Collins's 'The Hunger Games', Panem, formerly
known as North America, is a country split into 14 districts. Districts 1-13, and the Capitol.
The Capitol rules Panem.
District 13 was apparently destroyed in the first
rebellion against the Capitol.
This left only 12 disticts under the Capitol.
from "Panem et circenses" which means "bread and entertainment", this is a metaphor of political creation of public approval.