Meanwhile, being granted a more powerful authority due to the contract system of kokushi (provincial governors), kokushi often executed confiscation on grounds of the Manor Regulation Act issued as a 'new policy' when the Emperor changed in order to increase kokugaryo (territories governed by the provincial government office) as their own territories; therefore, there were many cases that the authority of ryoke was insufficient to maintain Shoen ownership.
しかし国司請負制により権限が強化された国司は、自領のように扱いはじめた国衙領を増やすため、天皇の代替わりに際して「新政」として発布された荘園整理令を根拠とし依然として収公を進めることが多く、領家の権威だけでは荘園の所有が維持できないケースが多く見られた。