When Dokyo assumed the position of Daijodaijin Zenji (a master of Zen Buddhism and a grand minister of state) acting as a guardian for Emperor Koken on April 4, 765, cultivation of new lands was becoming quite fierce, and Daijokanpu (official documents issued by Daijokan, the grand council of state) that prohibited the ownership of cultivated lands was promulgated.
道鏡が孝謙天皇の後見で太政大臣禅師に就くと、天平神護元年3月6日(旧暦)（765年）に、墾田が加熱し過ぎてきたので墾田私有を禁止する旨の太政官符が発布された。