In 1681, William Penn, who wanted to give Quakers a land of religious freedom, founded Pennsylvania and extended freedom of religion to all citizens. Penn strongly desired access to the sea for his Pennsylvania Province and leased what then came to be known as the "Lower Counties on the Delaware" from the Duke. Penn established representative government and briefly combined his two possessions under one General Assembly in 1682. However, by 1704 the Province of Pennsylvania had grown so large that their representatives wanted to make decisions without the assent of the Lower Counties and the two groups of representatives began meeting on their own, one at Philadelphia, and the other at New Castle. Penn and his heirs remained proprietors of both and always appointed the same person Governor for their Province of Pennsylvania and their territory of the Lower Counties. The fact that Delaware and Pennsylvania shared the same governor was not unique. From 1703 to 1738, New York and New Jersey shared a governor. Massachusetts and New Hampshire also shared a governor for some time.