He was considered an employed foreigner (a behind-the-scenes player) at the Department of the Interior, and his official role was to conduct research and submit reports, and the authority to decide and execute projects remained with the Japanese government.
あくまで内務省にとって彼はお雇い外国人（＝裏方）であり、彼の任務は調査と報告書提出のみであってそれを決定し遂行するのは日本側である、という事情が根本的な背景にあった。