart for fourpence, if it tipped the ounce weight it was chargeable with sixteen pence.

The act of 1710 offered a problem to the paper makers. A sheet of paper had to be made stout enough to stand the handling of the post office without the protection of an envelope, and be yet so light as to allow the largest space possible within the ounce weight.

Under this system, in which distance, number of enclosures and weight were all factors, the charges for letters, such as are posted by thousands in our larger offices every day, were very high. An ounce letter, which at the present time costs but two cents to convey to the remotest post office in the North West of Canada, or to Southern Mexico, in 1710 cost three shillings to carry from New York to Philadelphia. From New York to Boston, the postage on the same letter was four shillings. Between the outermost points of the North American postal system in 1710—Portsmouth, N.H., and Charlestown, N.C.—the postage for an ounce letter was ten shillings.

The act of Queen Anne's reign, so long the charter of the British postal system, also greatly increased the charges on letters passing between the mother country and the colonies. In place of the penny or twopence which satisfied the captains for the delivery in America of the letters which had been placed in the letter bags hung up in the London coffee houses, the postage on a single letter passing from London to New York became one shilling. If the letter weighed an ounce, the charge was four shillings.

Captains of vessels, moreover, were no longer at liberty to disregard the requirements of the post office that they should deliver their letters at the post office of the port of arrival. If they failed, they laid themselves open to a ruinous fine.

Remembering the resentment with which half a century later the Americans greeted every scheme, which could be construed into imposing a tax without their consent, one wonders how the post office act of 1710 was regarded in the colonies.

The question is interesting enough to warrant some inquiry. The legislative records have been searched carefully, and also, so far as they were available, the newspapers of the period. With one exception about to be mentioned, the only reference to the post office act which has been discovered is in the New Hampshire records. There it is stated that the act was read before the council on the 13th of September, 1711, and afterwards proclaimed by beat of drum in the presence of the council and of some members of the house of representatives.

The case in which the act came into question occurred in Virginia. This colony had no post office in 1710, nor for a considerable period afterwards; and it was the attempt to put the post office in operation in 1717 which led to the protest and the countervailing action.

Virginia seems to have had no desire to be included in the American postal system. In 1699 Hamilton reported on the proposition of extending the system southward to Virginia.[40] The extension would cost £500; and Hamilton declared that the desire for communicating with the northern colonies was so slight that he did not believe there would be one hundred letters a year exchanged between Virginia and Maryland and the other colonies. Practically all the correspondence of the two colonies was with Great Britain and other countries in Europe.

In the autumn of 1717, steps were taken to establish a post office in the two colonies, and to connect them with the other colonies. Postmasters were appointed in each colony. Couriers carried the mails into several of the more populous counties; and a fortnightly service was established between Williamsburg and Philadelphia. This was quite satisfactory, until the people began to read the placards which they observed affixed to every post office wall, directing that all letters, not expressly excepted by the act of parliament, should be delivered to the local postmasters. Here was matter for thought.

A glance at the tariff showed that the charge made by the post office on a letter from England was one shilling for a single letter. The letters from England were the only letters the people of Virginia cared anything about, and they were accustomed to pay only a penny as postage for them.

There was some little trouble, and perhaps a slight risk attending the safe delivery of letters by the existing arrangement. Virginians were, however, used to it, and had no great fault to find. It might be that if they could have received their letters at the post office for the same charge as they paid for receiving them direct from the ship captains, they would have preferred going to the post office.

But the difference in convenience between the two places of receipt was not worth the difference between one penny and one shilling; and indeed it looked uncommonly as if the government were using this means to tax them elevenpence on every letter they received.

The people, on realizing the condition of things, made a great clamour.[41] Parliament, they declared, could levy no tax on them but with the consent of the assembly; and besides that, their letters were all exempted from the monopoly of the postmaster general because they nearly all, in some way or other, related to trade.

The Virginians were putting an unwarrantably broad interpretation on an exemption, which appears in all post office acts, in favour of letters relating to goods which the letters accompany on the vessel. It has always been the practice to allow shipmasters, carrying a consignment of goods, to deliver the invoice to the consignee with the goods, in order that the transaction might be completed with convenience.

