However, after the late eighth century, as henko-sei (the organization of the people) by the Ritsuryo and domination over the citizens by Handen Shuju ho (the law of periodic reallocations of rice land) gradually loosened, the mechanism of domination and organization of people by the gunji class collapsed, and there were established relations in which children of native kokushi who were newly called the rich and powerful class, gunji, influential farmers and other people turned many citizens into their private slaves by suiko (government loans made to peasants).
しかし8世紀末以降、律令による編戸制、班田収授法による公民支配が次第に弛緩していくのと並行して郡司層による民の支配と編成の機構は崩壊し、新たに富豪と呼ばれる土着国司子弟、郡司、有力農民らが出挙によって多くの公民を私的隷属関係の下に置く関係が成立していく。