he same date. Here, then, was a
sufficiently precise and comprehensive body of administrative guides.
But men competent to utilize them were not readily forthcoming. The
provincial governors and even the metropolitan officials, chosen from
among men whose qualifications were generally limited to literary
ability or aristocratic influence, showed themselves incapable of
dealing with the lawless conditions existing in their districts.

This state of affairs had been noticeable ever since the reign of
Shomu (724-749), but not until the time of Saga was a remedy devised.
It took the form of organizing a body of men called kebiishi, upon
whom devolved the duty of pursuing and arresting lawbreakers. At
first this measure was on a small scale and of a tentative character.
But its results proved so satisfactory that the system was extended
from the capital to the provinces, and, in 830, a Kebiishi-cho (Board
of Kebiishi) was duly formed, the number and duties of its staff
being definitely fixed four years later. The importance attaching to
the post of chief of this board is attested by the fact that only the
emon no Kami or the hyoye no Kami* was eligible originally, the bushi
(military men) in the hereditary service of these high dignitaries
being entrusted--under the name of tsuiho-shi--with the duty of
enforcing the law against all violators. Ultimately the judicial
functions hitherto discharged by the Efu (Guard Office), the
Danjo-dai (Police Board) and the Gyobu-sho (Department of Justice)
were all transferred to the Kebiishi-cho, and the latter's orders
ranked next to Imperial decrees.

*Three corps of military guards formed part of the organization. The
senior corps were the Imperial guards (konoe): then came the military
guards (hyoye) and then the gate-guards (yemon). Each was divided
into two battalions; a battalion of the Left and a battalion of the
Right. Then there were the sa-konye and the u-konye, the sa-hyoye and
the u-hyoye, the sa-yemon and the u-yemon. These six offices were
known as roku-yefu, and the officer in chief command of each corps
was a kami.

These kebiishi and tsuiho-shi have historical importance. They
represent the unequivocal beginning of the military class which was
destined ultimately to impose its sway over the whole of Japan. Their
institution was also a distinct step towards transferring the conduct
of affairs, both military and civil, from the direct control of the
sovereign to the ha