1880.
GENERAL POST OFFICE,
HONGKONG, April 12th, 1881.
SIR,-I have the honour to report on the British Postal service in Hongkong and China during
2. The main feature of interest has been the steady extension of the Postal Union, until it may now be said that only two groups of countries of considerable importance are not included in it. These are the Australasian and South African Colonies. With regard to the former, a Postal conference was to assemble at Melbourne in November last to discuss the Union and other questions. It is much to be hoped the result may be the entrance of these important Colonies into the Postal system which now embraces almost all the rest of the world.
3. In the case of the Australasian group, local circumstances have enabled the Government of this Colony to reduce our outward postage, by the principal route, to the Union tariff, thus effecting one more considerable step towards uniformity. It is curious to observe, however, that the more simplicity is attained, and the easier Postal arrangements become, by far more mistakes are made, not only by the public, but also by the Departmental Staff. When each country in Europe was treated on a special and different Postal tariff, some with a half ounce unit, some with a quarter ounce, people were forced to acquaint themselves with the various rates of Postage, and knew more about them than they do now. When newspaper postage from England was twopence by one mail and a penny by the other, newspapers were prepaid with fair correctness and regularity. Now that the postage is three-halfpence by either route, the very simplicity of the arrangement seems to carry it beyond the comprehension of the average poster of newspapers, for the sacksful of short paid papers which arrive (and the new Tariff is now a year old) attest that it is as far from being generally understood as ever. Even when the three-halfpenny postage has been mastered, the senders appear to have no idea that three-halfpence will only pay for four ounces, but post papers weighing twelve and fourteen with apparently every confidence as to their free delivery.
4. These short paid papers have proved a serious impediment to the rapid sorting and delivery of mails. About this time last year the English public was just beginning to discover the French mail to be the cheaper opportunity of the two, and though this is no longer the case, the consequent augmentation of the mail will probably continue for years. The time required to sort the French mail, which had once been (under exceptionally favourable circumstances) as little as half an hour, crept up to an hour and a half. Then the short paid papers began to arrive, and the hour and a half threatened to become two hours. Even when the mail was sorted, its delivery was much retarded. Everybody had to pay two cents at least, and nobody had two cents ready. The difficulty has been met by leaving the short paid papers to stand over till there is time to deal with them, and if the consequent delay in their delivery induces more care in prepayment, the object of this Office will have been attained.
5. The sale of Post cards has exceeded all expectations. They were introduced because it was obligatory to issue them, but it was not expected that more than a few dozen would be sold. Some difficulty was experienced in keeping pace with the demand. At least two-thirds of those purchased, however, have gone to gratify the mania for Stamp-collecting, which seems to increase with the obstacles surrounding it. It is difficult to make votaries of the great science of Philately understand that Post Offices exist for any other purposes than to supply them with every conceivable variety and shade of postage stamp. The object of a Postal Administration, on the other hand, naturally is to get rid of all odds and ends, temporary or obsolete issues, and such like, as quickly as possible.
6. After twenty years of existence as a Colonial Post Office, this Department has at last succeeded in eliminating pence from its dealings with the public. As late as last year the charges on all unpaid correspondence were made in pence, the accounts were kept in Sterling, and the Postage Stamps in use represented sixpences, shillings, &c. We have now got something like a decimal series, adapted to the Colonial currency. It may be possible to improve it as years go on.
7. The general Statistics taken in November 1879 may be said to have been fairly successful. There has not been one-tenth as much correspondence and misunderstanding arising from them as was the case with the Statistics of 1877. Those to be taken in May of the present year will, it is to be hoped, pass off with all the smoothness of routine.
8. The general principle of the Statistics is, to observe carefully during one calendar month the actual weights of correspondence forwarded, which are multiplied by 12 to give an approximate total for the year. This Colony was very unfortunate in the fact that during the Statistical month of November 1879 there were three departures of the French Contract packets (November 1, 15, and 29), so that Hongkong had to pay during 1879 and 1880 as if there were 36 French mails in each year, whereas there are only 26. The appropriate multiplier would have been 4, but though this Department received the sympathy and support of the London Post Office in its endeavours to establish that multiplier, the French Administration (supported, it must be admitted, by the letter of the documents authoritative in the matter) declined to accede to this reduction. Such a case indicates a defective principle, which would be remedied by extending the Statistics over 28 days only, and multiplying the results by 13. It is to be hoped this proposition will be brought forward at the next Postal Congress; it has already been suggested by this Office.
