I may be wrong but ...
simcity.cc:1384
int pax_left_to_do = min(7, num_pax - pax_routed);
simcity.cc:1440
pax.menge = (wtyp == warenbauer_t::p****agiere ? pax_left_to_do : max(1, pax_left_to_do >> 2));
So, mail packet is always 1, isn't it ?
pax.menge = (wtyp == warenbauer_t::p****agiere ? pax_left_to_do : 1);