During the Heian period, as Ryoge no kan (class outside of the Ritsuryo system) increased, office organizations regulated by Ritsuryo became in names only, and obtaining information necessary for actual government affairs became difficult with kyaku (administrative regulations) that is organized by traditional authority.
平安時代に令外官が増加すると律令で定められた職制が有名無実と化し、従来の官庁ごとに配列されている格では実際の政務には必要な情報の入手が困難となった。