It would not be practicable, however, to confine this exemption to invoices accompanying goods, as this would require a knowledge of the contents of letters, which could not be obtained without an intolerable inquisition. Consequently, it has been customary to allow all letters accompanying consignments of goods to be delivered with the goods, without asking whether they relate to the goods or not. But the scope of the exemption is clearly defined, and has never been allowed to include ordinary business letters, not accompanied by goods.

The Virginians, however, were not content to leave their case to the precarious chances of a legal or constitutional argument. They set about neutralizing the post office act by an effective counter measure. A bill was submitted to the legislature which, while it acknowledged the authority of the post office act, imposed on postmasters giving effect to it certain conditions which it was impossible to fulfil, and attached extravagant penalties for the infraction of those conditions. The postmasters were to be fined £5 for every letter which they demanded from aboard a ship—letters of a character which the British statute exempted from the postmaster general's exclusive privilege.

Now every ship's letter bag would contain probably many letters relating to goods aboard the ship, as well as many which were in no way so related. But how was the postmaster to tell the letters accompanying goods from those which did not? Even if the ship's captain assisted to the best of his ability, which was more than doubtful, there would be many letters about which the postmaster could not be certain, and with a £5 penalty for every mistake, his position was not an enviable one.

Another clause in the bill of the legislature of Virginia contained a schedule of hours for every courier. The terms of the schedule were so exacting that compliance with it was impossible. The penalty attached to every failure to observe the hours set forth, was twenty shillings for each letter delayed.[42] As the governor pointed out, the difficulties of travel during the winter season, owing to the number of great rivers to be passed, would subject the postmasters to the risk of a fine for every letter they accepted for transmission at that period of the year.

The bill of 1718, when sent up for the governor's assent, was promptly vetoed; but on the other hand, the intention of the deputy postmaster general to establish a post office in Virginia was not pressed. It was not until 1732, when the governor had relinquished his office, and had himself been appointed deputy postmaster general, that Virginia was included in the postal system of North America.

Even after that date the post office in Virginia was on a somewhat irregular footing, at least in regard to the conveyance of the mails. In a gazetteer published in 1749,[43] it is stated that while regular trips are made by mail courier from Portsmouth to Philadelphia, southward to Williamsburg the courier's movements were uncertain, as he did not set out until there were sufficient letters posted for the south, to guarantee his wages from the postage on them. There was a post office at this period as far south as Charlestown, but the post carriage for that office was still more uncertain.

With the exception of the Virginian contretemps, the period from 1710 until after the middle of the eighteenth century was one of quiescence. Deputy postmaster general succeeded deputy postmaster general; and the annals of their administrations carry little that is interesting. After the retirement of Hamilton in 1721, a change was made in the relations between the deputy postmaster general and the general post office, by which the post office in London was relieved of all expense in connection with the maintenance of the North American postal system.

Hamilton had a salary of £200 a year. But the profits from the post office did not quite cover that amount, as on his withdrawal, there was due to him £355 arrears of salary. In recommending the claim to the treasury, the postmaster general stated that the post office in America had been put on such a footing that if it produced no profit, it would no longer be a charge on the revenue.[44]

The facilities given to the public were not increased during that period. Indeed, in 1714, they were diminished, as the courier's trips between Boston and Philadelphia, which in 1693 were performed weekly throughout the year, were reduced to fortnightly during the winter months, and they remained at that frequency until 1753.

It is obvious that the post office was not used by the public any more than was absolutely necessary, and that every means was taken to evade the regulations designed to preserve the postmaster general's monopoly. Thomas Hancock, in a letter written in 1740, to Governor Talcott of Connecticut, told him that he saved the colony from forty shillings to three pounds every year, through the interest he had with the captains of the London ships, who delivered the letters to him instead of handing them over to the post office.[45]

The line of undistinguished representatives of the British post office in America came to an end in 1753, when Benjamin Franklin was made deputy postmaster general, jointly with William Hunter of Virginia.

Franklin, besides being a man of eminent practical ability, brought to his task a large experience in post office affairs. He had been postmaster of Philadelphia for fifteen years prior to his appointment to the deputyship; and for some time before had acted as post office controller, his duty being to visit and instruct the postmasters throughout the country.

