Some dispute concerning the matter having arisen between these two men, both of whom were Quakers, Penn was chosen to settle the controversy and decided in favor of Fenwick, who had emigrated with a large party of Friends to the coast of Delaware and founded the town of Salem. Penn’s connection with the American province did not end here. Billing, having become embarrassed in his affairs, was forced to resign his interest in the territory to his creditors, who at his request appointed Penn as one of the administrators. This office, though not altogether agreeable to him, he felt obliged to accept in the interest of the many Quakers already settled there; but if his model community were to be founded there, he must have a free hand and not be hampered by any regulations or restrictions which might be made by Sir George Carteret as joint owner of the province of New Jersey. He therefore directed his efforts to securing a division of the territory, in which he finally succeeded, Carteret taking the eastern part, while the western, being sold to the highest bidder for the benefit of Billing’s creditors, came into the sole possession of the Quakers. For this new State of West New Jersey, Penn drew up a constitution, the chief provision of which was the right of free worship and liberty of conscience. The legislative power was placed almost entirely in the hands of the people, to be exercised by chosen representatives, while all matters of law and justice were intrusted to a judiciary the members of which were to serve for a period of not more than two years. Copies of this constitution were printed and widely circulated among the Quakers, together with a full description of the soil, climate, and natural products of the new colony. The result was amazing. Penn’s home, then at Worminghurst in Sussex, was literally besieged by would-be emigrants seeking for information, in spite of the fact that in these published pamphlets he had strongly urged that no one should leave his native land without sufficient cause and not merely from idle curiosity or love of gain. Two companies were now organized to assist in the work of emigration. The first ship carried over two hundred and thirty colonists, and two others soon following, it became necessary to establish at once a provisional government, consisting of Penn himself with three other members chosen from the two companies.