In both Emperor Junnin and Empress Koken (later, Empress Shotoku) periods, there was a significant upsurge in the number of Ryoge no kan posts (Zogusho (ministry of making and mending palaces), Chokushisho (Bureau of Edicts), Nijusho (Ministry of Royal Pages), Hoogushiki (a post of domestic governing institution for Dokyo)) which caused political instability.
淳仁・孝謙（称徳）両天皇の時代には大規模な令外官（造宮省・勅旨省・内豎省・法王宮職など）が乱立され政治が不安定になった。