The "kanrei" council system was intermediary, because it tied together the military side of the regime with the bureaucratic. The very conflict that emerged with the Kannō Incident had to do with the separation and clash between the military vassal institutions controlled by Takauji and the bureaucratic-judicial institutions controlled by Tadayoshi. With the emergence of the "kanrei" council system, the "shugo" lords who represented the military side of the administration were tied firmly to the bureaucracy, as important players in the creation of policy.