The government consulted foreign advisors and, referring to the legislation systems of the advisors' home coutries, established a governing policy based on the premise that the Constitution should be in force in Gaichi which were included in Japan's territories (Southern Sakhalin, Taiwan, and Korea) and should not be in force in Gaichi which were not included in Japan's territories (the Kwantung Leased Territory and the South Sea Islands).
当時の政府は、外国人顧問から聴いた母国の植民地法制を参考にしつつ、日本の領域(国家)たる外地（南樺太、台湾、朝鮮）には憲法の効力が及ぶのに対し、日本の領土ではない外地（関東州、南洋群島）には憲法の効力が及ばないという考え方を前提にして、統治方針を決めた。