Nothing dismayed by his first rebuff, the audacious Fouche again intervened. This time he selected Ouvrard, a friend of Labouchere's and of his own, a man well known as a stormy petrel of intrigue, to operate insidiously through the accredited envoy, who innocently supposed his friend to be representing Napoleon's own views. There was consequently but little sense of restraint in the renewed negotiation. Virtually the entire continental situation was considered as open, and Fouche's pet scheme of an American kingdom for Louis XVIII was further amplified by the suggestion of an Anglo-French expedition to establish it. Labouchere having returned to Holland, much of the negotiation had been carried on by letter, and Napoleon, getting wind during his Belgian visit of Ouvrard's presence at the Dutch court, suspected trickery and called for the correspondence. Its very existence enraged him; that such matters should have been put in writing was compromising to his entire policy. Ouvrard afterward declared that he personally informed the Emperor of what was going on, but he could never prove it; the only possible basis which can be found for his statement consists in the seizure and confiscation about this time of some hundred and thirty American vessels lying in continental harbors; but, base as that deed was, it proves nothing and was due to another cause. It is not easy to determine whether this deed was a well-considered measure of French diplomacy, intended to arouse the pugnacity of the United States, or a temporary shift to fill empty coffers. In either case it was not intended to have a direct bearing on irregular diplomatic negotiations between England and Holland. The circumstances were a direct result of the Berlin Decree. CHAPTER XXI THE CONTINENTAL SYSTEM COMPLETED The Bayonne and Rambouillet Decrees -- Fouche Replaced by Savary -- Abdication of King Louis -- Conduct of Louis and Lucien -- Holland Incorporated into the Empire -- Napoleon's Relatives Untrue to his Interests -- French Empire at its Greatest Extent -- The Continental System as Perfected -- Discontent in Russia and in Sweden.