From the early part of the 17th century through until 1840 when Rowland Hill’s new reforms turned the postal world on its head with cheap Universal Penny Postage, the Post Office had been blighted by a constant battle against people that strove to find ways and means by which they could send their mail “free of charge”.
As we heard in today’s episode of The Peoples Post, the root of the problem lay in the fact that in 1652, Members of Parliament granted themselves the right to send and receive their letters free.
The abuse of this privilege grew at such an enormous pace it was soon totally out of control. By the early 1830’s it was estimated to cost the Post Office over £36,000 per annum but 30 years later the Surveyor’s report shows the annual cost of the frank to have risen to £140,000 per annum.
Many Acts of Parliament and proclamations were issued over the years to try and stem the abuse of the franking system but no sooner that one loophole was blocked, a way would be found around it. There were 4 main weaknesses:-
1) The need of an M.P.’s signature on the front of free letters, encouraged unscrupulous people to forge the signature if a genuine one was unobtainable.
This situation was allowed to continue until 1764 when the first Act of Parliament was issued to penalise those who carried out this offence. From now on, those found guilty were transported for a term of 7 years.
One such case is well documented in the BPMA Archives when in 1818, the Rev. Laurence Halloran D.D. was found guilty of forging the signature of William Garrow M.P. and was duly sentenced to 7 years transportation. William Garrow of course is the principal character in BBC 1’s current T.V. programme Garrow’s Law which features this brilliant Lawyer, Judge and M.P. of the 18th/19th century.
Whilst awaiting transportation in Newgate prison, Halloran wrote a book of poems claiming his innocence and in which he published memorials that he claimed were received from many illustrious persons who supported him in his distress.
Mr. Parkin, the Post Office Solicitor’s case papers are held in the Royal Mail Archive and make fascinating reading. They include copies taken from several dies that Halloran had forged of ordination certificates including his own. Halloran was obviously a clever and well-educated man but also a man that was capable of forging a signature to avoid the postage on a letter.
2) M.P.’s sold on their privilege to Companies that paid them handsomely for their postage rights.
They also handed out huge quantities of franked (signed) letter sheets to family and friends or to anyone from whom they needed a favour such as a vote. Instances are recorded where servant’s wages had been part-paid in franked letter-sheets, which when the recipient was unable to write, would be sold-on in the local tavern. It is known that some of these finished up in the hands of criminals and were converted into I.O.U.’s.
3) In 1712 Newspapers were taxed and later were allowed to travel free in the post, providing they bore the newspaper tax stamp.
This was a massive burden to the Post Office – newspapers were bulky and heavy and by the late 1830’s it was estimated that some 70% by weight of all mail was going “free”.
For many ordinary folk (maybe illiterate), just to receive a newspaper in a familiar hand was comforting and sufficient. It told them that loved ones were alive and thinking of them. Others (those that could read), would perhaps require a bit more news and might be disposed to conceal their letter within the newsprint. This was generally done by “ringing the letters” in pencil or “pricking out the letters” with a pin. The recipient, by writing down the letters as they appeared in sequence in the newsprint, could easily decipher the message. To write a letter within a newspaper was an unforgivable crime subject to the most severe penalty, but did a series of pin-pricks made in a newspaper, constitute writing a letter? A tricky job for the legal profession.4). As with a newspaper, receipt of a letter was welcomed whether it could be afforded or not.
Some families that were parted had simple pre-arranged codes that they would build into the address panels of their letters. Perhaps a “doubled-crossed” tee would mean that all the family were well; perhaps an “under-lined” word or an extra name slipped into the address would impart some meaningful piece of news to the person reading the address panel. Having gleaned those little scraps of news about their loved ones, the recipient would simply hand back the letter to the carrier saying “Sorry, but I can’t afford it” and the long process of another “dead-letter” would begin. Dead-letters were both cumbersome and expensive to the Post Office.
- Mike Bament, Postal Historian