Although he originally opposed the idea of a constitution, he changed his policy in response to the growing movement for civic rights and freedom and also to the opinion of Kowashi INOUE. He also devoted himself to the establishment of the Constitution of the Empire of Japan.
立憲問題では初めは制定に反対であったが、自由民権運動の高まりや井上毅の具申を受けて方針をかえ、大日本帝国憲法の制定に向けて尽力した。