However, at the end of the seventh century, Busokuten (Wu Zetian) created ingaikan (government officials outside of the Ritsuryo system) who were outside of the fixed number of regular government positions in order to control other nobilities and recruit competent Kakyo (also known as keju; examinations for Chinese state bureaucrats).
しかし、7世紀末の武則天は、貴族層をおさえ、有能な科挙官僚を登用するため、律令の定員外の員外官を設けた。