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In the late Northern Zhou Dynasty, after Emperor Wen of Sui replaced the Northern Zhou regime, he restored the Han system and re-divided the land into many small prefectures and counties for administration. This led to a significant increase in the number of officials.
Yang Shangxi was deeply concerned about this situation. Observing the sharp rise in annual expenditures, he submitted a memorial to Emperor Wen of Sui, urging him to change this 'ten sheep, nine shepherds' situation. Emperor Wen of Sui adopted his suggestion, which yielded excellent results.

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Open the tool →十羊九牧 (shí yáng jiǔ mù) is a Chinese idiom (chengyu) meaning “refers to a situation where there are too many officials for a small number of people, leading to overstaffing, inefficiency, and potential exploitation; or, it describes a scenario with too many leaders giving conflicting orders, resulting in confusion and a lack of unified direction”.
十羊九牧 is pronounced shí yáng jiǔ mù in Mandarin Chinese.
Literally, 十羊九牧 means “Ten sheep, nine shepherds”. It is used to mean “refers to a situation where there are too many officials for a small number of people, leading to overstaffing, inefficiency, and potential exploitation; or, it describes a scenario with too many leaders giving conflicting orders, resulting in confusion and a lack of unified direction”.
十羊九牧 comes from a classical Chinese story dating back to ancient China. The full story is on this page.
十头羊倒用九个人放牧。比喻官多民少,赋税剥削很重。也比喻使令不一,无所适从。