All these services were for the conveyance of the Court and Administrative correspondence only. The _Botenmeister_ nevertheless frequently undertook the conveyance of private letters, for which special charges were made, and often the messengers themselves clandestinely carried private letters.
In 1618 the _Botenmeister_ of Berlin established a special messenger route for the conveyance of private letters (_Ordinari-Boten-Cours_) from Berlin to Leipzig and Hamburg, and at about the same time the _Botenmeister_ of Konigsberg established a similar route to Danzig. In other large towns messenger services for the conveyance of ordinary letters were established by private individuals, but these services were often inefficiently conducted. The messengers followed no fixed route, and the services were irregular and unsafe. They were at best only makeshifts.
As the result of a variety of circ.u.mstances, the establishment of regular posts became a necessity in the time of the Great Elector. The extension of the Brandenburg territory, and the political developments, rendered it desirable to adopt all possible means for binding together the entire territory. Regular posts would also contribute to the national welfare and a.s.sist industry and commerce, although there was little prospect that at the outset they would prove profitable.[224] In 1646 a riding post between Konigsberg and Danzig was established; shortly afterwards a post between Berlin and Konigsberg, and thereafter others. In 1649 the control of all the posts was definitely a.s.sumed by the Electoral administration.[225]
In general the posts went twice weekly; stages were erected for the exchange of horses and postilions. At first, postilions were changed every twelve (German) miles,[226] and horses every four (German) miles.
Later, the stages for the changing of horses were reduced to three miles. The usual speed of the posts, travelling day and night, was one mile an hour, and punctuality was insisted on.[227] The journey from Berlin to Konigsberg occupied four days, and that from Konigsberg to Cleve ten days.[228] There was at first no delivery service, and all letters must be obtained at the post office, where the people were consequently in the habit of congregating to await the arrival of the post.[229] The postage was retained by the Postmaster as the remuneration for his services. For the actual management and conduct of the service he drew on the State funds to the extent of some 6,000 thalers annually, and all official despatches were consequently conveyed free. This charge diminished, however, with the years, and in course of time the service came to yield a profit to the State. In the Postmaster"s patent granted in 1661 it was provided that a portion of the proceeds of postage should be accounted for to the State treasury.[230]
The rates of postage were at first fixed according to ancient custom, but they were on several occasions reduced. The postage on a letter not exceeding half an ounce in weight sent from Berlin to Wutzkow, from Breslau to Wutzkow, or from Berlin to Frankfort, was 2 groschen, and from Berlin to Magdeburg, 1-1/2 groschen.[231]
With the growth of commerce and the establishment of the travelling post and parcel post, the service became more and more successful financially. In 1695 the expenses represented some 50 per cent. of the gross revenue. By 1712 they had fallen to some 41 per cent. The gross revenue was at the same time rapidly increasing. The net revenue, which was, of course, increasing still more rapidly, was in 1695 about 62,000 thalers, and by 1712 had risen to some 137,000 thalers.
The rates of postage were modified in 1699, and again in 1712; but as the old rates were retained as the basis of both revisions, the charges remained for fifty years substantially unchanged. A letter from Berlin to Hamburg now cost 2-1/2 groschen, to Bremen 3 groschen, to Dresden 2 groschen, to Frankfort-on-Main 3 groschen, and so on.
During the next fifty years prices were gradually, but steadily, rising in Prussia. The Seven Years" War produced a sudden and very considerable rise in the prices of all agricultural products. And not only did the purchasing power of money fall owing to the scarcity and high price of provisions, but its value also decreased through depreciation.[232] The cost of conducting the postal service rose correspondingly, and the financial difficulties were increased owing to the falling off of traffic consequent on the war. At the end of 1761 the King was asked to agree to a contribution in aid, but a.s.sistance was not forthcoming.
