formulated
general principles which might with advantage be observed in the making
of fresh agreements between individual countries, and might serve as a
basis for a common agreement. Its conclusions were, as a matter of fact,
so used in numerous instances.

Towards the end of 1868 Dr. von Stephan, of the postal administration of
the North German Union, published in the official journal of the Union a
definite project for a postal union between all civilized nations, and
proposed a discussion of the project at a universal Congress. The
proposal was taken up by the administration of the North German Union.
The diplomatic arrangements for calling a Conference were, however,
interrupted by the Franco-German War of 1870. After the conclusion of
peace, the proposal was again taken up, and the Swiss Government
undertook the task of inviting the administrations of the chief
countries to send representatives to a Congress at Berne. The invitation
was readily accepted, and the Congress met in 1874.

The proposal submitted to the Conference was that the Union should cover
the following categories of postal traffic:--

(1) Letters.
(2) Postcards.
(3) Newspapers and other printed matter.
(4) Samples.
(5) Commercial papers.

Each contracting State should fix its own international rates, under
the limitation that for letters the rate should not exceed 4d., or 40
centimes; and for newspapers or other printed matter, for samples or
commercial papers, should not be less than 1d., or 10 centimes. There
should be no division of postage, but each State should retain the
postage which it collected. Each State should give liberty of transit,
and transit charges should be abolished, except in the case of
extraordinary charges or services.[578]

The proposals which gave rise to most discussion were those for the
establishment of a uniform rate, and for the gratuitous transit of mails
across the territory of intermediate countries. The vast number of rates
actually existing was made an argument in favour of the uniform rate;
and a low rate was recommended on the ground that it was well known
that, although low rates imposed a temporary monetary loss, they were in
a broad view profitable to the finances of the State.[579] It was urged
that as all rates were already tending to equality, the Congress, by
establishing uniformity, would only be advancing by a few years an
existing tendency. The principle of uniformity of rate and