What that involved is plain when we observe that such edifices were all constructed by forced labour. These governors usually possessed large domains, acquired during their period of office. The Court endeavoured to check them by despatching inspectors (ansatsu-shi) to examine and report on current conditions; but that device availed little. Moreover, the provincial governors exercised the power of appointing and dismissing the district governors (gunshi) in their provinces, although this evil system had been prohibited in the time of Gemmyo. In connexion, too, with the rice collected for public purposes, there were abuses. This rice, so long as it lay in the official storehouses, represented so much idle capital. The provincial governors utilized it by lending the grain to the farmers in the spring, partly for seed purposes and partly for food, on condition that it should be paid back in the autumn with fifty per cent, increment. Subsequently this exorbitant figure was reduced to thirty per cent. But the result was ruin for many farmers. They had to hand over their fields and houses or sell themselves into bondage. Thus, outlaws, living by plunder, became a common feature of the time, and there arose a need for guards more capable than those supplied by the system of partial conscription. Hence, in the reign of Shomu, the sons and brothers of district governors (gunshi) proficient in archery and equestrianism were summoned from Omi, Ise, Mino, and Echizen, and to them was assigned the duty of guarding the public storehouses in the provinces. At the same time many men of prominence and influence began to organize guards for their private protection. This was contrary to law, but the condition of the time seemed to warrant it, and the authorities were powerless to prevent it. The ultimate supremacy of the military class had its origin in these circumstances. The Government itself was constrained to organize special corps for dealing with the brigands and pirates who infested the country and the coasts.