Something had to be done; and on the 27th January 1762, in common with the general increase of taxation, the rates for parcels and for value letters were increased 100 per cent.; the travelling post rates, which varied from 3 to 4 groschen per mile, were increased by 1 groschen per mile; and the fees for guides, which were about 6 groschen per station, by about 2 groschen per station. The letter rate remained unchanged.[233]
In the early part of 1766 a new tariff was introduced. The rates for parcels fixed in 1762 were maintained, and new and higher rates for letters were introduced. The increase in the general rates varied from about 15 per cent. to about 50 per cent. The minimum, which for letters pa.s.sing between many neighbouring places had formerly been only 6 pfennigs, was increased to 1 groschen.
The raising of the rate led to a large amount of fraud, and caused much public inconvenience. The revenue did, indeed, increase in the first year quite appreciably; but in the second and third years, instead of the normal yearly increase, there was a notable decrease. Complaints against the new rates were widespread, and it was alleged that the increased charges embarra.s.sed commerce. In 1770 the rates for heavy letters, printed matter, and doc.u.ments were reduced again to those of 1712. The rates had previously been based on a variety of considerations,[234] but this miscellaneous basis was now put aside and a uniform system established, the same letter rate being applied throughout the State.
The coinage edict of 1821, by which the thaler was divided into 30 silver groschen instead of 24 groschen as previously, made necessary an alteration of the postage charges, and amended rates were established on the 1st January 1822. No account was taken of a less amount than a half-groschen, and odd amounts were reckoned at the next half-groschen above, with the result that in certain cases the rate became higher than formerly.
A reduction of the rates of postage was in contemplation, but while the discussions on the proposals were in progress, the State finances became somewhat straitened. It became necessary to look about for fresh revenue, and a Commission appointed to consider the question recommended that more revenue should be obtained from the Post Office.
The Postmaster-General pledged himself to bring up the surplus from 700,000 or 800,000 thalers, where it then stood, to a million, and, if possible, to 1,200,000 thalers. Accordingly, in 1824 the rates of postage were revised, and, in general, increased. In many cases the increase was as much as 20 per cent., and the tariff as a whole was the highest ever fixed in Prussia. The chief characteristics of this important change were that letter and parcel rates were reckoned according to the direct distance (_Luftlinie_) between the post offices, and not according to the distance by way of the post routes, or the time occupied on the journey, or any of the other considerations which had previously entered into the reckoning. All special rates for individual routes and places were abolished.
The new rates were, for a single letter not exceeding 3/4 loth (3/8 ounce) in weight--
Up to 2 miles 1 silver groschen From 2 miles to 4 miles 1-1/2 "
" 4 " 7 " 2 "
" 7 " 10 " 2-1/2 "
" 10 " 15 " 3 "
" 15 " 20 " 4 "
" 20 " 30 " 5 "
and for each 10 miles further, 1 silver groschen more.
A map of distances was prepared, and every post office was furnished with a table compiled from this map, showing the distances between that office and all other post offices in Prussia, together with the corresponding rates of postage.[235] Formerly, direct rates of postage existed only between a limited number of post offices, and letters for any other places were charged an additional rate (_Binnenporto_) in respect of the distance not covered by the ordinary rate. This charge was now abolished. Each post office could calculate the rate to any other post office by means of its table of rates. There was, however, an additional charge (_Landporto_) in the case of places at which there was no post office, but which were situated on the post routes. It was arranged that letters might be despatched to or from such places so long as the post-messenger was not thereby delayed on his journey, and for the forwarding of any such letters to or from the nearest post office the lowest rate of postage was charged, reckoned as from the nearest post office. Letters up to 1 ounce in weight were sent by riding post.
Letters exceeding 1 ounce in weight were sent by parcel post (_Fahrpost_), and were charged the corresponding rate, unless the sender expressly requested transmission by riding post.
