At that time, many problems concerned with the replacement of kokushi, such as "the procedures that were used were inadequate" and disputes between a predecessor and the successor, were caused, making it necessary to clarify the procedures for replacing a kokushi.
当時、国司交替に当たって手続きの不備や前任・後任の間の紛争が多発しており、国司交替の手続きを明確化する必要が生じていた。