However, the retired Emperor Takakura, who was governing by Insei (rule by the retired Emperor) in place of the Emperor Antoku who was still a young child, did not abandon Heian-kyo (ancient Kyoto), but built a rikyu (an imperial villa) in Fukuhara and insisted that a Dairi (Imperial Palace) and Hassho (eight ministries and agencies) were not needed there.
しかし当時幼い安徳天皇に代わり院政を行なっていた高倉上皇は平安京（京都）を放棄せず、福原には離宮を建て、内裏や八省は必要ないとした。