At the time Franklin and Hunter entered upon their office they found little to encourage them. The couriers who conveyed the mails were much slower than most other travellers on the same roads. It took six weeks to make the trip from Philadelphia to Boston and back, and during the three winter months, the trips were made only once a fortnight.

The new deputies so reorganized the service that the trips were made weekly throughout the year, and they shortened the time by one-half; and many other improvements were made.[46] For a time the expenditure of the post office largely outran the revenue. But the usual rewards of additional facilities to the public followed.

In 1757, when the outlay had reached its highest point, and the public response to the increased facilities was still but feeble, the post office was over £900 in debt to the deputy postmasters general. Three years later this debt was entirely cleared off, and the operations showed a surplus of £278. In 1761 the surplus reached the amount of £494, and this sum was transmitted to the general post office in London.

The receipt of this first remittance was the occasion of much satisfaction to the postmasters general. For a generation the post office in America had been nearly forgotten. Since 1721, it had cost the home office nothing for its maintenance, and for long before that time it had yielded nothing to the treasury, and so it had been allowed to plod along unregarded.

A remittance from this source was quite unexpected, and one can imagine the pleasure with which the entry was made in the treasury book, and the words added "this is the first remittance ever made of its kind."[47] But though the first, it was by no means the last; for until Franklin's dismissal in 1774, a remittance from the American post office was an annual occurrence. Franklin declared that, at the time of his dismissal, the American office yielded a revenue three times that from Ireland.[48]

The success of the post office under Franklin's regime suggests the question, as to the share Franklin had in that success. During the whole course of his administration, he had with him an associate deputy postmaster general, William Hunter, from 1753 until 1761, and John Foxcroft, from 1761 until his connection with the post office ceased.

Little is known of the capacity of either of these officials; of Hunter, practically nothing. Foxcroft was certainly a man of intelligence, but nothing is known to warrant the belief that he possessed unusual qualities. That the routine of post office management was left in the hands of the associates, may be inferred not so much from the multifarious character of Franklin's activities, for he seems to have been equal to any demands made upon him, as from the fact that out of the twenty-one years of his administration, fifteen years were spent in England as the representative of the province of Pennsylvania in its negotiations with the home government.

That Franklin's occupations in England did not absorb all his time is amply proven by his voluminous correspondence which shows him to have been engaged in abstruse speculations in science, and in economic and philosophic studies. But to administer an institution like the post office one must be on the spot, and the Atlantic ocean lay between him and his work from May 1757, until November 1762, and from November 1764, until his dismissal in 1774. Franklin was in America while the measures were taken which put the post office on an efficient footing, and again in 1763, when the treaty of Paris confirmed England in her possession of Canada.

Franklin's contribution to the North American post office consisted mainly, it would seem, in certain important ideas, the application of which turned a half century of failure into an immediate success. It is a commonplace that money spent in increased facilities to the public is sure of a speedy return with interest, and in private enterprises competition keeps this principle in fairly active employment.

This is not the case with an institution like the post office, until, at least, each new application of the principle had been justified by success. A post office is a monopoly, and at certain stages of its history that fact has been its bane. To-day when the demands of social and commercial intercourse make an efficient vehicle for the transmission of correspondence a necessity, the evils inherent in monopolies sink out of sight so far as the post office is concerned.

A peremptory public takes the place of competitors as a motive for alertness. The faults of the institution are freely exposed, and correction insisted upon; and, what is as much to the point, the public contributes of its ingenuity for the improvement of the service. When, towards the end of the eighteenth century, the British public was disgusted with the slowness of its mail carts, and dismayed at the number of robberies, Palmer, a Bath theatre manager, came forward with his scheme for the employment of fast passenger coaches for the conveyance of the mails.

A half century later the public united in a demand for lower postage rates; and Rowland Hill, a schoolmaster, produced a scheme, which for originality and efficacy, has given him a high place among the inventors of the world. To-day the Universal Postal Union affords a medium by means of which the results achieved by every postal administration are brought into a common stock for the benefit of all.

But when Franklin took hold of the North American post office, he had none of these aids to improvement. The measure of the public interest in the post office may be taken from the fact that its total revenue during the first three years of his administration, from 1753 to 1756, was £938 16s. 10d.—but little more than £300 a year.

