In 813 an imperial order was issued, under which provincial governors in ryoseikoku (provinces) took on the additional responsibility of managing subjected barbarians, making them civilized, and protecting and nourishing them; the following year another imperial order was issued, making the Emishi the Emperor's people.
なお、弘仁4年（813年）には令制国の国司に「俘囚専当」を兼任させて俘囚の監督と教化・保護養育に当たらせ、その翌年には蝦夷の王民化の方針を打ち出した勅令が出されている。