Amid a deepened confrontation between 'the retired Empress Koken and Dokyo' and 'the Emperor Junnin and Nakamaro', Nakamaro felt his position was threatened and had himself appointed as Totoku (a governor general) to obtain more military power.
孝謙上皇・道鏡と淳仁天皇・仲麻呂との対立は深まり、危機感を抱いた仲麻呂は天平宝字8年（764年）、都督に任じ、さらなる軍事力の掌握を企てた。