LOCAL ADMINISTRATIVE MACHINERY

For administrative purposes the capital was divided into two sections, the Eastern and the Western, which were controlled by a Left Metropolitan Office and a Right Metropolitan Office, respectively. In Naniwa (Osaka) also, which ranked as a city of special importance, there was an executive office called the Settsu-shoku--Settsu being the name of the province in which the town stood--and in Chikuzen province there was the Dazai-fu (Great Administrative Office), which had charge of foreign relations in addition to being the seat of the governor-generalship of the whole island of Kyushu. In spite of its importance as an administrative post, the Dazai-fu, owing to its distance from the capital, came to be regarded as a place of exile for high officials who had fallen out of Imperial favour.

The empire was divided into provinces (kuni) of four cla.s.ses--great, superior, medium, and inferior,--and each province was subdivided into districts (kori) of five cla.s.ses--great, superior, medium, inferior, and small. The term "province" had existed from remote antiquity, but it represented at the outset a comparatively small area, for in the time of the Emperor Keitai (A.D. 507-531), there were 144 kuni. This number was largely reduced in the sequel of surveys and re-adjustments of boundaries during the Daika era (645-650), and after the Daiho reforms (701-704) it stood at fifty-eight, but subsequently, at an uncertain date, it grew to sixty-six and remained permanently thus. The kori (district) of the Daika and Daiho reforms had originally been called agata (literally "arable land"), and had been subdivided into inaki (granary) and mura (village). A miyatsuko had administered the affairs of the kuni, holding the office by hereditary right, and the agata of which there were about 590, a frequently changing total as well as the inaki and the mura had been under officials called nushi. But according to the Daika and Daiho systems, each kuni was placed under a governor (kokushi), chosen on account of competence and appointed for a term of four years; each district (kori) was administered by a cho (chief).

MILITARY INSt.i.tUTIONS

In the capital there were three bodies of guards; namely, the emon-fu (gate guards); the sa-eji-fu and the u-eji-fu (Left and Right watches). There was also the sa-ma-ryo and the u-ma-ryo (cavalry of the Left and of the Right), and the sa-hyogo-ryo and the u-hyogo-ryo (Left and Right Departments of Supply). These divisions into "left"

and "right," and the precedence given to the left, were derived from China, but it has to be observed in j.a.pan's case that the metropolis itself was similarly divided into left and right quarters. Outside the capital each province had an army corps (gundan), and one-third of all the able-bodied men (seitei), from the age of twenty to that of sixty, were required to serve with the colours of an army corps for a fixed period each year. From these provincial troops drafts were taken every year for a twelve-month's duty as palace guards (eji) in the metropolis, and others were detached for three-years'

service as frontier guards (saki-mori) in the provinces lying along the western sea board.

The army corps differed numerically according to the extent of the province where they had their headquarters, but for each thousand men there were one colonel (taiki) and two lieutenant-colonels (shoki); for every five hundred men, one major (gunki); for every two hundred, one captain (koi); for every one hundred, a lieutenant (ryosui), and for every fifty, a sergeant-major (taisei). As for the privates, they were organized in groups of five (go); ten (kwa), and fifty (tai).

Those who could draw a bow and manage a horse were enrolled in the cavalry, the rest being infantry. From each tai two specially robust men were selected as archers, and for each kwa there were six pack-horses. The equipment of a soldier on campaign included a large sword (tachi) and a small sword (katana or sashi-zoe) together with a quiver (yanagui or ebira); but in time of peace these were kept in store, the daily exercises being confined to the use of the spear, the catapult (ishi-yumi) and the bow, and to the practice of horsemanship. When several army corps were ma.s.sed to the number of ten thousand or more, their staff consisted of a general (shogun), two lieutenant-generals (f.u.ku-shogun), two army-inspectors (gunkan), four secretaries (rokuji), and four sergeants (gunso). If more than one such force took the field, the whole was commanded by a general-in-chief.

APPOINTMENT AND PROMOTION

The law provided that appointment to office and promotion should depend, not upon rank, but upon knowledge and capacity. Youths who had graduated at the university were divided into three categories: namely, those of eminent talent (shusai); those having extensive knowledge of the Chinese cla.s.sics (meikei), and those advanced in knowledge (shinshi). Official vacancies were filled from these three cla.s.ses in the order here set down, and promotion subsequently depended on proficiency. But though thus apparently independent of inherited rank, the law was not so liberal in reality. For admission to the portals of the university was barred to all except n.o.bles or the sons and grandsons of literati. Scions of n.o.ble families down to the fifth rank had the right of entry, and scions of n.o.bles of the sixth, seventh, and eighth ranks were admitted by nomination.

