The "department" had at first no official status; and, when a report of its activities in censorship reached the home secretary, he suggested that it should regularise itself if it wished to escape heavy penalties for interfering with his majesty's mails. At this time the Customs were thrown into difficulty and confusion by the proclamation of the king in council, forbidding all trade with the enemy: in the absence of records, investigation and an intelligence department, it was impossible to say whether goods cleared from London would ultimately reach enemy destination; and the censors who were watching the cable and wireless operations of Dutch and Scandinavian importers seemed the natural advisers to approach. At this point the embryonic department, which had risen from the ashes of the National Service League, joined with a licensing delegation from the Customs to form the War Trade Department and Trade Clearing House. The formal executive authority lay with the Privy Council, but the department was a joint administrative and advisory body, receiving and transmitting information between War Office, Admiralty, Foreign Office, Home Office, Scotland Yard, the new Censorships and, indeed, any other department that would give or accept information designed to strengthen the blockade, to check espionage at home and the transmission of information abroad and to prevent trade with the enemy. As the work became organised and the records increased, there arose further duties of editing, compiling, summarising and translating, too numerous and technical to be described here. The staff was recruited from dons and barristers, men of letters and stockbrokers, solicitors and merchants; but, until an incapacitated officer was here and there drafted on light duty to a government department, there was not one civil servant. The independent tributes of Lord Emmott and, later, of Lord Robert Cecil are the most convincing testimony that, even without the guidance of those who had been trained in the civil service, these temporary civil servants acquired its methods and imbibed something of its tradition. Within a few days the raw newcomers felt as if they had lived all their lives in a world of registries and files, of minutes and memoranda, of "second-division clerks" and messengers, as in a few days they were acclimatised to the universal office equipment of trestle-tables and desk-telephones, of card-indices and steel filing-cabinets, of "in" and "out" trays, of rubber stamps and "urgent" labels. The work was done first in congested corners of Central Buildings, Westminster, later in Broadway House and later still in Lake Buildings, St. James' Park. Everywhere the duties of the department expanded more quickly than its accommodation; and, though it began with apparently sufficient space in each new home, within a few weeks the big rooms were being divided by temporary partitions and the small were being filled with additional occupants.