Around this time, based on the 'charter to send troops' issued by the Daijokan, the kokuga military system had been established in which provincial governors formed forces with provincial samurais to hunt down and catch 'outlaws.'
当時、太政官から発給された「追捕官符」を根拠に、国司が国内の武士を軍事力として編成し、「凶党」の追捕に当たるという国衙軍制が成立していた。