Emperor Heizei
Early the next year, Emperor Heizei moved to the old capital at Heijō-kyō. Angered by Saga's attempt to change the regional inspection system he'd established, the retired emperor set up a competing court. Kusuko and Nakanari, plotting Heizei's complete restoration to the throne, encouraged the opposition between the two. Moreover, Kusuko's position as "Naishi-no-Kami" gave her control over the issuance of , a means of transmittance for imperial orders to the "Daijō-kan". At the time, retired emperors were able to involve themselves in politics in the same way as the current sovereign, as ex-Empress Kōken did during the reign of Emperor Junnin, and so Heizei was able to command the "Daijō-kan" via Kusuko's office.