From the end of the Meiji period, in the Japanese government a conventional power rotation system was implemented under the agreement called 'Joi Togo' (the agreement to take power alternately) between Taro KATSURA (from the former Choshu Domain), who was closely related to the Japanese Army and a representative figure of the domain-based forces, and Kinmochi SAIONJI (from the former court noble), who belonged to the Rikken Seiyukai (a political party organized by Hirobumi ITO, hereinafter referred to Seiyukai) (called Kei-En era after the initial characters of their names).
明治末以来、藩閥勢力の代表で陸軍に近い桂太郎（長州藩出身）と立憲政友会の西園寺公望（公家出身）が「情意投合」のもと、交互に政権を担う慣例が続いていた（桂園時代と呼ばれる）。