OFFICIAL EMOLUMENT

Remuneration to officials took the form of revenue derived from lands and houses, but this subject can be treated more intelligently when we come to speak of the land.

THE PEOPLE

According to the Daiho laws one family const.i.tuted a household. But the number of a family was not limited: it included brothers and their wives and children, as well as male and female servants, so that it might comprise as many as one hundred persons. The eldest legitimate son was the head of the household, and its representative in the eyes of the law. A very minute census was kept. Children up to three years of age were cla.s.sed as "yellow" (kwo); those between three and sixteen, as "little" (sho); those members of the household between sixteen and twenty, as "middling" (chu); those between twenty and sixty, as "able-bodied" (tei), and those above sixty as "old" or "invalids," so as to secure their exemption from forced labour (kayaku or buyaku). The census was revised every six years, two copies of the revised doc.u.ment being sent to the privy council (Daijo-kwan) and one kept in the district concerned. It was customary, however, to preserve permanently the census of every thirtieth year* for purposes of record, and moreover the census taken in the ninth year of Tenchi's reign (670)** was also kept as a reference for personal names. To facilitate the preservation of good order and morality, each group of five households was formed into an "a.s.sociation of five" (goho or gonin-gumi) with a recognized head (hocho); and fifty households const.i.tuted a village (sato or mura), which was the smallest administrative unit. The village had a mayor (richo), whose functions were to keep a record of the number of persons in each household; to encourage diligence in agriculture and sericulture; to reprove, and, if necessary, to report all evil conduct, and to stimulate the discharge of public service. Thus the district chief (guncho or gunryo) had practically little to do beyond superintending the richo.

*This was called gohi-seki; i.e., comparative record for a period of five times six years.

**It was designated the Kogoanen-seki, from the cyclical name of the year.

THE LAND

The land laws of the Daiho era, like those of the Daika, were based on the hypothesis that all land throughout the country was the property of the Crown, and that upon the latter devolved the responsibility of equitable distribution among the people. Rice being the chief staple of diet and also the standard of exchange, rice-lands--that is to say, irrigated fields--were regarded as most important. The law--already referred to in connexion with the Daika era but here cited again for the sake of clearness--enacted that all persons, on attaining the age of five, became ent.i.tled to two tan of such land, females receiving two-thirds of that amount. Land thus allotted was called kubun-den, or "sustenance land" (literally, "mouth-share land"). The tan was taken for unit, because it represented 360 bu (or ho), and as the rice produced on one bu const.i.tuted one day's ration for an adult male, a tan yielded enough for one year (the year being 360 days).*

*The bu in early times represented 5 shaku square, or 25 square shaku (1 seki = 1 foot very nearly); but as the shaku (10 sun) then measured 2 sun (1 sun = 1.2 inch) more than the shaku of later ages, the modern bu (or tsubo) is a square of 6 shaku side, or 36 square shaku, though in actual dimensions the ancient and the modern are equal.

The theory of distribution was that the produce of one tan served for food, while with the produce of the second tan the cost of clothes and so forth was defrayed. The Daika and Daiho legislators alike laid down the principle that rice-fields thus allotted should be held for a period of six years only, after which they were to revert to the Crown for redistribution, and various detailed regulations were compiled to meet contingencies that might arise in carrying out the system. But, of course, it proved quite unpracticable, and though that lesson obviously remained unlearned during the cycle that separated the Daika and the Daiho periods, there is good reason to think that these particular provisions of the land law (Den-ryo) soon became a dead letter.

A different method was pursued, however, in the case of uplands (as distinguished from wet fields). These--called onchi*--were parcelled out among the families residing in a district, without distinction of age or s.e.x, and were held in perpetuity, never reverting to the Crown unless a family became extinct. Such land might be bought or sold--except to a Buddhist temple--but its tenure was conditional upon planting from one hundred to three hundred mulberry trees (for purposes of sericulture) and from forty to one hundred lacquer trees, according to the grade of the tenant family.

Ownership of building-land (takuchi) was equally in perpetuity, though its transfer required official approval, but dwellings or warehouses--which in j.a.pan have always been regarded as distinct from the land on which they stand--might be disposed of at pleasure. It is not to be inferred from the above that all the land throughout the Empire was divided among the people. Considerable tracts were reserved for special purposes. Thus, in five home provinces (Go-Kinai) two tracts of seventy-five acres each were kept for the Court in Yamato and Settsu, and two tracts of thirty acres each in Kawachi and Yamashiro, such land being known as kwanden (official fields), and being under the direct control of the Imperial Household Department.

