Under the Daiho code a more elaborate system of administrative organization was effected than that conceived by the Daika reformers. In the Central Government there were two boards, eight departments, and one office, namely: (1). The Jingi-kwan, or Board of Religion (Shinto). This stood at the head of all, in recognition of the divine origin of the Imperial family. A Japanese work (Nihon Kodaiho Shakugi) explains the fundamental tenet of the nation's creed thus: "If a State has its origin in military prowess, which is essentially human, then by human agencies also a State may be overthrown. To be secure against such vicissitudes a throne must be based upon something superior to man's potentialities. Divine authority alone fulfils that definition, and it is because the throne of Japan had a superhuman foundation that its existence is perennial. Therefore the Jingi-kwan stands above all others in the State." In another, book (Jingi-ryo) we find it stated: "All the deities* of heaven and earth are worshipped in the Jingi-kwan. On the day of the coronation the Nakatomi performs service to the deities of heaven and the Imibe makes offerings of three kinds of sacred articles."
*The eight Kami specially worshipped in the Jingi-kwan were Taka-mi-musubi, Kammi-musubi, Tamatsume-musubi, Iku-musubi, Taru-musubi, Omiya no me, Miketsu, and Koto-shiro-nushi.
Thus, though the models for the Daiho system were taken from China, they were adapted to Japanese customs and traditions, as is proved by the premier place given to the Jingi-kwan. Worship and religious ceremonial have always taken precedence of secular business in the Court of Japan. Not only at the central seat of government did the year commence with worship, but in the provinces, also, the first thing recorded by a newly appointed governor was his visit to the Shinto shrines, and on the opening day of each month he repaired thither to offer the gohei.* Religious rites, in short, were the prime function of government, and therefore, whereas the office charged with these duties ranked low in the Tang system, it was placed at the head of all in Japan.
*Angular bunches of white paper stripes, representing the cloth offerings originally tied to branches of the sacred cleyera tree at festival time.