For the longer distances the rates were higher than previously. The rate for the greatest distance within the Prussian postal territory, which under the old rates was 18 silver groschen for a single letter--that is, for a letter up to 3/8 ounce in weight--was now 19 silver groschen. The reduction was greatest for letters going only short distances. The rate for the shortest distances was reduced from 1-1/2 silver groschen to 1 silver groschen. But the higher rates applied to letters pa.s.sing between the great centres, and these formed the greater part of the whole number. In addition, the progression of the scale of weights was made very rapid. From the earliest days of the Post Office in Prussia the progression of weight had been by the half-ounce, and this had not been changed even in 1766. The scale was now made--
From 3/8 oz. to 1/2 oz. 1-1/2 times the rate " 1/2 " 3/4 " twice the rate " 3/4 " 1 " 2-1/2 times the rate " 1 " 1-1/4 " 3 "
" 1-1/4 " 1-1/2 " 3-1/2 "
" 1-1/2 " 1-3/4 " 4 "
and so on for each quarter-ounce a half rate more.[236]
The year 1824 was also noteworthy for the experimental establishment in the district of the Frankfort-on-Oder post office of a rural delivery system. This was the first step towards the general extension of the rural delivery throughout Prussia. The experiment was successful, and the system was extended in the following year. For delivery by the rural letter-carriers an additional charge was made for each letter, according to the following scale:--
For distances not exceeding 1-1/2 miles 1 silver groschen " " " 2 " 2 "
" " " 3 " 2-1/2 "
For the longer distances the rates of 1824 were found to be oppressive for ordinary letters, and burdensome to commerce and literature.
Financially also the increase was not a success. For 1824, the last year of the old rates, the surplus was 823,229 thalers, an increase of 100,325 thalers over the surplus of 1823. The surplus for 1825, the first year of the new rates, was 1,121,616 thalers, an increase of 298,387 thalers over the surplus of 1824. Apparently, therefore, the new rates had produced an immediate increase of net revenue. This was, however, not the case. While the actual proceeds of postage in 1824 were 73,152 thalers greater than in 1823, the proceeds of postage in 1825 were only 80,890 thalers greater than in 1824.[237] The increased yield of postage was therefore quite small. And even this small increase disappeared in 1826. For that year the yield of postage was only 40,547 thalers greater than in 1825, and in 1827 there was an actual falling off of 41,942 thalers. The increase of net revenue was therefore attributable to other causes. Thus, for example, in 1825, by some means or other, a reduction of no less than 136,160 thalers was effected in the expenses of the service.
The rates were soon found to need amendment. Changes were made in the subsidiary rates, the rates for commercial papers, for magazines, etc., but the letter rate remained unchanged until 1844, when a considerable reduction was made. The following rates for a single letter (not exceeding 3/8 ounce in weight), were established:--
Not exceeding 5 miles 1 silver groschen From 5 miles to 10 miles 1-1/2 "
" 10 " 15 " 2 "
" 15 " 20 " 2-1/2 "
" 20 " 30 " 3 "
" 30 " 50 " 4 "
" 50 " 100 " 5 "
For each further 100 miles within the Prussian administration 6 "
These rates were applied to letters, printed matter sent under band, and letters containing samples of merchandise. It was estimated that this change would reduce the gross receipts from postage by 700,000 thalers, and the net revenue for 1845 was estimated at 700,000 thalers instead of 1,400,000 thalers. The actual decrease in 1845 in the gross receipts from postage was, however, only 302,563 thalers, and the actual falling off in net revenue only 346,208 thalers. The gross revenue soon recovered, and in 1847 exceeded that of 1844.[238]
The Prussian administration, while not prepared to introduce complete uniformity of rate irrespective of distance, were yet desirous of simplifying the rates, and of removing from them any trace of the fiscal tradition, so far as this course could be followed without involving serious sacrifice of net revenue.[239]
In September 1848 the distinction between the letter rate and the rate for printed matter and doc.u.ments was abolished, and on the 1st October 1848 the following scale of weights for all letters, publications, etc., was introduced, viz.:--
Not exceeding 3/8 oz. 1 rate (i.e. 1 sgr.) From 3/8 oz. to 1/2 oz. 1-1/2 "
" 1/2 " 3/4 " 2 rates " 3/4 " 1 " 2-1/2 "
" 1 " 4 " 3 "
" 4 " 8 " 4 "
and over 8 ounces 4 rates, until the charge was less than double parcel rate.
