The basic format of the kokushi (provincial governors) system was not different from that of ritsuryo law even during the Heian period, but when the position of kokushi turned into a salaried one, and yonin, who are kokushi who would not go to their place of appointment, increased, provincial administration was performed by rusudokoro (the center for all local government administration in a province) or zaichokanjin (local district officials).
国司制度は、基本の形式は平安時代になっても律令法と変りはなかったが、国司の職が封禄と化し、任地におもむかない遥任の国司が増加するにつれて、諸国の行政は留守所あるいは在庁官人が行うようになった。