This article traces the process in which the cost of construction and repair of prefectural office buildings came to be covered by local taxation, in order to examine how regional public authority changed under the new local government system established by the tri-legislation (redistricting, parliamentary, taxation) enacted in 1878. Before the promulgation of Edict No. 48 by the Grand Council of State(Dajokan 太政官)in November 1880, which stipulated that the construction and repair of prefectural office buildings be paid for by local taxes instead of allocations from the national treasury, prefectural governors had treated prefectural office buildings as the representation of national authority. As such, these buildings were kept at a distance from local resi-dents, and the affairs related to them revealed a power structure built on a clear dichotomy between the bureaucracy(
kan 官)and the people(
min 民).
Edict No. 48, the final implementation of which was marked by many prefectural governors rushing to apply between November 1880 and July 1881, essentially provided that the construction and repair of prefectural office buildings were paid for by the prefectures, and any payment allocated from the national treasury was considered to be a subsidy, in the case that local taxes were insufficient to cover the costs. However, as shown by the cases of Ibaraki and Gunma Prefectures, whenever a popular consensus on the part of a portion of a prefecture’s localities could not be gained through “deliberations” in the prefectural assembly, subsidies from the central government would be approved. Although such “popular consensus” was at times created after the fact, in order to create it, prefectural administrators would make proactive appeals about the buildings, like how their maintenance was directly linked to the welfare of local residents, attempting to overcome the
kan-min power structure dichotomy by creating an image as “shepherds” watching over the people. After the Edict was implemented, a perception of government buildings as symbols of “our home prefecture” rather than of national authority gradually took hold both within the prefectural assemblies and public opinion.
Meanwhile, administration appeals regarding government buildings, other than winning budget allocations for their construction and maintenance, calling for
kan-min conciliation under the guidance of “shepherds of the people” began to be publicly recognized on a wider and wider scope. It was in this way that a shift in tax burden increased the importance of dependence on wide public consensus in policy implementation through a transition from centrally funded and operated construction and maintenance of government buildings to “public affairs” on the provincial level, thus transforming the nature of authority over such projects from “national” to “public”.
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