Kokushi (provincial governors) in charge of local administration focused attention on gunji (district managers) and the rich and powerful class, and changed management of the province to control through local management by gunji (district managers) and persons in the rich and powerful class.
地方行政にあたる国司は、郡司・富豪層に着目し、従来の個別人身支配の代わりに郡司・富豪層の在地経営を通じた支配へと転換していった。