Although Cecrops is said to have brought the tribes of Attica under one government, yet it will be remembered that he had divided the territory into twelve districts, with a fortress or capital to each. By degrees these several districts had become more and more distinct from each other, and in many cases of emergency it was difficult to obtain a general assembly or a general concurrence of the people; nay, differences had often sprung up between the tribes, which had been adjusted, not as among common citizens, by law, but as among jealous enemies, by arms and bloodshed. It was the master policy of Theseus to unite these petty commonwealths in one state. He applied in person, and by all the arte of persuasion, to each tribe: the poor he found ready enough to listen to an invitation which promised them the shelter of a city, and the protection of a single government from the outrage of many tyrants: the rich and the powerful were more jealous of their independent, scattered, and, as it were, feudal life. But these he sought to conciliate by promises that could not but flatter that very prejudice of liberty which naturally at first induced them to oppose his designs. He pledged his faith to a constitution which should leave the power in the hands of the many. He himself, as monarch, desired only the command in war, and in peace the guardianship of laws he was equally bound to obey. Some were induced by his persuasions, others by the fear of his power, until at length he obtained his object. By common consent he dissolved the towns'-corporations and councils in each separate town, and built in Athens one common prytaneum or council-hall, existent still in the time of Plutarch. He united the scattered streets and houses of the citadel, and the new town that had grown up along the plain, by the common name of "Athens," and instituted the festival of the Panathenaea, in honour of the guardian goddess of the city, and as a memorial of the confederacy. Adhering then to his promises, he set strict and narrow limits to the regal power, created, under the name of eupatrids or well-born, an hereditary nobility, and divided into two orders (the husbandmen and mechanics) the remainder of the people. The care of religion, the explanation of the laws, and the situations of magistrates, were the privilege of the nobles. He thus laid the foundation of a free, though aristocratic constitution--according to Aristotle, the first who surrendered the absolute sway of royalty, and receiving from the rhetorical Isocrates the praise that it was a contest which should give most, the people of power, or the king of freedom. As an extensive population was necessary to a powerful state, so Theseus invited to Athens all strangers willing to share in the benefits of its protection, granting them equal security of life and law; and he set a demarcation to the territory of the state by the boundary of a pillar