*Called also yenchi--These uplands were regarded as of little value compared with rice-fields.

There were also three other kinds of special estates, namely, iden, or lands granted to mark official ranks; shokubunden, or lands given as salary to office-holders; and koden, or lands bestowed in recognition of merit. As to the iden, persons of the four Imperial ranks received from one hundred to two hundred acres, and persons belonging to any of the five official grades--in each of which there were two cla.s.ses--were given from twenty to two hundred, females receiving two-thirds of a male's allotment. Coming to salary lands, we find a distinction between officials serving in the capital (zaikyo) and those serving in the provinces (zaige). Among the former, the princ.i.p.al were the prime minister (one hundred acres), the ministers of the Left and Right (seventy-five acres each) and the great councillor (fifty acres). As for provincial officials, the highest, namely, the governor of Kyushu (who had his seat at the Dazai-fu), received twenty-five acres, and the lowest, one and a half acres. Governors of provinces--which were divided into four cla.s.ses (great, superior, medium, and inferior)--received from four acres to six and a half acres; an official (dai-hanji), corresponding to a chief-justice, had five acres; a puisne justice (sho-hanji), four acres; an officer in command of an army corps, four acres, and a literary professor (hakushi), four acres. Grants of land as salaries for official duties were made even to post-towns for the purpose of defraying the expense of coolies and horses for official use.

Finally, there were koden, or lands bestowed in recognition of distinguished public services. Of such services four grades were differentiated: namely, "great merit" (taiko), for which the grant was made in perpetuity; "superior merit" (joko), which was rewarded with land held for three generations; "medium merit" (chuko), in which case the land-t.i.tle had validity to the second generation only, and "inferior merit" (geko), where the land did not descend beyond a son or a daughter. It is worthy of note that in determining the order of eligibility for grants of sustenance land (kubunden), preference was given to the poor above the rich, and that the officials in a province were allowed to cultivate unoccupied land for their own profit.

TAXATION

There were three kinds of imposts; namely, tax (so), forced service (yo or kayaku) and tribute (cho). The tax was three per cent, of the gross produce of the land--namely, three sheaves of rice out of every hundred in the case of a male, and two out of sixty-six in the case of a female. The tribute was much more important, for it meant that every able-bodied male had to pay a fixed quant.i.ty of silk-fabric, pongee, raw-silk, raw-cotton, indigo (675 grains troy), rouge (the same quant.i.ty), copper (two and a quarter lbs.), and, if in an Imperial domain, an additional piece of cotton cloth, thirteen feet long. Finally, the forced service meant thirty days' labour annually for each able-bodied male and fifteen days for a minor. Sometimes this compulsory service might be commuted at the rate of two and a half feet of cotton cloth for each day's work. Exemption from forced labour was granted to persons of and above the grade of official rank and to their families through three generations; to persons of and above the fifth grade and to their families for two generations; to men of the Imperial blood; to the sick, the infirm, the deformed, females, and slaves. Forced labourers were allowed to rest from noon to 4 P.M. in July and August. They were not required to work at night. If they fell sick so as to be unable to labour out of doors, they were allowed only half rations. If they were taken ill on their way to their place of work, they were left to the care of the local authorities and fed at public charge. If they died, a coffin was furnished out of the public funds, and the corpse, unless claimed, was cremated, the ashes being buried by the wayside and a mark set up. Precise rules as to inheritance were laid down. A mother and a step-mother ranked equally with the eldest son for that purpose, each receiving two parts; younger sons received one part, and concubines and female children received one-half of a part. There were also strict rules as to the measure of relief from taxation granted in the event of crop-failure.

IMPORTANCE OF DAIHO LAWS

What has been set down above const.i.tutes only a petty fraction of the Daiho legislation, but it will suffice to furnish an idea of j.a.panese civilization in the eighth century of the Christian era a civilization which shared with that of China the credit of being the most advanced in the world at that time.

ENGRAVING: HATSUNE-NO-TANA (A Gold-lacquered Stand or Cabinet)

ENGRAVING: STATUES OF SHAKA AND TWO BOSATSUS IN THE KONDO OF THE HORYU-JI

CHAPTER XVII

THE NARA EPOCH

THE FORTY-THIRD SOVEREIGN, THE EMPRESS GEMMYO (A.D. 708-715)

THE Empress Gemmyo, fourth daughter of the Emperor Tenchi and consort of Prince Kusakabe, was the mother of the Emperor Mommu, whose accession had been the occasion of the first formal declaration of the right of primogeniture (vide Chapter XV). Mommu, dying, willed that the throne should be occupied by his mother in trust for his infant son--afterwards Emperor Shomu.

