Since Emperor Saga tried to change the system of kansatsushi (inspectors in charge of surveying the misery of the people) that had been established during Emperor Heizei's reign, it enraged the Retired Emperor Heizei and there occurred a conflict called nisho chotei (two Imperial Courts existing at the same time).
平城上皇が天皇のときに設置した観察使の制度を嵯峨天皇が改めようとしたことから平城上皇がこれを怒り二所朝廷といわれる対立が起こる。