CHAPTER I THE POST OFFICE OF INDIA

To anyone connected with the work of the Post Office of India it is almost inconceivable that the present institution, with its vast organization and its elaborate system, has grown up in the course of little more than half a century. Previous to 1854 the Post Office was a medley of services in different provinces, each having separate rules and different rates of postage. Regular mails were conveyed over a very few main lines between important towns, and Collectors of districts were responsible for the management of their own local post offices. There were no postage stamps, and since rates were levied according to distance, and distances were often unknown, the position of a postal clerk in a large office was a distinctly lucrative one. In large cantonments a military officer with plenty of other duties was usually postmaster, and his supervision was at best sketchy, especially during the snipe shooting season.

In 1850 a Commission of the kind with which we are now so familiar both in India and England was appointed to consider the state of the postal services, and the result of its deliberations was the Post Office Act of 1854 and the conversion of the Post Office into an Imperial Department under a single head called the Director-General. Uniform rates of postage were introduced and postage stamps instead of cash payments were brought into use. That marvellous set of rules known as the Post Office Manual was prepared, which has since grown into four healthy volumes. Every Official in the Department is supposed to have the contents of these at his fingers' ends, but in reality few have ever read them through, and anyone who attempted to obey all their instructions would find himself sadly hampered in the exercise of his duties. The appointment of a Director-General, by bringing the separate services under a single administration, laid the foundation for future progress. Suitable officers were recruited and were taught their duties, better pay and improved prospects of promotion were a great inducement to the staff to take an interest in the work, and through communications which took no account of district or provincial boundaries were established.

The gradual growth of the powers of the Director-General has largely depended on the needs of the Department, and also, to an appreciable extent, upon his own strength of will and his personal relations with the Member of Council, who controls the Department of Government to which the Post Office is subordinate.[1] The Director-General is assisted by two Deputy Directors, who are, in fact, the Secretaries of the Post Office, and under these again are four Assistant Directors in charge of four main branches of Post Office work. All the above officers have the title "General" attached to their designations in order to increase their self-respect, but I have omitted it to avoid an annoying reiteration. Of the three personal assistants, one has to be a walking encyclopædia since he is in personal attendance on the Director-General; the others are financial and technical experts. The office itself is under the immediate supervision of a titled Bengalee gentleman of considerable attainments, and his clerks are mostly Bengalee graduates whose abilities are supposed to vary with their salaries.

For the purposes of administration, the whole of India and Burma is divided into eight circles, corresponding with Presidencies and Provinces as far as possible. Each of these is under the control of a Postmaster-General, who is sometimes a member of the Indian Civil Service and sometimes an official of the Department. The powers of a Postmaster-General are great, his patronage is large and the working of the Post Office is dependent on his capacity for railway travelling at all seasons of the year. His circle is divided into divisions in charge of Superintendents, who should be little understudies of himself.

The real business of the Department, however, is performed by post offices, and these are divided into head, sub and branch offices. The head office is the account and controlling office of one or more districts and is in charge of a postmaster, who in large towns ranks as a divisional officer. The sub-office is under the control of a head office for account purposes. It does all kinds of postal work and is always opened where there is a sufficiency of correspondence to justify its existence. The branch office is only intended for villages and places where there is no need of a sub-office. It is really the pioneer of the Department for the purpose of opening up new areas to postal communications. In small places a branch office is put in charge of a schoolmaster, a shopkeeper or any other local resident who has sufficient education to keep the very simple accounts required, and by this means the Post Office is able to give the advantages of its great organization to villages which could never support a departmental office. A still cheaper agency is used for the outlying hamlets, which only receive and send a few letters a week. These are visited periodically by the village or rural postman, who is a kind of perambulating branch office. He delivers letters and money orders, and also receives articles for despatch. He sells stamps and quinine, and being a local man he has to face a certain amount of public opinion if he doesn't act fair and square towards the villagers in his beat. In some hill tracts he is provided with a bugle to announce his arrival, and to the inhabitants of these he brings news of the outside world; he writes their letters and explains to them his own conception of the mysteries of the money order system.

But what would be the use of all these offices and all this organization without lines of communication? The chief lines are, of course, the railways, but they form a separate organization and will be discussed in another chapter. For places off the railway there are motor lines and tonga services, such as that sung by Kipling between Kalka and Simla but now a thing of the past owing to the completion of the hill railway. The romance of the Post Office, however, must always lie in the mail runner, or hirkara as he is called in old books on India. The number of tigers sated with his flesh is past count, the Himalayan snows have overwhelmed him, flooded rivers have carried him off and oozy swamps sucked him down. But in the face of all these dangers, has the runner ever failed to do his duty? According to the stories, never, and in real life perhaps not more than once or twice.

Is the torrent in spate? He must ford it or swim.
Has the rain wrecked the road? He must climb by the cliff.
The service admits not a but, nor an if,
While the breath's in his mouth, he must bear without fail
In the name of the Emperor—the "Overland Mail."—Kipling.

