loiting the farmers. Finally, in
806, the pursuit of productive enterprise by governors in the
provinces was once more sanctioned.

*The term "farmers," as used in the times now under consideration,
must not be interpreted strictly in the modern sense of the word. It
meant, rather, the untitled and the unofficial classes in the
provinces.

Thus, between 650 and 806, no less than five radical changes of
policy are recorded. It resulted that this vascillating legislation
received very little practical attention. Great landed estates
(shoen) accumulated in private hands throughout the empire, some
owned by nobles, some by temples; and in order to protect their
titles against the interference of the Central Government, the
holders of these estates formed alliances with the great Court nobles
in the capital, so that, in the course of time, a large part of the
land throughout the provinces fell under the control of a few
dominant families.

In the capital (Nara), on the other hand, the enormous sums
squandered upon the building of temples, the casting or carving of
images, and the performance of costly religious ceremonials gradually
produced such a state of impecuniosity that, in 775, a decree was
issued ordering that twenty-five per cent, of the revenues of the
public lands (kugaideri) should be appropriated to increase the
emoluments of the metropolitan officials. This decree spoke of the
latter officials as not having sufficient to stave off cold or
hunger, whereas their provincial confreres were living in opulence,
and added that even men of high rank were not ashamed to apply for
removal to provincial posts. As illustrating the straits to which the
metropolitans were reduced and the price they had to pay for relief,
it is instructive to examine a note found among the contents of the
Shoso-in at Nara.

STATEMENT OF MON (COPPER CASH) LENT

Total, 1700 Mon. Monthly interest, 15 per hundred.

Debtors Sums lent Amounts to be returned

Tata no Mushimaro 500 mon 605 mon, on the 6th of the 11th month;
namely, original debt, 500 mon, and
interest for 1 month and 12 days, 105 mon

Ayabe no Samimaro 700 mon 840 mon, on the 6th of the 11th month;
namely, original debt, 700 mon, and
interest for 1 month and 10 days, 140 mon

Kiyono no Hitotari 500 mon 605 mon, on the 6th of the 11