actions of two government institutions, the Bureau of Archivists and the police commissioners. The Bureau served as the private secretariat of the emperor. The police commissioners served as both the police and the judiciary. The personal advisors to the emperor in the Bureau gained more and more power until they were stronger than the ministers in the Dajokan, and this weakened the authority of the Grand Council. By the end of the ninth century, power was concentrated in the hands of the Fujiwara, and they continued to dominate the leadership into the eleventh century (Hane 44-45).
After that, the authority of the central government became less important and less powerful because the leadership neglected the duties of provincial administration and could not prevent the emergence of tax-free estates. Many officials were incompetent, and this incompetence was transmitted from generation to generation
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