As for encouragement or stimulus from the outside, there was none. The only connection the American post office had was with the home office; and it is doubtful whether, even if it had been disposed, the British post office could have lent any helpful advice in those days.

The British post office was at that time passing through one of its unprogressive periods. It had come to know by long years of observation what was the volume of correspondence which would be offered for exchange, and it provided the means of transmission, taking care that these should not cost more than the receipts.

Franklin's merit lay in his rising above an indolent reliance on his monopoly, and in his generous outlay for additional facilities, by means of which he not only drew to the post office a large amount of business, which was falling into other hands, but called into existence another class of correspondence altogether.

It is tolerably certain that had Franklin's work lay in England instead of America, he would have anticipated Palmer's suggestion that the stage coaches be used for the conveyance of the mails, instead of the wretched mail carts which came to be regarded as the natural prey of the highwayman.

At the beginning of 1764 the post riders between New York and Philadelphia made three trips a week each way; and at such a rate of speed that a letter could be sent from one place to the other and the answer received the day following.[49] In reporting this achievement to the general post office, Franklin states that the mails travel by night as well as by day, which had never been done before in America.

Franklin planned to have trips of equal speed made between New York and Boston in the spring of 1764, and the time for letter and reply between the two places reduced from a fortnight to four days. When his arrangements were completed a letter and its reply might pass between Boston and Philadelphia in six days, instead of three weeks.

As a result of these arrangements Franklin anticipated that there would be a large increase in the number of letters passing between Boston and Philadelphia and Great Britain by the packets from New York. That the fruits of his outlay answered his expectations is clear from the fact that the revenues, which up to the year 1756 had scarcely exceeded £300 a year, mounted up to £1100[50] in 1757, and that became the normal revenue for some time after.

It was during this period that the British government began to employ packet boats for the conveyance of the mails to the American colonies. Until this time there had been no regular arrangements for the conveyance of the mails between Great Britain and the colonies. There were no vessels under specific engagement to leave either Great Britain or America at any fixed time.

This is not, of course, to say that there were no means of exchanging correspondence between England and America, or even that the post office had no control over the vessels by which letters were carried. Vessels were continually passing between Falmouth or Bristol and New York or Boston in the course of trade; and these were employed for the conveyance of mails. Sometimes the letters were made up in sealed bags by the post office before being handed to the shipmasters; and sometimes they were handed loose to the captains, or picked up from the coffee houses.

The captains were under heavy penalties to hand over to the post office all letters in their possession, when they reached their port of destination, and they were entitled to one penny for each letter so delivered to the local postmasters. By this arrangement, the cost of carrying the letters across the Atlantic fell in no degree upon the post office. Indeed, after the act of 1710, the post office made a very good bargain of the business. The postmasters paid the shipmasters a penny a letter, and the act of 1710 authorized them to collect a shilling for each letter delivered to the public.

A service so irregular had its disadvantages, however. Captains were of all degrees of trustworthiness. Some could be depended upon to deliver the letters at the post office as the law directed; others were careless or unfaithful. These either did not deposit their letters with the postmasters promptly as they should have done, or they had private understandings with friends by which the letters did not go into the post office at all, but were delivered by the captains directly to the persons to whom they were directed.

In 1755 the board of trade called attention to the great "delays, miscarriages and other accidents which have always attended the correspondence between this kingdom and His Majesty's colonies in America, from the very precarious and uncertain method in which it has been usually carried on by merchant ships." The remedy sought was a line of sailing vessels devoted entirely to the conveyance of correspondence. Services of this class were not uncommon, although they were usually confined to a time of war. During the war of Spanish Succession, packet ships ran regularly to Holland and to France.

It was during this war when French and Spanish privateers held the southern seas, that the first line of mail packets was established, which ran to North America. In 1705, the British government contracted for five vessels of one hundred and forty tons each, to carry the mails to and from the West Indies.[51] Each vessel was to carry twenty-six men and ten guns. The contractor was paid £12,500 a year.

