rregularities crept into the service; but
they were for the most part the result of "the representations and
pressing solicitations of the citizens," sustained by members of
Congress from almost every section of the country, of the extension of
the franking privilege, of the desire of the head of the department "to
extend the benefits of mail facilities and stage-coach accommodations to
every portion of the community," and of legislation extending the
transportation of the mail over unproductive routes. The deficits which
resulted were not regarded altogether as an evil, because the public had
greatly benefited by the measures which had produced them.[163] Despite
the solicitude of Congress the revenue failed to recover, and in 1837
and several succeeding years showed a deficit.

Sir Rowland Hill's pamphlet _Post Office Reform: Its Importance and
Practicability_ attracted attention in America, and as early as 1839 the
question of applying the principle of uniformity of rate to the American
service was under consideration. The rate proposed was not, however, 2
cents, the equivalent of a penny, but 5 cents. Sir Rowland Hill himself
expressed the opinion that owing to the widely different circumstances
penny postage might not be applicable to the United States, but that, as
the American people did not look for a revenue from their Post Office, a
low general rate might be feasible.[164]

Although a low and uniform rate was not immediately adopted, the example
of Great Britain had great influence.[165] There was considerable public
agitation in favour of reduction of rates, and in many respects the
circumstances resembled those obtaining in England before the reform.
The high rates of postage led to constant and widespread evasion,
advantage being taken of all available private means for the
transmission of letters, and an association formed in New York to work
for the adoption of reduced postage held meetings in the large cities.
In 1844 the finances of the department were in a more nourishing
condition. For four years the service had been able to maintain itself.
The state of the public Treasury had prevented any material change in
previous years, but as difficulties under that head had ceased, the
Government recommended the introduction of low rates--gradually, in
order to prevent any serious dislocation of the finance of the
department.[166] A statute was accordingly passed which, while not
introducing uniform postage,