The crown's administration of its overseas empire was implemented by royal officials in both the civil and religious spheres, often with overlapping jurisdictions. The crown could administer the empire in the Indies by using native elites as intermediaries with the large indigenous populations. Administrative costs of empire were kept low, with a small number of Spanish officials generally paid low salaries.[4] Crown policy to maintain a closed commercial system limited to one port in Spain and only a few in the Indies was in practice not closed, with European merchant houses supplying Spanish merchants in the Spanish port of Seville with high quality textiles and other manufactured goods that Spain itself could not supply. Much of the silver of the Indies was diverted into those European merchant houses. Crown officials in the Indies enabled the creation of a whole commercial system in which they could coerce native populations to participate while reaping profits themselves in cooperation with merchants.[4]