However, Ito was frustrated because he had not heard a word from the new government, and once he caught a news that the lord of the domains (Satsuma, Choshu, Tosa, Hizen) submitted the memorial to the emperor that they would return their lands and people to the emperor, Ito planned to submit the petition with his subordinates, Nakajima (Assistant Judicial Officer), Tanaka (Assistant Judicial Officer), Ga (Scholar of English, served for prefecture as an advisor), and also Mutsu who happened to get to know Ito joined them, and they all submitted in their five joint names "kokuzekomoku" which was composed of the six points.
だが、一向に新政府からの音沙汰がないのに不満を抱いた伊藤は、薩長土肥の藩主が版籍奉還の上表を行ったという報を聞きつけ、部下である県判事の中島、権判事の田中、同じく英学者で県出仕（顧問に相当する）の何と相談して建白書の提出を図り、これに偶々伊藤と面識を持った陸奥も加わって5人連名で提出したのが6ヶ条からなる『国是綱目』であった。