A curious feature of the contract was that the contractor was required to enter into a warranty that the receipts from the vessels for mails and passengers would not be less than £8000. If they did not come up to this amount, the contractor had to make up the shortage, up to the sum of £4500 a year. The contract was for three years certain, with an additional two years if the war should last so long.

The postal business of the West Indies was comparatively large at the beginning of the eighteenth century. The receipts for the two years ending January 1706—£10,112[52]—make the American continental business, even under Franklin's capable management, very small by comparison. In 1760 the receipts from the colonial post office of North America were only £1100. This packet service to the West Indies was maintained until the peace of Utrecht in 1713.

During the same period, repeated efforts were made by English merchants, to have a packet service to the North American colonies. In 1704 a petition was presented to the government for a mail service between England and New York.[53] The petitioners asked that the vessels be employed for letters only, in order that by their greater speed they might outrun the merchant vessels on their homeward trips and by giving timely notice, make it possible to send out cruisers to meet the merchant vessels and escort them home in safety. They observed that, in the year before, eighteen of the Virginia fleet were captured because they had set out later than was expected.

The treasury were unimpressionable. They read the memorial, and after adding to it the curt query "Whether the merchants intend to be at the charge," they dismissed it from further consideration. In 1707, the question was again brought to the attention of the treasury, and they asked Blathwayt, a commissioner of trade, to give them a report upon it.

Blathwayt was hearty in support of the proposition.[54] He declared that "Her Majesty's plantations in America are at present the chief support of the kingdom without impairing their own proper strength and yet capable of very great improvements by their trade and other means." He pressed for the establishment of a service with trips six or eight times a year. In view of the war, however, Blathwayt considered it inadvisable to fix upon a certain rendezvous on either side of the Atlantic, as this would enhance the opportunities for interception by the enemy.

The treasury were willing to have one or two experimental trips made to ascertain what revenue might be expected from the service, if these could be secured without expense; and they accepted a proposition, made about this time, by Sir Jeffry Jeffrys, who was preparing to make two trips to New York.[55] Jeffrys asked that his vessel might be commissioned as a packet boat, and that he might be allowed to retain the postage on all the correspondence which he carried between England and America. There is no record of the result, but from what is known of the postal business in America, it cannot be supposed that it would be of a magnitude to encourage the establishment of a packet service.

Other offers were made to the government, but they were not seriously considered until the outbreak of the war in America between England and France in 1744. Orders were at once given for the restoration of the packet service to the West Indies; and in 1745 armed packets again carried the mails on this route.[56] The service was very expensive; for though the revenue reached the respectable figure of £3921 in the first year, this amount was far from covering the outlay; and as soon as the treaty of Aix-la-Chapelle was signed in 1749, the packets were discontinued.

The peace, which followed the treaty of Aix-la-Chapelle, was of short duration. So far as America was concerned, the treaty did little more than to impose upon the combatants a momentary suspension of arms. It did nothing to remove the causes of war, and while these remained a permanent peace was impossible.

The grounds of dispute were almost entirely territorial. The French claimed the whole vast stretch of country to the west of the Alleghanies, and set up a line of forts along the valley of the Alleghany and Ohio rivers. The English disregarded these claims, and their traders pushed over the mountains into the disputed territory. The French displayed so much energy in dispossessing the encroaching English, that the border country was kept in a state of alarm, and the governors of the English colonies appealed to have a regular means of communication established between the mother country and the colonies, so that help might be obtained if required.

The representations of governors Shirley of Massachusetts, Delancey of New York, and Dinwiddie of Virginia, were vigorously supported by governor Lawrence of Nova Scotia.[57]

The situation of Nova Scotia was one of peculiar danger. The province was hemmed in between Cape Breton, with its powerful fortress at Louisburg, on the one side, and Canada on the other. The control which the French exercised over the valley of the St. John, and over the isthmus of Baie Verte, gave them a safe and easy passage from Canada to Cape Breton, by way of the St. John river, the bay of Fundy, the isthmus of Baie Verte, and the straits of Northumberland. The Acadians who were scattered over Nova Scotia were naturally in hearty sympathy with their own people in Cape Breton; and in order to send supplies of cattle to the fortress, they made a small settlement at Tatamagouche, on the straits of Northumberland, which served as an entrepôt.[58]

The first result of the appeal of the governors was the establishment of a post office at Halifax, in the spring of 1755,[59] and the opening up of communication with New England by the vessels which plied to and from Boston. It required a ruder prompting before the government could be induced to spend the money necessary for a packet service, and this was not long in coming.

