This change was conducted to establish the new ruling system by delegating some power to local influential people under the control of the head of the provincial governors (the head of Kokushi, Zuryo), who were dispatched there: the system was called the dynasty state system.
この方針転換は、民間の有力者に権限を委譲してこれを現地赴任の筆頭国司（受領）が統括することにより新たな支配体制を構築するものであり、これを王朝国家体制という。