Under the condition, the dispute regarding introduction of constitutional government system was led by Tomomi IWAKURA, Minister of the Right, who was in a passive attitude, Hirobumi ITO and Kaoru INOUE, who aimed gradual introduction (Choshu clique), and Shigenobu OKUMA (Sangi, Okura-kyo [Minister of the Treasury], from Hizen Domain), who aimed earlier introduction.
そのような状況下で、消極論者の右大臣岩倉具視を擁しながら、漸進的な伊藤博文・井上馨（長州閥）とやや急進的な大隈重信（参議・大蔵卿・肥前藩出身）を中心に運営されていた。