The rates were still based on the old theory of distance. The Prussian administration feared that a complete reform of the rates on the English model would have a disastrous effect on the postal revenue, and so upset the equilibrium of the State finance. They had, of course, the experience of England to guide them, and they had not failed to note the large reduction of net revenue which the adoption of the reform of 1840 had entailed. In the following year, however, a great step was taken in the direction of the new system. By the law of the 21st December 1849 the following simplified rates of postage, to take effect from the 1st January 1850, were established:--
For a single letter not exceeding 1/2 oz. (1 zollloth)-- Up to 10 miles 1 silver groschen 10 miles to 20 miles 2 "
All other distances 3 "
For a letter weighing-- From 1/2 oz. to 1 oz. 2 rates " 1 " 1-1/2 " 3 "
" 1-1/2 " 2 " 4 "
" 2 " 4 " 5 "
" 4 " 8 " 6 "
and so on, until the rate became less than the parcel rate (1 zollloth = 1-1/8 loth).
The reductions in Prussia were in all cases made with careful regard to the possible financial results. The desire to remove all trace of the fiscal tradition did not extend to a desire to relieve the Post Office of its revenue-producing function, and the actual loss of net revenue which resulted in Prussia from the introduction of cheap postage was much less than the loss in England.[240] The set-back to the revenue consequent on the reduction of 1844 was recovered in 1847; the set-back consequent on the reduction of the rates of value letters and parcels in 1848 (on the average some 66-2/3 per cent.) was recovered in 1852; and that occasioned by the reform of the 1st January 1850 was recovered in 1853. But the reform of 1850, which retained the three distance charges, was far from being a complete reform of the character of that in England.
No change of importance was made in the ordinary letter rate between 1850 and 1860. In the latter year the maximum weight for packets pa.s.sing by letter post was fixed at half a pound (15 loth).[241] A further step towards simplicity and reduction of the letter rate was taken in 1861,[242] when the weight scale was revised and the three steps established in 1849 abolished, two only being subst.i.tuted. Letters up to half an ounce in weight were to pa.s.s at the single rate, and letters exceeding that weight at double rate. The three distance zones were maintained.
The special fee for delivery which was collected from the addressee by the post office of destination was still in force. It was, of course, in effect, an increase of the normal rate of postage, and as such it lay as a heavy burden on the letter traffic. In the case of packets of printed matter not exceeding half an ounce in weight it amounted to 100 per cent. on the normal rate. It was, moreover, disproportionate to the cost of the service of delivery.[243] Since 1850 the Prussian administration had incessantly urged the abolition of the charge. Special charges for delivery had already been abolished in England, in France, and in other of the larger States. The efforts of the administration were, however, frustrated by the Minister for Finance, who was unable, from regard to the needs of the national exchequer, to abandon the revenue obtained from this source. These financial considerations delayed the abolition of the charge by at least a decade.[244] The existence of the charge was found to be especially unfortunate in regard to foreign letters, since its collection was regarded by foreign administrations as an addition to the ordinary postage and consequently an evasion of the terms of agreements under which foreign rates had been fixed. The charge was ultimately abolished in 1862.[245] In order to avoid inconvenient reduction of revenue, it was arranged that the abolition should be effected gradually: for certain cla.s.ses of traffic as from the date of the coming into force of the Act, for other cla.s.ses as from the 1st July 1863, and for the remainder as from the 1st July 1864.
The political events of the years 1864 and 1866 occasioned far-reaching modifications of the postal service in Germany. After the expulsion of Austria from the German league, Prussia took over the administration of the postal service in the duchies of the Elbe. Prussia had also absorbed the kingdom of Hanover. The territory of the Prussian postal administration was thus largely extended; and in addition the Prince of Thurn and Taxis relinquished in favour of the Crown of Prussia the control which he had exercised over the postal service in eighteen States.[246]