It is clear that from the first Napoleon had intended that Portugal should refuse the ignominious orders which he had given to the Prince-Regent. If he had only been wishing to complete the extension of the Continental System over all Southern Europe, the form of obedience which had been offered him by the Portuguese government would have been amply sufficient. But he was aiming at annexation, and not at the mere assertion of his suzerainty over Portugal. The fact that he began to mass troops at Bayonne before he commenced to threaten the Regent is sufficient proof of his intentions. An army was not needed to coerce the Portuguese: for it was incredible that in the then condition of European affairs they would dare to risk war with France and Spain by adhering too stiffly to the cause of England. The Regent was timid and his submission was certain; but Napoleon took care to dictate the terms that he offered in such an offensive form that the Portuguese government would be tempted to beg for changes of detail, though it sorrowfully accepted the necessity of conceding the main point--war with England and the acceptance of the Continental System. The Prince-Regent, as might have been expected, made a feeble attempt to haggle over the more ignominious details, and then Napoleon withdrew his ambassador and let loose his armies. Shortly after Junot had crossed the Bidassoa there was signed at Fontainebleau the celebrated secret treaty which marks the second stage of the Emperor’s designs against the Peninsula. It was drawn up by Duroc, Napoleon’s marshal of the palace, and Eugenio Izquierdo, the agent of Godoy. For the official ambassador of Spain in Paris, the Prince of Masserano, was not taken into the confidence of his master[13]. All delicate matters were conducted by the favourite’s private representative, an obscure but astute personage, the director of the Botanical Gardens at Madrid, whose position was legitimized by a royal sign-manual giving him powers to treat as a plenipotentiary with France. ‘Manuel is your protector: do what he tells you, and by serving him you serve me,’ the old king had said, when giving him his commission. [13] Talleyrand declares in his _Mémoires_ (i. 349) that Napoleon kept Champagny, his own minister of foreign affairs, in equal darkness.