Well, it is interesting that the incident of the cession of a part of Japanese territory to Kudara presents us an obvious proof that the policy maker in the ancient Japanese government was not the Tennou but a political officer, the Oomuraji. For Ootomo-no-Kanamura, being the Oomuraji still in the reign of Keitai-Tennou, lost his position on the charge of acceptance of bribes from Kudara. The public at that time rumored that he was a detestable traitor who handed their territory over a foreign country. Judging from this situation, it seems that crucial decisions for the national fate, such as cession of a part of territory, would be made by single or plural persons who held political powers.
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