I will often champion the Bureaucrat as being great for cases that he's useful (Gardens or Dukes mainly), like I did
here. However, Bureaucrat doesn't at first appear to have potential that Merchant Ship provides, but I see your point, and I'll get to that
below.
I am of late giving Farming Village too much credit for both its ooh-shiny value and it's currently my pet-card. I'll concede that while I was playing both Smugglers and Merchant Ship, I'm not sure +actions was really necessary (big deal if they collide once in a game).
The game was so close that the potential value of a 2nd Merchant Ship may have been outweighed by the
incremental advantage of Bureaucrat maintaining my decks treasure ratio while potentially top-decking VP on my opponent's deck - maybe that was the incremental advantage I really needed.