Ōkubo was a principal architect of the new Meiji state, working almost single-handedly during the critical period from 1868 to 1871 to consolidate the government. Ōkubo's political philosophy was pragmatic and centered on strengthening the Japanese state. He was a gradualist regarding constitutional government, believing Japan was not yet ready for full democracy. In an 1873 paper, he advocated for a limited monarchy based on a constitution, where ultimate power would be shared between the ruler and the people, but with the Emperor retaining significant authority. His concept of an assembly was primarily consultative. While he employed authoritarian methods, his goal was national survival and modernization, making him a key figure in establishing the foundations for a modern, centralized Japan, rather than a simple defender of absolutism. His economic philosophy was centered on
fukoku kyōhei, with strong government patronage for industrial development to ensure national strength.
Early reforms and establishment of Tokyo To inspire confidence in the new administration, Ōkubo arranged a military review of coalition
han troops in Kyoto in January 1868. He accepted a post in the Home Affairs department within the
Shichika (Seven Offices) administrative structure established in February 1868. Ōkubo advocated the transfer of the imperial capital from Kyoto. He first proposed
Osaka, partly to remove the court from undesirable influences. Despite opposition, the Emperor moved to Osaka temporarily. After the surrender of
Edo Castle in May 1868, Ōkubo pressed for the former shogunal capital to become the new imperial seat. Edo was renamed
Tokyo in September 1868, and the Emperor made it his permanent abode in the spring of 1869. The move was logical due to Edo's existing infrastructure, strategic location, and human resources. Ōkubo had a limited role in drafting the
Charter Oath (April 1868), a fundamental statement of policy for the new government, though he supported it as a means to unite the nation and secure financial backing for the government.
Abolition of feudalism A major step towards centralization was the
hanseki hōkan (return of the land and population registers by the
daimyō to the Emperor).
Kido Takayoshi initiated the idea, and Ōkubo, despite initial hesitation about the timing, eventually supported it, recognizing its necessity for imperial rule. In March 1869, Satsuma,
Chōshū,
Tosa, and
Hizen offered their fiefs to the Emperor, and other
han followed. The
daimyō were reappointed as
chihanji (imperial governors) of their former domains. Ōkubo's primary interest shifted to improving the quality of government personnel. He advocated sending promising
kuge and samurai abroad to study, leading to the dispatch of figures like
Saionji Kinmochi. He also focused on reforming the Satsuma
han government to bring it into closer alignment with the central government. The culmination of these efforts was the
haihan chiken (abolition of
han and establishment of prefectures) in August 1871. This decisive move, largely orchestrated by Ōkubo, Kido, and Saigō, dismantled the feudal structure and brought the entire country under direct central government control. Regular
han troops were disbanded, and token forces remained. Ōkubo's role as the "master schemer" and "resolute tactician" was crucial to this reform.
Iwakura Mission and domestic policy in San Francisco, 1872. From left:
Kido Takayoshi,
Yamaguchi Naoyoshi,
Iwakura Tomomi,
Itō Hirobumi, and Ōkubo. Ōkubo was a key member of the
Iwakura Mission (1871–1873), which toured the United States and Europe as a vice ambassador. Its primary aim was to sound out treaty powers on revising the
unequal treaties, though it failed in this objective. A secondary objective was to observe Western culture and institutions. Ōkubo took his two sons, Hikonoshin and Nobukuma, to enroll them in Western schools. He was deeply impressed by British industrial progress and particularly by his meeting with
Otto von Bismarck in
Prussia in March 1873. Bismarck's emphasis on national strength and
Realpolitik reinforced Ōkubo's own convictions about the path Japan should follow. After attempts to initiate treaty revision in the United States proved premature, Ōkubo and
Itō Hirobumi had to be sent back to Japan to obtain the proper credentials, delaying the mission for four months. During Ōkubo's absence, the caretaker government, influenced by Saigō Takamori, moved towards a military expedition against Korea (
Seikanron). Upon his return in May 1873, Ōkubo, along with Kido (who had also returned changed by his experiences abroad), strongly opposed the Korean venture. The ensuing conflict was not merely about foreign policy, but represented a struggle between military expansionists led by Saigō and state-building bureaucrats led by Ōkubo and Kido. Ōkubo argued passionately that Japan's priority must be internal development and modernization (
naichi dai-ichi shugi ron) before embarking on foreign adventures. His seven-point memorial detailed the risks of war, including civil disturbances, economic bankruptcy, depletion of gold reserves, Russian and English interference, and diversion from treaty revision. The ensuing debate led to a government crisis in October 1873, resulting in the resignation of Saigō and his supporters. The split prompted other leaders who had also left the government, such as
Itagaki Taisuke, to begin a popular movement for a national assembly. Concerned that a government unchecked by law gave only an illusion of strength and that arbitrary rule invited popular revolt, Ōkubo privately circulated his views on establishing a constitution in late 1873.
