It was plain that the government would have to take more vigorous action to save its sugar program for Formosa from complete failure, so in 1905 new regulations were framed and made public. Under these rules no one could embark in the business of manufacturing sugar without first securing the official sanction of the director of the sugar bureau. A fixed territory was assigned to the newcomer with the express understanding that no other factory could be established there and that all the cane growers in the territory were obligated to sell their cane to the factory and forbidden to send it out of the district or put it to any other use. The factory owner on his side bound himself to take all the cane grown in his district, even if the supply should be greater than his needs. In order to stimulate modern methods of manufacture, the sugar bureau prohibited the grinding of cane by the growers in their buffalo mills, except by special permission. In certain sections of the island where there was no cane cultivation, large tracts of land might be granted outright to persons engaging in sugar raising and manufacture. In such cases the capacity of the factory and the period of operation was agreed upon in advance, and as soon as the land was planted to cane, the title to it passed to the factory. If, however, the owners of the factory failed to act in good faith, the undertaking was declared void and the factory dismantled. By 1911 twenty-nine large factories were in operation and nine others were being built. Every one of these establishments was new and equipped with the latest and most improved machinery. It was officially announced in November, 1910, that no further charters authorizing the forming of new sugar companies or the extending of the operations of those already in existence would be issued, the reason given being the desire to limit the production to the requirements of Japan until such a time as an outlet could be found in the markets of the world. The measure was regarded as a temporary one. The opposition of the native farmer to the new order of things was not overcome at once. Cane plantings decreased at first, but when the natives realized that cane paid them better than other crops, they gradually resumed cultivating it on the same scale as formerly, and the government bonus on Rose Bamboo cane helped matters still further.