Almost from the time of the transference of the inspectorate to the capital the customs showed capacities of wider range than are comprised within the routine of a custom-house. Profoundly impressed as were the imperial statesmen with the value of the new revenue-producer, they soon began to perceive that the institution might be put to other and greater uses. Plurality of function in itself was no stumbling-block to them, for it is the system on which Chinese administration is carried on. In the very first year they had intrusted the inspector-general and his deputy with the organisation of a navy, with the evident approval of the British Minister. That functionary, indeed, seemed as little disposed as the Chinese themselves to see incongruity in the various forms of customs activity, especially when he regarded its extra official services as rendered to himself; and he really stood much in need of services of that kind.
Her Majesty's first representative in Peking, helpless and despairing, was, in fact, fain to throw himself on the support of the first inspector-general, Mr Lay, and then of his successor, Mr Hart, as having knowledge and influence with the Chinese Government which was not possessed by the British Legation. It did not apparently occur to Mr Bruce that such knowledge was strictly limited, and that the influence could be of very little use to him, and might be too dearly purchased. Having no other resource, however, he was perhaps not unwilling to shut his eyes to the false position in which he was placing himself in leaning upon the paid servants of the Chinese Government to assist him in carrying out a policy which was totally repugnant to that Government. The fidelity of both Mr Lay and Mr Hart to the master whom they served being beyond question, the diplomatic prestige conferred on them by the British Minister, as well as the knowledge and influence derived from the other side, must, in all matters of controversy, be thrown into the Chinese scale.