From the beginning of the year 1784, Frederick devoted himself to the task of organising a confederacy of German States to defend the existing constitution. This was a far more arduous undertaking than any negotiation with a single Great Power. It was always difficult to induce a number of naturally jealous neighbours to combine. In 1784 the difficulty was increased threefold. The danger from Austria was general and prospective, rather than specific and imminent. It might be averted, indeed, by maintaining an equality of strength between Prussia and Austria, but the princes would beware of embarking upon a course which might make Prussia the stronger of the two. Frederick, moreover, was compelled to entrust a great share in the negotiations to his ministers. His chief agent, Hertzberg, had dared to form political ideas of his own. In the hope that a _rapprochement_ with Austria would lead to further gains in Poland, he quietly obstructed the measures of the aged King. The inactivity of the Prussian ministers might have delayed the confederation indefinitely had not all Germany been shocked by the sudden revival of the Emperor’s designs upon Bavaria. Again, just as seven years earlier, Austria corrupted the Elector Palatine without the privity of his heir and again her acquisition of the Electorate was paraded before the world as an accomplished fact. In the first days of January, 1785, Rumianzow, the Russian agent at the German Diet, suddenly presented to the Duke of Zweibrücken a joint demand of Austria and Russia for his acceptance of a bargain to which the Elector Palatine had already consented. The substance of this was that Bavaria was assigned to the Emperor in return for the Austrian Netherlands, the title of King, and handsome rewards in money. “I, who am already more than half beyond this world,” complained Frederick to his brother, “am forced to double my wisdom and activity, and continually keep in my head the detestable plans that this curséd Joseph begets afresh with every fresh day. I am condemned to enjoy no rest before my bones are covered with a little earth.” His energy, none the less, was as great as the crisis demanded. Austria was always hampered in time of war because the distant Netherlands were hers as much as because the adjacent Bavaria was not. The exchange was therefore most alluring, but the opposition of Prussia to the scheme was so stout as to evoke disclaimers from all the parties to it. Catherine protested that she would countenance no violation of the Peace of Teschen. Louis XVI., whom Frederick believed to have been bribed by the offer of Luxemburg, stated in answer to his protests that the Emperor renounced the scheme. Before the end of February, 1785, the danger was past.