de Burgos took as his model the departments of France. While many of the borders and inclusions in the provinces may at first appear arbitrary from a historical and geographical point of view, he was operating under a set of rational criteria: area (it was intended to be possible to travel between the capital and any point in the province in a single day), population (wherever feasible, the provinces had populations between 100,000 and 400,000), and geographic coherence. The provincial division restored the traditional names of the Basque provinces and Navarre, which had been renamed in the 1822 territorial division of Spain, but few concessions were made to historic enclaves and exclaves. The most important of these that were retained were the Rincón de Ademuz (part of Valencia, but located between Teruel and Cuenca) and the Treviño enclave (part of Burgos, but surrounded by Álava); another notable exclave is Llívia (part of Gerona, but one must pass through France to reach it). The provincial division consolidated rapidly and remains with rather few changes down to the present day. This is in part because the provincial capitals all became the seats of basic government institutions. The jefes políticos would eventually be replaced by civil governors, and eventually delegates of the central government. The provincial division was followed by all branches of government and formed the basis for all future divisions and combinations. Each of Spain's municipalities (ayuntamientos) falls within a single province. In 1834, Spain was divided into legal districts (partidos judiciales); these took provincial borders into account. These legal districts later became the basis of electoral districts and tax districts. Civil health districts also followed provincial lines (though military health districts sometimes did not). By 1868 there were 463 legal districts; the number of municipalities has repeatedly risen and fallen. Conflict with the Basque districts The new design arranged by Jorge de Burgos and government officials in Madrid opened a scenario of overt confrontation with the Basque territories and institutions, who kept a separate legal and institutional status, including taxation and customs with the Spanish heartland on the Ebro. Navarre was still a semi-autonomous kingdom with its own parliament and government—the Cortes and Diputación—while Álava, Gipuzkoa and Biscay (the Basque Provinces, known also as "Biscay" up to the Peninsular War), were also autonomous. News of the central government's decision overruling native institutions spread to the Basque districts, sparking uproar and