Specifically, they were drafted on the basis of an opinion paper titled 'reorganization of the local administration system' which Toshimichi OKUBO submitted to the Daijo-daijin (Grand minister of state) Sanetomi SANJO on March 11, 1878, and they were then adopted after the deliberations and resolutions of the second chihokan kaigi (assembly of prefectural governors) and the Genroin (the Chamber of Elders, Japan).
具体的には、明治11年（1878年）3月11日に大久保利通が三条実美太政大臣に提出した意見書「地方之体制等改正之儀」上申に基き、第2回地方官会議と元老院(日本)の審議及び議決を経て制定された。