Henry II wanted all freemen to be equally protected by one system of law and government. So he opened his court, the Royal Court, to all people of free tenure. A court of five justices professionally expert in the law, traveled with the King, and on points of difficulty consulted with him. Justices began to be more than presiding officers; they, instead of those attending, rendered the judgments. The chief court was in Westminster, where the weightiest decisions were made. Other professional itinerant justices appeared periodically in all counties of the nation to hear certain criminal and civil cases and to hear citizens' private civil suits [common pleas]. They came to perform many other tasks, including promulgating and enforcing new legislation, seeking out encroachments on royal rights, reviewing the local communities' and officials' performance of their public duties, imposing penalties for failure to do them or for corruption, gathering information about outlaws and non-performance of homage, and assessing feudal escheats to the crown, wardships to which the king was entitled, royal advowsons, feudal aids owed to the King, tallages of the burgesses, and debts owed to the Jews. The decision-making of itinerant justices on circuits begins the process which makes the custom of the Royal Court the common law of the nation. The county courts, where the travelling justices heard all manner of business in the counties, adopted the doctrines of the Royal Court, which then acquired an appellate jurisdiction. The itinerant justices came from the same small group of royal justices who were on the Royal Court and the Exchequer, which was headed by the justiciar. Difficult cases were decided by the king and wise men of his council. Tenants of manors and of escheats in royal hands, who had been excused from the monthly county court, were required to appear. Side by side with the reeve and four men of the rural townships appeared the twelve legal men of each of the chartered boroughs which owed no suit to the ordinary county court. In the formation of the jury of presentment for criminal cases, each hundred sent twelve legal men and each township four to make report to the justices. Women did not serve on juries. Compurgation was not used; accused persons were sent directly to the ordeal. In 1194, twelve knights or legal men from each hundred answer before any itinerant justice for their hundred in all criminal, civil, and fiscal cases. All who are bound to attend before the itinerant justices are, in the forest counties, compelled to attend the forest courts. The Royal Court was chiefly concerned with 1) the due regulation and supervision of the conduct of local government, 2) the ownership and possession of land held by free tenure ("free tenement" was decided by justices to be one held for life or one held heritably [a fee]), 3) the repression of serious crime, and 4) the relations between the lay and the ecclesiastical courts.