The Spanish Government was not satisfied with these concessions, and expressed a desire for still others. The Holy See yielded even then, and set to work to examine the situation and to study all possible concessions. While matters thus stood in abeyance, the Spanish Government suddenly, without warning or intimation, proceeded to settle the questions without the concurrence of the Holy See. A Royal Decree was issued with the intention of enforcing the Royal Order of 1902, whereby religious communities would be obliged to fulfil certain formalities before they could obtain legal existence and recognition. This Royal Order had never been enforced because it had not been agreed upon by both parties. The Holy See protested in an official note to the Government of Madrid, and requested that the matter be suspended pending the negotiations already going on between the Vatican and Spain. The answer of the Government, only a few days later, was the passing of a new decree giving free practice to alien religions. As this was also one of the subjects under discussion, the Holy See again protested. The Government, however, was not yet satisfied, and accordingly in the following Speech from the Throne, uttered many anti-clerical notes, especially its determination to put forward the projected law against the religious orders. The Holy See, in the face of these violations of diplomatic procedure, declared that if the Government continued to carry on its unilateral measures, it would be useless and impossible to proceed with the negotiations. But the Spanish Government only replied that it could not recall the measures it had already passed. By this trick Canalejas hoped to extend the rule of the civil power over a matter which pertains to mixed questions, and this in open contempt of the Concordat and the most elementary laws of diplomacy. It hoped to create the impression that the Holy See yields nothing, and in that way place it in the unfavorable light of being blindly obstinate. Moreover, it strove to place the Holy See in a position so humiliating that it would be obliged to reject its own overtures and accept whatever the opposition might grant. He hoped to discourage the protests of Catholic Spain by rendering the attitude of the Vatican ridiculous. Canalejas prided himself upon being the champion of freedom of conscience. It was a play to the gallery in the hope of gaining popular encouragement from abroad. It was an effort to stir up antipathy to the Holy See and embittering public opinion against it. The game of the Premier was detected, and he at once began to complain of the intransigent attitude of the Holy See, and accused the Holy Father of an intention to threaten. He spoke of "justice" and the "defence of the rights of Spain." He deprecated any idea of violating the Concordat or of wishing to break with the Vatican. His whole policy in fact was but a miserable attempt to hoodwink the Spanish people.