The reader will recollect those regrettable incidents on the North Sea belonging to the eighteenth century, when we had to chronicle the names of Captains Mitchell and Whitehead in that connection. Unhappily there were occasional repetitions of these in the early part of the nineteenth century on the south coast. It happened that on the 19th of March in the year 1807 the Swan Revenue cutter, a vessel of considerable size (for she had a burthen of 154 tons, a crew of twenty-three men, and was armed with twelve 4-pounders, two 9-pounders, and a chest of small arms) was cruising in the English Channel and found herself off Swanage. It should be added that at that time there was a kind of volunteer Preventive Guard at various places along the coast, which was known as the "Sea Fencibles." The Swanage "Fencibles" informed Mr. Comben, the cruiser's commander, that there were three luggers hovering off the coast, and these volunteers offered a number of their men to reinforce the Swan's crew so that the luggers might be captured. To this Comben replied with a damper to the volunteers' enthusiasm: "If I was to take them on board and fall in with the enemy we could not do anything with them."
So the Swan sailed away from Swanage Bay to the eastward and at midnight made the Needles. It now fell calm, but the luggers hove in sight and approached by means of their sweeps. As they came on, the cutter, instead of preparing to receive them in the only way they deserved, did nothing. But one of the Swan's crew, whose name, Edward Bartlett, deserves to be remembered for doing his duty, asked Comben if he should fetch the grape and canister from below. Comben merely replied: "There is more in the cabin than we shall want: it will be of no use; it is all over with us." Such was the attitude of one who had signed into a service for the prevention of smuggling craft. Instead of taking any definite action he waited despairingly for the enemy to come on. He then issued no orders to his crew to prepare to engage; he just did nothing and remained inactive under the white cliffs. But if their commander was a coward, at any rate his crew were determined to make a contest of it. They had actually to urge him to fight, but the luggers were right close on to the cutter before Comben had given the word. After that for three-quarters of an hour the crew fought the ship, and were at their respective quarters when Comben actually turned to the luggers and shouted to them: "Leave off firing; I have struck." During the engagement he had shown great signs of fear and never encouraged his crew to fight.
Seeing that they were led by a coward, the Swan's crew also took fright and thought it best to flee. They therefore jumped into the cutter's boats and rowed ashore, leaving their valiant commander to look after the Swan as best he might. She was of course immediately captured by the luggers, and as for Comben, he was taken prisoner, carried to France, detained there, and did not return to England till after seven years, when an investigation was made into his conduct by the Surveyors-General of the Customs, his defence being that "his men had deserted him." As for the latter, they reached the shore safely and were again employed in the Preventive Service.
It is quite clear that the Customs Board sometimes lent their cutters to the Admiralty; and there is a letter dated October 10, 1809, from the Admiralty, in which permission is given for the cutters in the service of that Revenue to be released from their station at Flushing under the command of Rear-Admiral Sir Richard Strachan, and there is also a Customs House minute of July 7, 1806, to the effect that the Swan and Hound Revenue cutters might be placed under the orders of Lord Keith in the room of the Stag and Swallow, for use at Cowes and Shoreham, where these cruisers were to be stationed. And it was in this same year that the Board again emphasized the importance of the Revenue Service being supported by the Navy and Army, and that to this end the most effectual encouragement should be held out to both branches, so that they might co-operate vigorously in the suppression of smuggling. They further expressed themselves as of the opinion that "nothing will more effectually tend to encourage them to exert themselves than the certainty of receiving a speedy reward." And yet, again, were the Revenue officers enjoined "to be particularly careful to secure the men employed in smuggling vessels whenever it may be possible to effect it, as their lordships have the strongest reasons for believing that the apprehension of being detained and impressed into his Majesty's service will have a great effect in deterring the persons engaged in these illegal pursuits from continuing their pernicious habits."
It was also part of the duty of the Customs officers to attend to the Quarantine, and the Customs Board resolved "that it is fit to direct a distinguishing flag to be used on board all boats employed in the Quarantine service." At Sandgate Creek, Portsmouth, Falmouth, Bristol, Milford, Hull, Liverpool and Plymouth, by the advice of the Surveyor for Sloops, a flag was deposited in the Custom House at every port of the kingdom, and it was resolved that in the above ports there should be two, except Plymouth, which should have three. Cruisers were also employed in the Quarantine Service.
We have already seen something of the conditions of service and the pay of the cruisers' crews. He who was responsible for the upkeep and supervision of these cruisers was known as the Surveyor for Sloops. For some time the Customs Board had been deliberating as to the adoption of some regulations for ascertaining the qualifications of those who desired to be commanders and mates of the cruisers. That some improvement was essential must already have been made clear to the reader from the type of men who sometimes were placed in such positions of responsibility. The following regulations were therefore adopted in the year 1807, "which appear to the Commissioners highly necessary for the safe conduct of the Service, as also for the safety of the vessels and crews committed to their charge." They resolved accordingly:—
"That all persons who shall be hereafter nominated to the situation of Commander or Mate of a Cruiser in the service of this Revenue, do attend the Surveyor of Sloops, &c. in London for the purpose of being examined on the several points submitted in the report of the said Surveyor, as essential for the qualification of officers of that description, namely, whether he understand navigation, is competent to lay off and ascertain courses and distances on the charts, can work a day's work and find the time of high and low water in any port of great Britain, and understand the use of a quadrant."
It was also further resolved:—
"That no person be admitted to either of those situations who shall not be certified by the said Surveyors to be fully qualified in the particulars above referred to, which certificate is to be laid before the Board for their consideration, whether in case such person does not possess a competent knowledge of the coast on which he is to be stationed, or is not sufficiently acquainted with the sailing and management of cutters and luggers tho' generally qualified, it may not be fit to direct him to repair on board some cruiser, whose station is contiguous to that to which he is nominated, and cruise in such vessel for the space of one month, or until the commander thereof shall certify that he is thoroughly acquainted with that part of the coast, and also be fully competent to take charge of a cutter, or lugger, as the case may be, such a certificate to be referred to the Surveyor for Sloops, &c. for his report previous to such commander's or mate's commission being ordered to be made out." And the commanders of the cutters who shall be ordered to instruct such persons are to be acquainted that they are at liberty to crave the extra expense they shall incur for victualling such persons for the Board's consideration.
"And the Surveyor for Sloops, &c. is to report more particularly the nature and objects of enquiry as to the qualification of persons nominated Sitters of Boats and by what officers in the outports those enquiries are made and the qualification of such persons certified: for the Commissioners' further consideration, as to any additional regulations in respect of persons so nominated."