Oh she definitely had all of them fooled. It wasn't until that bold move with the Gungans that everyone found out. Even first-time viewers were tricked.
See, having handmaidens who could operate as both bodyguards and possible stand-ins hidden in plain sight was a security idea thought up by Captain Panaka soon after the young Queen took office. It was an old practice that had not been used in over a century on Naboo, but the practicality of it made sense. That, and it is not commonly used among royalty or high-ranking officials on a lot of planets. In fact, it seemed an odd idea for security, considering how peaceful Naboo was. But Panaka was smart in realizing that there was always a risk that his ruler could still get hurt in some way or another, regardless of how peaceful his homeworld was.
I mean, when you look at the Queen and her handmaidens, all you see is a woman with a very elaborate outfit on, with several young ladies similar in age to her, in low-key robes, silently following her around. The first thing a lot of people are gonna think is "Those are her servants, her retainers, maybe even her ladies-in-waiting." And that would be an easy assumption to make, since it's not common to see a royal or high-ranking politician without at least one personal helper of some kind. Most have their bodyguards in armor, standing discreetly off to the side, and most do not have body doubles hidden among the serving staff.
The last thing anyone's gonna think is that each one of those girls was trained in combat, espionage, and how to masquerade as the Queen. Her big costumes and white makeup help a lot, as does training all of them to talk and behave similar to her if need be. The only way the ruse could be ruined is if the chosen decoy isn't that good in diplomacy, or doesn't understand the intricacies of political discussions, as what happened with Boss Nass. Or worse, they do something the Queen would not do, and a sharp-eyed person noticed.
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