Postal runners are largely drawn from the less civilized races of India, many of whom are animists by religion. They will face wild beasts and wandering criminals, but will go miles to avoid an evil spirit in a tree. With them the mail bag is a kind of fetish which must be protected and got to its destination at all costs. Dishonesty among them is almost unknown and they are wonderfully true to their salt, which with them seldom exceeds twelve rupees a month. To prove that the old stories are not all myths, a case came before the Director-General recently in a rather peculiar manner. The Audit Office, that soulless machine which drives executive officers out of their minds, sent in an objection to a gratuity being given to the family of a runner who, when carrying the mails, had been eaten by a tiger. The objection was that gratuities were only given for death in special circumstances, for instance, when death occurred in the performance of some specially courageous action, and that, since carrying the mails was part of the man's ordinary duty, his family was not entitled to any consideration. The actual story of the runner's death, as told by the villagers and the village watchman, is this: The runner's beat had been recently frequented by a man-eating tiger, and several of the country people had been carried off by him during the previous few days. On the afternoon in question the tiger was known to be in the neighbourhood, and when the mails arrived the villagers warned the runner not to go then, but to wait until next morning. Since the man-eater was an early feeder—that is to say, he killed his prey early in the afternoon, the runner waited until five o'clock and then persuaded the village watchman to accompany him. He hadn't gone more than two miles when out came the tiger and seized him. The watchman escaped and took the mails to the next stage, and the family of the man who nobly faced death in the execution of his duty was deprived of its wage-earner. This is a very bald account of a really heroic deed, and it is pleasing to learn that Mr. Levett Yeats, the Accountant-General of the Post Office at the time, who was the very soul of romance and chivalry, dealt with his objecting subordinate in a manner worthy of the heinous nature of his offence.

The road establishment of the Indian Post Office amounted to 18,160 persons out of a total staff of 108,324 on the 31st March, 1918, so there is some excuse for having devoted so much space to it. The postal staff had to deal with over 1200 millions of articles during the year, of which, according to the Annual Report of 1917-18, only .22 per cent failed to reach their proper destination. When one considers that there are more than twenty written languages in India in common use, and that a large number of addresses are almost illegible and are mixed up with invocations to the Deity and many other high-sounding phrases, one can only say, "Bravo, the Post Office! How do you do it?" With such a large correspondence a handsome revenue might be expected, even when the minimum rate for letters is a halfpenny; but the Indian is a frugal person and he does most of his correspondence on farthing postcards, on which he can cram a great deal of information by carefully using every available portion. Postcards were introduced in 1879 and now account for nearly half of the articles handled. The private card, with a figure of some favourite god or goddess, is competing strongly with the ordinary Government postcard, and wonderful ingenuity is employed to enable the writer to avail himself of more space than the regulations permit. The unpaid letter is also much in evidence in India. There is an idea that a letter on which postage has to be collected is much more certain to reach its destination than a prepaid one. This heretical doctrine has been strongly condemned in several pamphlets issued by the Director-General, but with little effect. And who knows? Perhaps there is a certain amount of truth in it, founded on bitter experience. Unpaid postcards had to be abolished recently, when it was discovered that they were universally read and then returned to the postmen as refused. The writer generally concealed his identity from the officials, with the result that it was useless to try and recover the postage due.

Among a suspicious and ignorant people any innovation is likely to be looked at askance, and this is especially the case in India, where the introduction of postcards was received with suspicion, although their low price ensured a ready sale. An extract from the Amrita Bazar Patrika, one of the foremost Indian papers, shows that they were not at first regarded as an unmixed blessing. The extract is taken from the issue of the 18th July, 1879, and is as follows:—

"Postal cards are now a rage all over India. There are men who, to make the contents of the cards unintelligible, make them altogether illegible. Some express themselves in hints which are not only unintelligible to the postal clerk and peon, but to the person addressed also. Others have got a notion that all letters, to be sent either through the Post or through private harkaras, must be written on postcards, that being the hookum[2] of the Sirkar; and it is not unusual to see a fat and ignorant, though extremely loyal and law-abiding, zemindar[3] sending his letters to his steward written on half a score of postcards, one or two not sufficing to contain his great thoughts. There are others who write their thoughts on postcards and enclose them in an envelope, and attach a half-anna stamp before posting. These men have naturally raised a loud complaint against the unconscionable exactions of Government, and native papers given to writing sedition should not let slip this opportunity of indulging their profitable pastime. But the great difficulty is to teach the people on which side of the card the address is to be written, and we think it will be some years before they are enlightened in this respect. But really does it matter much if the address is written on the wrong side? We think that the people of India living under the enlightened rule of the British should have the privilege of writing the address on whichever side they like."

What a merry time the poor sorters would have if the sentiments expressed in the last sentence were given effect to! But doubtless the Amrita Bazar Patrika, with its enlightened staff, its splendid circulation and carefully printed addresses would scarcely maintain the same opinions now.

The Post Office of India must be congratulated upon its good fortune in never having been regarded by Government as a revenue-producing Department, and as long as it paid its way with a small surplus the Powers were satisfied. Any excess was devoted to improvements in the service, and full advantage has been given to this concession in past years by the introduction of many reforms destined to meet the growing needs of the country. Recently, postage rates were reduced to such an extent that for a few years the Post Office worked at a loss, a most unsatisfactory state of affairs; however, a marked recovery is noticeable already and it is again a self-supporting institution, the gross revenue for the year ending the 31st March, 1918, being more than 416 lakhs[4] of rupees, which gave a net surplus of nearly 50 lakhs on the year's working.

From being merely an agency for the conveyance and distribution of letters and light articles, the Post Office has gradually undertaken an enormous amount of what may be called non-postal work. It deals with vast numbers of money orders, collects the price of goods for tradesmen, pays pensioners, sells quinine, deals in Government loans, and is the poor man's bank, all of which matters will be dealt with separately. It is to be hoped that no new line of business is going to be taken up in the near future, such as the sale of railway tickets, which was once seriously proposed, or else the principal duty of the Department may be forgotten in the turmoil of the side shows.