But something more was necessary than to frame an establishment and to alter the colours of the packets. Serious doubts had arisen whether, as the law stood, the postmasters-general of England were competent to deal with the posts of Scotland; and, this vital consideration apart, between the two divisions of the kingdom certain inequalities existed which only fresh legislation could redress. Under the Scotch Act of 1695 the postage on a single letter between Edinburgh and Berwick was 2d. Under the English Act of 1660, 2d. would carry a single letter from Berwick northwards for only forty miles, and considerably more than forty miles separated Berwick from Edinburgh. This difference arose no doubt from mere inaccuracy of reckoning on the English side; and yet it was one which nothing less than a new Act, an Act by the united Parliament, would adjust. It is the more singular that at this time the postmasters-general should not have taken steps to promote legislation, because, in connection with the English no less than the Scotch Post Office, there were several matters on which fresh legislation had become necessary. The statute on which the very existence of the Post Office itself depended had been found difficult to deal with, on account of its loose and ambiguous wording. The postage to America and the West Indies rested on no legal sanction. For the pence paid upon ship-letters the postmasters-general had no authority to produce, and the auditors had threatened to disallow, the payment. Even the penny post was of doubtful legality. The Courts had indeed decided that Dockwra's undertaking was an infraction of the rights of the Crown; but they had not decided, nor had they been called upon to decide, whether in the hands of the Crown the same undertaking would be legal. The law, as it stood, prescribed no postage lower than twopence. By the penny post the postage was one half of that amount. With these and other matters requiring adjustment, it might well be supposed that the postmasters-general would have been glad of the opportunity which the Act of Union afforded to set their house in order. Yet, so far from taking any steps in that direction, they now remained perfectly passive. Of the reason for this inaction we are not informed; but we venture to suggest an explanation. Cotton and Frankland were advocates of cheap postage. Should fresh legislation be entered upon, what guarantee had they that postage would not be made dearer? So far, indeed, as they could judge, such was much more likely than not to be the case. As early as William's reign they had been asked to estimate how much an additional penny of postage would produce; and the necessities of the Civil List which had prompted the inquiry had since become more and more pressing.