In the early spring of 1755, General Braddock, with two regiments, was sent to America to oppose the large claims made by the French. In concert with the governors of Massachusetts and Virginia, a plan of attack was arranged which involved movements against four different points as widely separated as fort Duquesne on the Ohio river, and Beausejour on the bay of Fundy.

Braddock undertook the expedition against fort Duquesne, which if successful would break down the barrier which was confining the English colonies to the Atlantic seaboard, and relieve the more westerly settlements of Virginia and Pennsylvania from the harassing attacks which were making life on the frontiers unendurable. The execution of his part of the campaign was beset by difficulties, arising partly from the mountainous and woody character of the country through which he had to pass, and partly from his ignorance of the methods of forest warfare, in which his enemies excelled.

Whatever could be accomplished by dogged energy was done successfully. Braddock managed to get his army within sight of his destination. But here his good fortune left him. While still in the thick woods he was attacked by the French and their Indian allies. Employing methods to which Braddock was a stranger, methods which would have seemed to him to be unworthy of soldiers, the French and their allies managed to keep themselves in perfect cover, while the British army stood exposed, the easiest of marks.

There could be but one outcome. The British were overwhelmed and Braddock slain; and the only result of the campaign was to redouble the fury of the enemy against the unfortunate border settlements.

The disaster and its consequences were brought home to the government with a directness that put an end to all hesitation about establishing the closest possible communication between the mother country and the colonies. On the 18th of September, the board of trade, which administered the affairs of the colonies, approached the treasury on the subject. After emphasizing the inconveniences of the existing arrangements, the board insisted that it was of the highest importance that the king should have "early and frequent intelligence of what is in agitation" in the colonies, and recommended that packet boats be established to New York.[60]

The treasury approved, and directed the postmasters general to arrange for regular monthly trips to New York, and to restore the West Indian service, which was discontinued in 1749. Four vessels of 150 tons each were provided for the latter route.[61] They were to carry twenty-six men each, and be fully armed for war.

For the New York route, larger vessels were thought necessary, owing to the roughness of the winter seas; the vessels placed on this line were each of 200 tons, and carried thirty men. The carrying of any merchandise was forbidden, so that the vessels were devoted entirely to the service of the post office.

In the elaborate instructions which the commanders received, they were directed, when they had a mail for a place at which a postmaster had not been appointed, to open the bags themselves, and deliver the letters for that place to a magistrate or other careful man, who would undertake to have the letters handed to the persons to whom they were addressed. In case the vessel was attacked, and could not avoid being taken, the commander must, before striking, throw the mails overboard, with such a weight attached as would immediately sink them, and so prevent them from falling into the enemy's hands.

The new service was a most expensive one, and when peace was concluded in 1762, the question of continuing it came up for immediate consideration. During the seven years of its course, the New York service cost £62,603; while the produce in postage was only £12,458. The service was popular, however; and the revenue had been increasing latterly, and an effort was made to reduce the cost.[62] In this the postmasters general were successful, and as the treasury saw reasons for indulging the hope that before long the service would be self-sustaining, they sanctioned the amended terms.

So far as the district in the neighbourhood of New York was concerned, the service was very satisfactory. But the people in the more remote southern colonies had ground for complaint in the length of time it took for their letters to reach them after arriving at New York.

No time was lost in despatching the couriers to the south; but, at the best, between bad roads and no roads at all, there were great delays in delivering the mails to Charlestown. In the fall of 1763, a proposition was made to extend the West Indies service to the mainland, and to require the mail packet to visit Pensacola, fort St. Augustine and Charlestown, before returning to Falmouth.

The extended scheme, which was accepted in 1764, involved an entire reorganization of the postal service of the southern colonies. The colonies to the south of Virginia were separated from the colonies to the north and, with the Bahama Islands, were erected into a distinct postal division, with headquarters at Charlestown.[63]

A sufficient number of vessels were added to make a regular monthly service,[64] but in spite of this, the arrangements did not give satisfaction. The route was too long to make it possible to deliver the mails at Charlestown within a reasonable time. The postmasters general reported that letters for those parts often lay forty or fifty days in London before starting on their way.