REMOVAL OF THE CAPITAL TO NARA

In ancient times it was customary to change the locality of the Imperial capital with each change of sovereign. This custom, dictated by the Shinto conception of impurity attaching to sickness and death, exercised a baleful influence on architectural development, and const.i.tuted a heavy burden upon the people, whose forced labour was largely requisitioned for the building of the new palace. Kotoku, when he promulgated his system of centralized administration, conceived the idea of a fixed capital and selected Naniwa. But the Emperor Tenchi moved to Omi, Temmu to Asuka (in Yamato) and the Empress Jito to Fujiwara (in Yamato). Mommu remained at the latter place until the closing year (707) of his reign, when, finding the site inconvenient, he gave orders for the selection of another. But his death interrupted the project, and it was not until the second year of the Empress Gemmyo's reign that the Court finally removed to Nara, where it remained for seventy-five years, throughout the reigns of seven sovereigns. Nara, in the province of Yamato, lies nearly due south of Kyoto at a distance of twenty-six miles from the latter.

History does not say why it was selected, nor have any details of its plan been transmitted. To-day it is celebrated for scenic beauties--a s.p.a.cious park with n.o.ble trees and softly contoured hills, sloping down to a fair expanse of lake, and enshrining in their dales ancient temples, wherein are preserved many fine specimens of j.a.panese art, glyptic and pictorial, of the seventh and eighth centuries. Nothing remains of the palace where the Court resided throughout a cycle and a half, nearly twelve hundred years ago, but one building, a storehouse called Shoso-in, survives in its primitive form and const.i.tutes a landmark in the annals of j.a.panese civilization, for it contains specimens of all the articles that were in daily use by the sovereigns of the Nara epoch.

j.a.pANESE COINS

There is obscurity about the production of the precious metals in old j.a.pan. That gold, silver, and copper were known and used is certain, for in the dolmens,--which ceased to be built from about the close of the sixth century (A.D.)--copper ear-rings plated with gold are found, and gold-copper images of Buddha were made in the reign of the Empress Suiko (605), while history says that silver was discovered in the island of Tsushima in the second year of the Emperor Temmu's reign (674). From the same island, gold also is recorded to have come in 701, but in the case of the yellow and the white metal alike, the supply obtained was insignificant, and indeed modern historians are disposed to doubt whether the alleged Tsushima gold was not in reality brought from Korea via that island. On the whole, the evidence tends to show that, during the first seven centuries of the Christian era, j.a.pan relied on Korea mainly, and on China partially, for her supply of the precious metals. Yet neither gold, silver, nor copper coins seem to have been in anything like general use until the Wado era (708-715).

Coined money had already been a feature of Chinese civilization since the fourth century before Christ, and when j.a.pan began to take models from her great neighbour during the Sui and Tang dynasties, she cannot have failed to appreciate the advantages of artificial media of exchange. The annals allege that in A.D. 677 the first mint was established, and that in 683 an ordinance prescribed that the silver coins struck there should be superseded by copper. But this rule did not remain long in force, nor have there survived any coins, whether of silver or of copper, certainly identifiable as antecedent to the Wado era. It was in the year of the Empress Gemmyo's accession (708) that deposits of copper were found in the Chichibu district of Musashi province, and the event seemed sufficiently important to call for a change of year-name to Wado (refined copper). Thenceforth, coins of copper--or more correctly, bronze--were regularly minted and gradually took the place of rice or cotton cloth as units of value.

It would seem that, from the close of the seventh century, a wave of mining industry swept over j.a.pan. Silver was procured from the provinces of Iyo and Kii; copper from Inaba and Suo, and tin from Ise, Tamba, and Iyo. All this happened between the years 690 and 708, but the discovery of copper in the latter year in Chichibu was on comparatively the largest scale, and may be said to have given the first really substantial impetus to coining. For some unrecorded reason silver pieces were struck first and were followed by copper a few months later. Both were of precisely the same form--round with a square hole in the middle to facilitate threading on a string--both were of the same denomination (one won), and both bore the same superscription (Wado Kaiho, or "opening treasure of refined copper"), the shape, the denomination, and the legend being taken from a coin of the Tang dynasty struck eighty-eight years previously. It was ordered that in using these pieces silver should be paid in the case of sums of or above four mon, and copper in the case of sums of or below three won, the value of the silver coin being four times that of the copper. But the silver tokens soon ceased to be current and copper mainly occupied the field, a position which it held for 250 years, from 708 to 958. During that interval, twelve forms of sen*