Since the above was written this conference has been postponed,
* Sic in a letter from a distinguished Philatelist.
x but there ceffiers to fave
on
becna durata dewase in 1879
9. Local statistics, for the purpose of framing the tabular information required by the International Bureau, were taken during 28 days of last November. A table is appended comparing their results with those obtained in the same way in 1879. The statistician must indeed have the courage of his convictions who attempts to depend on figures obtained in this way. It is like estimating what a man will eat in a year from what he consumes at one chance meal. The result might do very well to print in a Book, but nobody would use it as a basis on which to victual a ship. A glance at Table C appended to this Report, under the head of Books, &c., will shew that the increase in 1880 purports to be more than the whole number forwarded in 1879! Such a result is not in the least consonant with reality, the fact being that, as far as can be judged from ordinary observation, there has been very little increase, if any at all.
year, has
10. The Money Order system with some of the Australasian Colonies, commenced last been availed of by Chinese resident in Queensland and New South Wales to an extent which was hardly expected at first. Indeed, as far as this Office is concerned, the system may almost be said to have been too successful, for it nearly monopolises the time of a clerk and a shroff, who have had to be deputed from other duties. Chinese cannot be dealt with so quickly in Money Order matters as Europeans. An Englishman who has an Order to cash takes the money given to him and goes away. With a Chinese, the vexed question, What is a pound? assumes a knotty and complicated aspect. To his mind a sovereign represents the highest price he could get for it after a morning spent in haggling at the gold-shops. This Office has generally to offer him a few cents less. Even when the rate of exchange is settled, the difficulties are not ended. At 3/7d., for instance, a sovereign may be represented by either $5.49 or $5.48. To pay the former sum involves a trifling loss; to pay the latter secures a trifling profit. Nobody but a Chinese would go into the fractions of a cent, but the Chinaman not only does so, but even considers himself defrauded of them. It should be said, however, that the Chinese here are learning, as they learn everything, that the Post Office will not chaffer with them, and this does not appear to affect the popularity of the Money Order system.
11. The Money Order system of the London Post Office is naturally looked upon as a model for British Colonies. It is an excellent system, but somewhat complicated and elaborate; not more so, perhaps, than is necessary where the orders are numerous, and the amounts forwarded in either direction very far from being equal. It is certain, however, that a small Money Order system can be effectively carried on between two Colonies, and be a great convenience to either, without the lists, duplicate lists, percentage on commission, and other formalities required under the London rules. Such is the simplified system of this Office with Yokohama, with Shanghai, and with the Straits Settlements. An advice is forwarded for each order issued, and accounts are periodically compared, the balance due being forwarded to whichever office is entitled to it. Each office keeps the commission it collects, and all the forms used are simplified as far as possible. There would be but few obstacles to a general Inter-Colonial Money Order system on this easy plan, but if the London details be insisted on (and some Colonies insist on them) the amount of writing and of labour involved becomes prohibitive.
12. Communications were addressed to all the Australasian Colonies requesting their co-operation in the establishment of an Inter-colonial Parcel Post, such as is worked between this Colony and the Straits Settlements without any resultant inconvenience. They have all declined, and all, or nearly all, on the same ground-Customs difficulties. As the subject is still, however, to be discussed at the Australasian conference mentioned above, and has also been under consideration in Europe, it may, perhaps, be permissible to devote a few words to it. The subject of parcel post is interesting to most residents in China, because there are so many little objects of Chinese or Japanese manufacture which such persons naturally wish to send to their friends elsewhere. A preliminary objection as to the supposed invasion of the carrying business of Steamer Companies may be first disposed of. If the public were to be allowed to send carpets, overcoats, &c., through the post (as was once the case when the sample post to England was somewhat abused), whether under the title of Parcels, or of Samples, the carrying companies might fairly object, as, in the instance in question, they did.
But if the parcel post be strictly confined to small things (menus objets) as is proposed, then the parcels to be carried become precisely those of which Steamer Companies had rather be rid than otherwise.
13. To be at once effective, popular, and successful, a Parcel Post scheme requires three conditions :----
(1.) Freedom from any further formalities as to declaration of contents than may be necessary to prevent the transmission of liquids, explosives, &c.
(2.) One moderate prepayment to ensure free delivery at the door of the addressee.
(3.) Absolute freedom from Customs duties or interference.
14. In the case of the existing Indian Parcel Post, the sender has to fill up a declaration of contents, sometimes required in triplicate, sometimes also in French. He has to enclose his parcel in an outer cover to the nearest chief Post Office. If sending to the United Kingdom, he cannot prepay further than London, and it is matter of frequent remark that it costs more to get a parcel from London to the country than it has cost to get it from Calcutta to London. Moreover, the Addressee will have to pay the Customs duty, if any.
15. If the Postal Union system has proved anything, it has proved that to effect Postal Reforms on a large and liberal scale, Governments must be prepared to give up haggling about small sums,
28
Page 30
Page 31
1880.
