Those people who wanted to end Tokugawa rule did not envision a new government or a new society; they merely sought the transfer of power from Edo to Kyoto while retaining all their feudal prerogatives. Instead, a profound change took place. The emperor emerged as a national symbol of unity in the midst of reforms that were much more radical than had been envisioned.
The first reform was the promulgation of the Charter Oath in 1868, a general statement of the aims of the Meiji leaders to boost morale and win financial support for the new government. Its five provisions consisted of establishment of deliberative assemblies, involvement of all classes in carrying out state affairs, freedom of social and occupational mobility, replacement of "evil customs" with the "just laws of nature," and an international search for knowledge to strengthen the foundations of imperial rule. Implicit in the Charter Oath was an end to exclusive political rule by the bakufu and a move toward more democratic participation in government. To implement the Charter Oath, an eleven-article constitution was drawn up. Besides providing for a new Council of State, legislative bodies, and systems of ranks for nobles and officials, it limited office tenure to four years, allowed public balloting, provided for a new taxation system, and ordered new local administrative rules.
The Meiji government assured the foreign powers that it would abide by the old treaties negotiated by the bakufu and announced that it would act in accordance with international law. Mutsuhito, who was to reign until 1912, selected a new reign title- -Meiji, or Enlightened Rule--to mark the beginning of a new era in Japanese history. To further dramatize the new order, the capital was relocated from Kyoto, where it had been situated since 794, to Tokyo (Eastern Capital), the new name for Edo. In a move critical for the consolidation of the new regime, most daimyo voluntarily surrendered their land and census records to the emperor, symbolizing that the land and people were under the emperor's jurisdiction. Confirmed in their hereditary positions, the daimyo became governors, and the central government assumed their administrative expenses and paid samurai stipends. The han were replaced with prefectures in 1871, and authority continued to flow to the national government. Officials from the favored former han, such as Satsuma, Choshu, Tosa, and Hizen, staffed the new ministries. Formerly out-of-favor court nobles and lower-ranking but more radical samurai replaced bakufu appointees, daimyo, and old court nobles as a new ruling class appeared.
Inasmuch as the Meiji Restoration had sought to return the emperor to a preeminent position, efforts were made to establish a Shinto-oriented state much like the state of 1,000 years earlier. An Office of Shinto Worship was established, ranking even above the Council of State in importance. The kokutai ideas of the Mito school were embraced, and the divine ancestry of the imperial house was emphasized. The government supported Shinto teachers, a small but important move. Although the Office of Shinto Worship was demoted in 1872, by 1877 the Home Ministry controlled all Shinto shrines and certain Shinto sects were given state recognition. Shinto was at last released from Buddhist administration and its properties restored. Although Buddhism suffered from state sponsorship of Shinto, it had its own resurgence. Christianity was also legalized, and Confucianism remained an important ethical doctrine. Increasingly, however, Japanese thinkers identified with Western ideology and methods.
The Meiji oligarchy, as the new ruling class is known to historians, was a privileged clique that exercised imperial power, sometimes despotically. The members of this class were adherents of kokugaku and believed they were the creators of a new order as grand as that established by Japan's original founders. Two of the major figures of this group were Okubo Toshimichi (1832-78), son of a Satsuma retainer, and Satsuma samurai Saigo Takamori (1827-77), who had joined forces with Choshu, Tosa, and Hizen to overthrow the Tokugawa. Okubo became minister of finance and Saigo a field marshal; both were imperial councillors. Kido Koin (1833- 77), a native of Choshu, student of Yoshida Shoin, and coconspirator with Okubo and Saigo, became minister of education and chairman of the Governors' Conference and pushed for constitutional government. Also prominent were Iwakura Tomomi (1825-83), a Kyoto native who had opposed the Tokugawa and was to become the first ambassador to the United States, and Okuma Shigenobu (1838-1922), of Hizen, a student of Rangaku, Chinese, and English, who held various ministerial portfolios, eventually becoming prime minister in 1898.
To accomplish the new order's goals, the Meiji oligarchy set out to abolish the Tokugawa class system through a series of economic and social reforms. Bakufu revenues had depended on taxes on Tokugawa and other daimyo lands, loans from wealthy peasants and urban merchants, limited customs fees, and reluctantly accepted foreign loans. To provide revenue and develop a sound infrastructure, the new government financed harbor improvements, lighthouses, machinery imports, schools, overseas study for students, salaries for foreign teachers and advisers, modernization of the army and navy, railroads and telegraph networks, and foreign diplomatic missions.
Difficult economic times, manifested by increasing incidents of agrarian rioting, led to calls for social reforms. In addition to the old high rents, taxes, and interest rates, the average citizen was faced with cash payments for new taxes, military conscription, and tuition charges for compulsory education. The people needed more time for productive pursuits while correcting social abuses of the past. To achieve these reforms, the old Tokugawa class system of samurai, farmer, artisan, and merchant was abolished by 1871, and, even though old prejudices and status consciousness continued, all were theoretically equal before the law. Actually helping to perpetuate social distinctions, the government named new social divisions: the former daimyo became nobility, the samurai became gentry, and all others became commoners. Daimyo and samurai pensions were paid off in lump sums, and the samurai later lost their exclusive claim to military positions. Former samurai found new pursuits as bureaucrats, teachers, army officers, police officials, journalists, scholars, colonists in the northern parts of Japan, bankers, and businessmen. These occupations helped stem some of the discontent this large group felt; some profited immensely, but many were not successful and provided significant opposition in the ensuing years).
Additionally, between 1871 and 1873, a series of land and tax laws were enacted as the basis for modern fiscal policy. Private ownership was legalized, deeds were issued, and lands were assessed at fair market value with taxes paid in cash rather than in kind as in pre-Meiji days and at slightly lower rates.
Undeterred by opposition, the Meiji leaders continued to modernize the nation through government-sponsored telegraph cable links to all major Japanese cities and the Asian mainland and construction of railroads, shipyards, munitions factories, mines, textile manufacturing facilities, factories, and experimental agriculture stations. Much concerned about national security, the leaders made significant efforts at military modernization, which included establishing a small standing army, a large reserve system, and compulsory militia service for all men . Foreign military systems were studied, foreign advisers were brought in, and Japanese cadets sent abroad to European and United States military and naval schools.
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