The theory claimed that a kudashibumi (a document issued by a superior or official) issued by the Mandokoro, or a migosho (a document intended to pass on information regarding decisions made by nobles of Third Rank or higher) functioned in place of the Emperor's senshi (imperial decree), politics were carried out at Mandokoro rather than the Daijokan (Grand council of State), and the Imperial Court was only in charge of rituals and ceremonies.
また、政所の下文や御教書が天皇の宣旨に替わって機能して太政官に代わって政所で政務が行われ、朝廷は儀式のみを行ったという説があった。