GENERAL POST OFFICE,
HONGKONG, April 12th, 1881.
SIR,-I have the honour to report on the British Postal service in Hongkong and China during
2. The main feature of interest has been the steady extension of the Postal Union, until it may now be said that only two groups of countries of considerable importance are not included in it. These are the Australasian and South African Colonies. With regard to the former, a Postal con- ference was to assemble at Melbourne in November last to discuss the Union and other questions. It is much to be hoped the result may be the entrance of these important Colonies into the Postal system which now embraces almost all the rest of the world.
3. In the case of the Australasian group, local circumstances have enabled the Government of this Colony to reduce our outward postage, by the principal route, to the Union tariff, thus effecting one more considerable step towards uniformity. It is curious to observe, however, that the more simplicity is attained, and the easier Postal arrangements become, by far more mistakes are made, not only by the public, but also by the Departmental Staff, When each country in Europe was treated on a special and different Postal tariff, some with a half ounce unit, some with a quarter ounce, people were forced to acquaint themselves with the various rates of Postage, and knew more about them than they do now. When newspaper postage from England was twopence by one mail and a penny by the other, newspapers were prepaid with fair correctness and regularity. Now that the postage is three- halfpence by either route, the very simplicity of the arrangement seems to carry it beyond the compre- hension of the average poster of newspapers, for the sacksful of short paid papers which arrive (and the new Tariff is now a year old) attest that it is as far from being generally understood as ever. Even when the three-halfpenny postage has been mastered, the senders appear to have no idea that three-halfpence will only pay for four ounces, but post papers weighing twelve and fourteen with apparently every confidence as to their free delivery.
4. These short paid papers have proved a serious impediment to the rapid sorting and delivery of mails. About this time last year the English public was just beginning to discover the French mail to be the cheaper opportunity of the two, and though this is no longer the case, the consequent augmentation of the mail will probably continue for years. The time required to sort the French mail, which had once been (under exceptionally favourable circumstances) as little as half an hour, crept up to an hour and a half. Then the short paid papers began to arrive, and the hour and a half threatened to become two hours. Even when the mail was sorted, its delivery was much retarded. Everybody had to pay two cents at least, and nobody had two cents ready. The difficulty has been met by leaving the short paid papers to stand over till there is time to deal with them, and if the consequent delay in their delivery induces more care in prepayment, the object of this Office will have been attained.
5. The sale of Post cards has exceeded all expectations. They were introduced because it was Some obligatory to issue them, but it was not expected that more than a few dozen would be sold. difficulty was experienced in keeping pace with the demand. At least two-thirds of those purchased, however, have gone to gratify the mania for Stamp-collecting, which seems to increase with the obstacles surrounding it. It is difficult to make votaries of the great science of Philately understand that Post Offices exist for any other purposes than to supply them with every conceivable variety and shade of l'ostage stamp. The object of a Postal Administration, on the other hand, naturally is to get rid of all odds and ends, temporary or obsolete issues, and such like, as quickly as possible.
6. After twenty years of existence as a Colonial Post Office, this Department has at last succeeded in eliminating pence from its dealings with the public. As late as last year the charges on all unpaid correspondence were made in pence, the accounts were kept in Sterling, and the Postage Stamps in use represented sixpences, shillings, &c. We have now got something like a decimal series, adapted to the Colonial currency. It may be possible to improve it as years go on.
7. The general Statistics taken in November 1879 may be said to have been fairly successful. There has not been one-tenth as much correspondence and misunderstanding arising from them as was the case with the Statistics of 1877. Those to be taken in May of the present year will, it is to be hoped, pass off with all the smoothness of routine.
8. The general principle of the Statistics is, to observe carefully during one calendar month the actual weights of correspondence forwarded, which are multiplied by 12 to give an approximate total for the year. This Colony was very unfortunate in the fact that during the Statistical month of November 1879 there were three departures of the French Contract packets (November 1, 15, and 29), so that Hongkong had to pay during 1879 and 1880 as if there were 36 French mails in each year, whereas there are only 26. The appropriate multiplier would have been 4, but though this Depart ment received the sympathy and support of the London Post Office in its endeavours to establish that multiplier, the French Administration (supported, it must be admitted, by the letter of the documents authoritative in the matter) declined to accede to this reduction. Such a case indicates a defective principle, which would be remedied by extending the Statistics over 28 days only, and multiplying the results by 13. It is to be hoped this proposition will be brought forward at the next Postal Con- gress; it has already been suggested by this Office.
