Until then, local administration functioned under zuryo's authority, and the manors that had been developed by gunji or rich and powerful persons could exist by obtaining approval from the kokuga (kokumensho [the manor whose obligations were exempted by kokushi]).
それまでは、受領の権限のもとで地方行政が展開しており、郡司・富豪層らが開発してきた荘園も国衙の承認によって存立していた（国免荘）。