proposal that an Imperial Council (the later Reichsregiment) should be created, he agreed and welcomed the participation of the Estates, but he alone should be the one who appointed members and the council should function only during his campaigns. He supported modernizing reforms (which he himself pioneered in his Austrian lands), but also wanted to tie it to his personal control, above all by permanent taxation, which the Estates consistently opposed. In 1504, when he was strong enough to propose his own ideas of such a Council, the cowered Estates tried to resist. At his strongest point though, he still failed to find a solution for the common tax matter, which led to disasters in Italy later. Stollberg-Rilinger notes that had the Common Penny been successful, modern governmental structures would likely emerge on the Empire's level, but that was why it failed as it was not in the interest of territorial lords. Meanwhile, he explored Austria's potential as a base for Imperial power and built his government largely with officials drawn from the lower aristocracy and burghers in Southern Germany. Whaley notes that the real foundation of his Imperial power lay with his networks of allies and clients, especially the less powerful Estates, who helped him to recover his strength in 1502 – his first reform proposals as King of the Romans in 1486 were about the creation of a network of regional unions. According to Whaley, "More systematically than any predecessor, Maximilian exploited the potential of regional leagues and unions to extend imperial influence and to create the possibility of imperial government in the Reich." To the Empire, the mechanisms involving such regional institutions bolstered the Land Piece (Ewiger Landfriede) declared in 1495 as well as the creation of the Reichskreise (Imperial Circles, which would serve the purpose of organize imperial armies, collect taxes and enforce orders of the imperial institutions: there were six at first; in 1512, the number increased to ten), between 1500 and 1512, although they were only fully functional some decades later. While Brady describes Maximilian's thinking as "dynastic and early modern", Heinz Angermeier (also focusing on his intentions at the 1495 Diet) writes that for Maximilian, "the first politician on the German throne", dynastic interests and imperial politics had no contradiction. Rather, the alliance with Spain, imperial prerogatives, anti-Ottoman agenda, European leadership and inner politics were all tied together. In Austria, Maximilian defined two