Bince the above was written this conference has been postponed,
* Sic in a letter from a distinguished Philatelist.
x but there ceffiers to fave
on
becna durata dewase in 1879
9. Local statistics, for the purpose of framing the tabular information required by the International Bureau, were taken during 28 days of last November. A table is appended comparing their results with those obtained in the same way in 1879. The statistician must indeed have the courage of his convictions who attempts to depend on figures obtained in this way. It is like estimating what a man will eat in a year from what he consumes at one chance meal. The result might do very well to print in ae Book, but nobody would use it as a basis on which to victual a ship. A glance at Table C appended to this Report, under the head of Books, &c., will shew that the increase in 1880 purports to be more than the whole number forwarded in 18791 Such a result is not in the least consonant with reality, the fact being that, as far as can be judged from ordinary observation, there has been very little increase, if any at all.
year, has
10. The Money Order system with some of the Australasian Colonies, commenced last been availed of by Chinese resident in Queensland and New South Wales to an extent which was hardly expected at first. Indeed, as far as this Office is concerned, the system may almost be said to have been too successful, for it nearly monopolises the time of a clerk and a shroff, who have had to be dehed from other duties. Chinese cannot be dealt with so quickly in Money Order matters as Europeans. An Englishman who has an Order to cash takes the money given to him and goes away. With a Chinese, the vexed question, What is a pound? assumes a knotty and complicated aspect. To his mind a sovereign represents the highest price he could get for it after a morning spent in baggling at the gold-shops. This Office has generally to offer him a few cents less. Even when the rate of exchange is settled, the difficulties are not ended. At 3/7d., for instance, a sovereign may be represented by either $5.49 or $5.48. To pay the former sum involves a trifling loss; to pay the latter secures a trifling profit. Nobody but a Chinese would go into the fractions of a cent, but the China- man not only does so, but even considers himself defrauded of them. It should be said, however, that the Chinese here are learning, as they learn everything, that the Post Office will not chaffer with them, and this does not appear to affect the popularity of the Money Order system.
11. The Money Order system of the London Post Office is naturally looked upon as a model for British Colonies. It is an excellent system, but somewhat complicated and elaborate; not more so, perhaps, than is necessary where the orders are numerous, and the amounts forwarded in either direction very far from being equal. It is certain, however, that a small Money Order system can be effectively carried on between two Colonies, and be a great convenience to either, without the lists, duplicate lists, percentage on commission, and other formalities required under the London rules. Such is the sim- plified system of this Office with Yokohama, with Shanghai, and with the Straits Settlements. An advice is forwarded for each order issued, and accounts are periodically compared, the balance due being forwarded to whichever office is entitled to it. Each office keeps the commission it collects, and all the forms used are simplified as far as possible. There would be but few obstacles to a general Inter-Colonial Money Order system on this easy plan, but if the London details be insisted on (and some Colonies insist on them) the amount of writing and of labour involved becomes prohibitive.
12. Communications were addressed to all the Australasian Colonies requesting their co-operation in the establishment of an Inter-colonial Parcel Post, such as is worked between this Colony and the Straits Settlements without any resultant inconvenience. They have all declined, and all, or nearly all, on the same ground-Customs difficulties. As the subject is still, however, to be discussed at the Australasian conference mentioned above, and has also been under consideration in Europe, it may, per- haps, be permissible to devote a few words to it. The subject of parcel post is interesting to most resi- dents in China, because there are so many little objects of Chinese or Japanese manufacture which such persons naturally wish to send to their friends elsewhere. A preliminary objection as to the supposed invasion of the carrying business of Steamer Companies may be first disposed of. If the public were to be allowed to send carpets, overcoats, &c., through the post (as was once the case when the sample post to England was somewhat abused), whether under the title of Parcels, or of Samples, the carrying companies might fairly object, as, in the instance in question, they did.
But if the parcel post be strictly confined to small things (menus objets) as is proposed, then the parcels to be carried become precisely those of which Steamer Companies had rather be rid than otherwise.
13. To be at once effective, popular, and successful, a Parcel Post scheme requires three conditions :----
(1.) Freedom from any further formalities as to declaration of contents than may be neces-
sary to prevent the transmission of liquids, explosives, &c.
(2.) One moderate prepayment to ensure free delivery at the door of the addressee. (3.) Absolute freedom from Customs duties or interference.
14. In the case of the existing Indian Parcel Post, the sender has to fill up a declaration of con- tents, sometimes required in triplicate, sometimes also in French. He has to enclose his parcel in an outer cover to the nearest chief Post Office. If sending to the United Kingdom, he cannot prepay further than London, and it is matter of frequent remark that it costs more to get a parcel from London to the country than it has cost to get it from Calcutta to London. Moreover, the Addressee will have to pay the Customs duty, if any.
15. If the Postal Union system has proved anything, it has proved that to effect Postal Reforms on a large and liberal scale, Governments must be prepared to give up haggling about small sums,
28
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