s
as far as possible, by this means avoiding loading heavily the important
night mail trains and adding to their cost; and it was anticipated that
the rates proposed would yield some profit to the revenue.

Objection was raised on the ground that the post ought to be confined to
small packets as far as possible, and should convey large letters and
packets only when necessity was urgent: heavy packets would impede the
work of the Post Office, and would cause inconvenience in many ways,
especially as regards foot-messengers;[465] but, as it was not thought
likely that any very great number of book packets would be posted, the
objection was not upheld, and the cheaper rate was introduced. At first
various restrictions were imposed, and considerable public
dissatisfaction resulted, especially in regard to certain of the
regulations. These regulations were consequently relaxed in 1853 so as
to allow practically any printed matter to pass at the book rate. In
1855 the rate was reduced,[466] and in 1856 circulars were admitted at
the privileged rate. As a result of this the number of book packets
increased rapidly. In 1855 the total number was 3,000,000; in 1856 the
number increased to 6,000,000; and in 1862 reached 14,000,000. In 1866
the rates for heavier packets were further reduced. The rate for packets
over 8 ounces in weight became 1d. for each 4 ounces, instead of 2d. for
each 8 ounces.

In 1870, when the 1/2d. rate for newspapers and for postcards was
established,[467] an important change in the book post was made. As the
result of pressure from the public and a vote in the House of Commons in
favour of a reduction, carried against the wishes and recommendation of
the Government,[468] the rate on book packets was reduced to 1/2d. for
every 2 ounces.

Since 1870 the regulations governing admission to the book post have
been modified from time to time, chiefly in the direction of enabling
the formal documents of commerce to pass at the reduced rate. All
documents admitted to the privilege must conform to certain
requirements, and it is obvious that all such documents must be open to
inspection by the Post Office. It is therefore an indispensable
requirement that the documents be sent in open covers. Thus arises that
curious distinction between the "closed" post and the "open" post, a
lower rate of postage being given to packets containing articles or
documents of a certain description, on condition that the contents a