Home Minister and modernization drive Ōkubo assumed the post of
Home Minister (
Naimu-kyō) on 29 November 1873, a newly established ministry that became the "heart and center of the domestic bureaucracy." From this position, Okubo emerged as the dominant figure within the Meiji regime. The Home Ministry had two main bureaus: the
keihōryō (police bureau) for civil control and the
kangyōryō (industrial promotion bureau). Before leaving on the Iwakura Mission, Ōkubo had put
Matsukata Masayoshi in charge of a new Bureau of Industrial Production. As Home Minister, he championed a policy of government-led industrialization (
shokusan kōgyō), drawing on England's mercantilist past. He established agricultural schools (such as the Komaba Agricultural School, precursor to
Tokyo University of Agriculture), experimental stations (like the Mita agricultural experimental station and the
Shinjuku stock-breeding center), promoted the textile industry (wool and silk filatures), and supported the shipping industry, notably the
Mitsubishi Kaisha. He was also responsible for suppressing dissent. After the
Saga Rebellion (January–March 1874), led by
Etō Shinpei, Ōkubo personally directed its suppression, demonstrating his willingness to use force.
Formosan Expedition The
Formosan Expedition of 1874 presented another major crisis. After Ryukyuan sailors were killed by Taiwanese aborigines in 1871, Japan sought redress. Ōkubo, initially focused on internal affairs, was pressured into supporting a punitive expedition, partly as a diversion for disaffected samurai. Despite foreign protests (particularly British and American) and Kido's resignation over the issue, Ōkubo sanctioned the expedition led by
Saigō Tsugumichi in May 1874. When China protested, Ōkubo traveled to
Peking in August 1874 as minister plenipotentiary. Through tense negotiations, skillfully using foreign diplomats (especially British minister
Thomas Wade) as intermediaries, Ōkubo secured a settlement in October 1874. China recognized Japan's action as just and paid an
indemnity, implicitly acknowledging Japan's
suzerainty over the
Ryukyu Islands.
Later years and challenges The
Osaka Conference of 1875 was initiated by Ōkubo and
Itō Hirobumi to bring Kido and
Itagaki Taisuke back into the government and achieve a coalition. The compromise resulted in the establishment of the
Genrōin (Senate), the Daishin-in (Supreme Court), and the Conference of Prefectural Governors, steps towards a more representative government, though Ōkubo ensured that real power remained with the
Dajōkan. However, Ōkubo also authored restrictive press and
libel laws in June 1875 to curb criticism of the government. Continued samurai discontent culminated in the
Satsuma Rebellion (1877), led by Saigō Takamori. Ōkubo, as the central figure in the government, directed the suppression of the rebellion, which, though costly, ultimately crushed the last major feudal resistance to the Meiji regime. He viewed the rebellion as a great misfortune but was grateful it occurred when the government was strong enough to handle it. ==Assassination==