A goverment, Milgov or Civgov would best be served by setting up post offices in a given area that require the locals to register to make use of the postal services. This registration would have the dual purpose of creating a database of people using the service and actually be used to find persons in a displaced population but also recording people living in a area for CivGov or MilGov own use. At that point its as simple as setting up delivery between these offices and getting people to show up there to get there mail. Essentially everyone gets a post office box and the post office becomes a central point in the area.
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