The duty of providing horses for conveying letters and for the use of travellers on affairs of state was enforced from the beginning of the sixteenth century by orders and warrants issued by the Postmaster-General and the Privy Council to mayors, sheriffs, constables, and other officials.[327] Where ordinary posts were laid, the postmen themselves were supposed to have horses ready. Such at least was the understanding, not, however, invariably realized. In 1533 we find the Postmaster-General complaining that, except between London and Dover, there were never any horses provided over the whole kingdom.[328] A few years later when the London-Berwick posts became an established fact each postman had to provide one horse, always to be ready to carry either the mails or a chance traveller on affairs of state. In 1542, since, owing to trouble with Scotland, the number of letters and travellers between that country and London had become much more numerous, each postman was required to have in readiness three horses instead of one, and it was partly for this reason that their pay was increased at the same time.[329] The fee for the use of these horses was fixed at a penny a horse for every mile travelled. Generally this fee was named in the warrant empowering the traveller to take up horses.[330] When the sum was not definitely named, it was required that it should be reasonable.[331] It seems to have been the custom of the members of the Council to grant these warrants quite indiscriminately. To remedy this, it was provided in 1566 that in future no warrant should be granted to any person, who was not actually travelling upon state affairs.[332] Twelve years later we find the people of Grantham petitioning the Council against the taking-up of horses to ride post. They said that the practice had increased so much that it had become intolerable.[333] The demand for horses had become so great that 2_d._ a mile was asked for each horse and complaint was made that travellers and messengers refused to pay the increased charge.[334] It is improbable that the state was successful in preventing the use of the postmasters' horses by private individuals, and it is more improbable still that the postmasters themselves objected to hiring their horses to those who travelled on their own affairs. Warrants issued by the Council nearly always fixed the price which should be paid. Now such prices, like wages when fixed by employers, are likely to be lower than demand and supply warrant. On the other hand, as between the postmasters and the ordinary travellers, the question of charge was adjusted by agreement. [327] Hist. MSS. Com. _Rep._, 14, app., pt. 8, p. 35; _P. & O. P. C._, vii, p. 350. [328] _Rep. Com._, 1844, xiv, app., p. 32 (7). [329] _L. & P. Hen. VIII_, xvii (1542), p. 484. [330] _A. P. C._, 1542-47, pp. 164, 333, 465, 469, 527; 1547-50, p. 505. [331] _Ibid._, 1550-52, p. 452; 1542-47, p. 384. [332] _Ibid._, 1558-70, p. 326.