It was then resolved to break up the connection between the mainland and the West Indies, and have a separate monthly service between Falmouth and Charlestown. To secure the greatest measure of advantage from this service a courier was sent off with the mails for Savannah and St. Augustine as soon as they arrived at Charlestown from England.[65]

There were thus, from 1764, three lines of sailing packets running between England and the North American colonies—one to New York, another to Charlestown, and a third to the West Indies. There was but one defect in these arrangements. They did not provide connections between the several systems except through the mother country.

A letter sent from New York to Charlestown or to the West Indies had to travel across to London and back again by the first outward packet to its destination. To connect the two systems on the mainland, a courier travelled from Charlestown northward to Suffolk, Virginia, where he met with the courier from New York.

In dealing with the means for establishing communication between the mainland and the West Indies, the treasury were called upon to consider a petition from the merchants who traded to Florida. The termination of the war was followed by the withdrawal of the troops which were stationed at Pensacola, the principal trading settlement in Florida, and the merchants feared the savages would plunder their goods, if succour could not be easily obtained from the sister provinces.

The first step taken to meet the difficulty was to run a small forty-five ton vessel from Jamaica to Pensacola and on to Charlestown. This was satisfactory as far as it went, but as it took eighty-three days to cover this route and return to Jamaica, this service had to be doubled before the people concerned were content.

FOOTNOTES:

[37] Statutes of the United Kingdom, 9 Anne, c. 10.

[38] New York did not become the headquarters of the postal system until the reconstruction of 1773.

[39] The postal rates as fixed by the act of Queen Anne were as follows: London to Jamaica, Barbadoes, 1s. 6d.; to New York, 1s. New York, to West Indies, 4d.; to New London or Philadelphia, 9d.; to Boston or Portsmouth, 1s.; to Williamsburg, Va., or Piscataway, 1s. 3d.; to Charlestown, 1s. 6d.; to within 60 miles, 4d.; to within 100 miles, 6d. These charges were for single letters.

[40] G.P.O., Treasury, II. 253.

[41] Governor Spottswood to the board of trade, June 24, 1718 (Va. Hist. Coll., new series, II. 280)

[42] Journal of the House of Burgesses, May 1718, passim.

[43] Douglas' Historical and Political Summary.

[44] G.P.O., Treasury, VI. 206-207.

[45] Talcott Papers, vol. 5.

[46] "The Ledger-Book of Benjamin Franklin," in the Boston Public Library.

[47] G.P.O., Treasury Letter-Book, 1760-1761, p. 96.

[48] Works of Benjamin Franklin (Federal ed.), I. 256.

[49] Franklin to Todd, January 16, 1764, Smyth, Life and Writings of Benjamin Franklin, XII. 292.

[50] G.P.O., General Accounts, 1761-1770.

[51] G.P.O., Treasury, III. 236.

[52] G.P.O., Treasury volume.

[53] Cal. Treasury Papers, 1702-1707, p. 267.

[54] Treasury Papers, CII. 120.

[55] G.P.O., Treasury, III. 127.

[56] Cal. Treasury Books and Papers, 1742-1745, p. 707.

[57] C. O. 5.

[58] C. O. 5, vol. 15.

[59] Boston Evening Post, April 28, 1755. (This note was furnished by Mr. C. W. Ernst of Boston.)

[60] C. O. 5, Bundle 7.

[61] G.P.O., Treasury, VII. 248-249.

[62] G.P.O., Treasury, vol. 8.

[63] The first deputy postmaster general for the southern division was Benjamin Barons, who was appointed December 19, 1764 (G.P.O., Orders of the Board, II. 126). He resigned on August 26, 1766, and was succeeded by Peter Delancy, who was killed in a duel with Dr. John Hale, in August 1771. His successor was George Roupell, who held office until displaced by the Revolution (G.P.O., Orders of the Board, 1737-1770, II. 211b).

[64] G.P.O., Instructions, pp. 16-21.

[65] G.P.O., Treasury, June 6, 1768.