In competition with the ever-increasing shoen, the Kokushi assigned Daimyo tato (daimyo cultivators) to Zaicho kanjin (resident public officials) and deployed them on hand; moreover, they had Soji, Goji, and Hoji (all of which were local government officials under the ritsuryo system) appointed as local government officials.
増え続ける荘園に対抗して、国司は大名田堵を在庁官人に任命し、自らの手元に置き、さらには惣司・郷司・保司として、地方行政官とした。