were struck. They deteriorated steadily in quality, owing to growing scarcity of the supply of copper; and, partly to compensate for the increased cost of the metal, partly to minister to official greed, the new issues were declared, on several occasions, to have a value ten times as great as their immediate predecessors. Concerning that value, the annals state that in 711 the purchasing power of the mon (i.e., of the one-sen token) was sixty go of rice, and as the daily ration for a full-grown man is five go, it follows that one sen originally sufficed for twelve days' sustenance.**

*The ideograph sen signified originally a "fountain," and its employment to designate a coin seems to have been suggested by an idea a.n.a.logous to that underlying the English word "currency."

**"At the present time the wages of a carpenter are almost a yen a day. Now the yen is equal to 1000 mon of the smaller sen and to 500 mon of the larger ones, so that he could have provided himself with rice, if we count only 500 mon to the yen, for sixteen years on the wages which he receives for one day's labour in 1900." (Munro's Coins of j.a.pan.)

Much difficulty was experienced in weaning the people from their old custom of barter and inducing them to use coins. The Government seems to have recognized that there could not be any effective spirit of economy so long as perishable goods represented the standard of value, and in order to popularize the use of the new tokens as well as to encourage thrift, it was decreed that grades of rank would be bestowed upon men who had saved certain sums in coin. At that time (711), official salaries had already been fixed in terms of the Wado sen. The highest received thirty pieces of cloth, one hundred hanks of silk and two thousand mon, while in the case of an eighth-cla.s.s official the corresponding figures were one piece of cloth and twenty mon.* The edict for promoting economy embodied a schedule according to which, broadly speaking, two steps of executive rank could be gained by ama.s.sing twenty thousand mon and one step by saving five thousand.

*These figures sound ludicrously small if translated into present-day money, for 1000 mon go to the yen, and the latter being the equivalent of two shillings, 20 mon represents less then a half-penny. But of course the true calculation is that 20 mon represented 240 days' rations of rice in the Wado schedule of values.

Observing that the fundamental principle of a sound token of exchange was wholly disregarded in these Wado sen, since their intrinsic value bore no appreciable ratio to their purchasing power, and considering also the crudeness of their manufacture, it is not surprising to find that within a few months of their appearance they were extensively forged. What is much more notable is that the Wado sen remained in circulation for fifty years. The extraordinary ratio, however, by which copper and silver were linked together originally, namely, 4 to 1, did not survive; in 721 it was changed to 25 to 10, and in the following year to 50 to 10. Altogether, as was not unnatural, the early treatment of this coinage question by j.a.panese statesmen showed no trace of scientific perception. The practice, pursued almost invariably, of multiplying by ten the purchasing power of each new issue of sen, proved, of course, enormously profitable to the issuers, but could not fail to distress the people and to render unpopular such arbitrarily varying tokens.

The Government spared no effort to correct the latter result, and some of the devices employed were genuinely progressive. In that epoch travellers had to carry their own provisions, and not uncommonly the supply ran short before they reached their destination, the result sometimes being death from starvation on the roadside. It was therefore ordered that in every district (korf) a certain portion of rice should be stored at a convenient place for sale to wayfarers, and these were advised to provide themselves with a few sen before setting out. It is evident that, since one of the Wado coins sufficed to buy rice for twelve days' rations, a traveller was not obliged to burden himself with many of these tokens. Wealthy persons in the provinces were also admonished to set up roadside shops for the sale of rice, and anyone who thus disposed of one hundred koku in a year was to be reported to the Court for special reward. Moreover, no district governor (gunryo), however competent, was counted eligible for promotion unless he had saved six thousand sen, and it was enacted that all taxes might be paid in copper coin.

In spite of all this, however, the use of metallic media was limited for a long time to the upper cla.s.ses and to the inhabitants of the five home provinces. Elsewhere the old habit of barter continued.

THE FORTY-FOURTH SOVEREIGN, THE EMPRESS GENSHO (A.D. 715-723)

In the year 715, the Empress Gemmyo, after a reign of seven years, abdicated in favour of her daughter, Gensho. This is the only instance in j.a.panese history of an Empress succeeding an Empress.