Recognition of the difficulty of administering such a vast island area without reliable government transportation resulted in the requirements to establish a transportation system for government services. The resulting report recommended purchase of 21 small steamers to establish 21 circuits supporting communication between provincial capitals and coastal towns as well as prevent smuggling and landing contraband. The average circuit would be . . The vessels required should be all weather of about in length capable of with light armament. Two small stern paddle steamers were recommended for river use on the Cayagen River and the Rio Grande de Mindanao and connected lakes. The bureau concentrated its early days on the contracts for the fifteen vessels with the result ten were to be built by Farnham, Boyd & Company in Shanghai, China and five by Uraga Dock Company in Uraga, Japan.