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In page History of Paraguay:

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When the Paraguayan junta learned that a porteño diplomat was coming to Asunción, they realized that they were not competent to negotiate. In November 1812, junta members invited Francia to take charge of foreign policy. The junta agreed to place half of the army and half of the available munitions under Francia's command. Francia now controlled the government. When the Argentine envoy — Nicolás de Herrera — arrived in May 1813, he was told that all important decisions had to wait for the meeting of a Paraguayan Congress in late September.[citation needed]