There should be a uniform rate of postage because the cost of distributing letters consisted chiefly in the expenses for collecting and delivering them.[245] The plan then in operation for letters not exceeding one ounce in weight was to charge according to the number of enclosures. This plan was uncertain because the number could not always be ascertained, necessitated a close examination, and was evaded by writing several letters on one sheet.[246] [245] _Ibid._, 1837-38, xx, qs. 114, 11092-97; pt. 1, 3d rep., 708, p. 5; pts. 1 and 2, 2d rep., app. E, no. 58. [246] _Ibid._, 1837-38, xx, qs. 3116, 4599, 8137, 9770; 3d rep., p. 44. Payment on delivery made it necessary to keep two separate accounts against each postmaster, one for unpaid letters posted in London, and one for paid letters posted in the country. The postmasters had also to keep accounts against each other. Payment in advance, if made compulsory, would do away with half of these accounts and the use of stamped covers or paper would do away with the other half.[247] In some small places where the penny charge would not cover the cost of delivery, Hill proposed that a small additional charge be made, either in advance or on delivery, but he withdrew this suggestion later.[248] [247] _Ibid._, 1837-38, xx, 3d rep., pp. 35, 38; qs. 113, 620, 621. [248] _Ibid._, 1837-38, xx, pt. 1, pp. 48, 59, 424; pts. 1 and 2, 1st rep., no. 25, p. 508. The witnesses summoned to give their evidence before the committee pointed out that a multitude of business transactions were not carried on at all, or were carried on clandestinely, or were hampered by the high postage rates. Bills for small amounts were not drawn,[249] commercial travellers did not write until several orders could be sent on one sheet of paper,[250] samples were not sent by post,[251] communication between banks and their branches was restricted,[252] statistical information was denied,[253] social correspondence restricted especially among the poor,[254] working men were ignorant of the rates of wages in other parts of the country,[255] and the high postage was a bad means of raising revenue.[256] In order to estimate the probable revenue after the change, it was necessary to know the number of letters carried. Hill had come to the conclusion that the total number was about 80,000,000 a year. The Secretary, Maberley, considered that there were about 58,000,000. A return was called for by the committee and Hill's estimate proved to be nearly correct.[257] [249] _Rep. Com._, 1837-38, xx, qs. 6682, 7093. [250] _Ibid._, q. 7668. [251] _Ibid._, qs. 7671, 7721. [252] _Ibid._, q. 10,059. [253] _Ibid._, qs. 6951, 10,305. [254] _Ibid._, qs. 2923, 5522-54, 5443-54, 6703, 7961. [255] _Ibid._, qs. 7991, 9840-42. [256] _Ibid._, qs. 8126, 8130 (Lord Ashburton). [257] _Ibid._, pt. 1, pp. 9, 434; _ibid._, pt. 2, pp. 59, 658; app., p. 58; _ibid._, pts. 1 and 2, 3d rep., p. 19.