A sub-plot in TPM is that the Senate has become a massive, lumbering bureaucratic machine. The original plan was
- Blockade Naboo
- Use bureaucracy, as well as various Senate allies, to drag the process out (as they note, the blockade was completely legal)
- Force a compliant (and resource-starved) Naboo into submission via treaty
Valorum clearly knows this too, so he sends the non-bureaucratic Jedi in to force a resolution. The Jedi aren't there to play diplomatic games, nor are they on the Federation's dole. The Jedi will get results, and quickly. As such, Sidious tells the Trade Federation to skip to Step 3 via invasion. Oh, and kill the Jedi.
We see this come back into play later in the movie, when Amidala is told by Palpatine(Sidious) that the bureaucracy is what's holding things up in her quest to save Naboo (from the final cut screenplay)
PALPATINE: ...the Republic is not what it once was. The Senate is full
of greedy, squabbling delegates. There is no interest in the common
good. I must be frank, Your Majesty, there is little chance the Senate
will act on the invasion.
AMIDALA: Chancellor Valorum seems to think there is hope.
PALPATINE: If I may say so, Your Majesty, the Chancellor has little
real power... he is mired by baseless accusations of corruption. The
bureaucrats are in charge now.
AMIDALA: What options have we?
PALPATINE: Our best choice would be to push for the election of a
stronger Supreme Chancellor. One who will take control of the
bureaucrats, and give us justice. You could call for a vote of no
confidence in Chancellor Valorum.
AMIDALA: He has been our strongest supporter?
PALPATINE: Our only other choice would to be to submit a plea to the
AMIDALA: The courts take even longer to decide things than the Senate.
Our people are dying, Senator... We must do something quickly to stop
PALPATINE: To be realistic, Your Majesty, I think we're going to have
to accept Federation control for the time being.
AMIDALA: That is something I cannot do.
Later in the Senate (emphasis mine)
PALPATINE: Supreme Chancellor, delegates of the Senate. A tragedy has
occurred which started with the taxation of trade routes, and has now
engulfed our entire planet in the oppression of the Trade Federation.
A second box rushes into the center of the Senate. It is filled with
Federation trade barons led by LOTT DOD, the Senator for the
LOTT DOD: This is outrageous! I object to the Senator's statements!
VALORUM: The Chair does not recognize the Senator from the Trade
Federation at this time. Please return to your station.
LOTT DOD reluctantly moves back to his place.
PALPATINE: To state our allegations, I present Queen Amidala, recently
elected ruler of Naboo, who speaks on our behalf.
QUEEN AMIDALA stands and addresses the assembly. There is some
AMIDALA: Honorable representatives of the Republic, I come to you
under the gravest of circumstances. Naboo system has been invaded by
the droid armies of the Trade...
LOTT DOD: I object! There is no proof. This is incredible. We
recommend a commission be sent to Naboo to ascertain the truth.
A third box representing Malastare moves into the center of the room.
AKS MOE, the Ambassador, addresses the convention.
AKS MOE: The Congress of Malastare concurs with the honorable delegate
from the Trade Federation. A commission must be appointed.
VALORUM: The point...
VALORUM confers with several of his AIDES and VICE CHAIRMAN MAS
AMEDDA. PALPATINE whispers something to the QUEEN.
PALPATINE: Enter the bureaucrats, the true rulers of the Republic, and
on the payroll of the Trade Federation, I might add. This is where
Chancellor Valorum's strength will dissapear.
VALORUM: The point is conceded ... will you defer your motion to allow
a commission to explore the validity of your accusations?
QUEEN AMIDALA is angry but remains composed.
AMIDALA: (angrily) I will not defer... I have come before you to
resolve this attack on our sovereignty now. I was not elected to watch
my people suffer and die while you discuss this invasion in a
committee. If this body is not capable of action, I suggest new
leadership is needed... I move for a "vote of no confidence"... in
Chancellor Valorum's leadership.
Here we see an attempt to go back to the original Step 2.
- Appoint a committee, where the Federation ensures their allies are in the majority
- "Investigate" Naboo. Hide the droid army, ensure that only capitulators and terrified citizenry are shown to the committee, make everything look like the situation is normal
- The committee reports back that it's all OK. The Senators know it's not as a whole, but they can't ignore the committee either
In the meantime, massive numbers of Naboo citizens are suffering and perishing. Through back channels, pressure will be brought to bear on Amidala to sign a treaty.