Especially in the Nara period when the nation was governed based on the Ritsuryo system, the system of kokuga (the region the provincial governor of the Ritsuryo system ruled), which was managed by kokushi shitokan (four officials of the provincial governor), extended individual dominance by person throughout areas ruled by the Imperial court by preparing census while taking advantage of authorities originated from chieftaincy of the Gunji (local magistrates) who were scion of the regional chiefs.
特に律令制に基づいて統治が行われた奈良時代は、古代からの地方首長の末裔である郡司層の首長権に由来する権威を利用しつつ、国司四等官の主催する国衙機構が、戸籍を編纂して朝廷の統治領域全体に個別の人別支配の網を張り巡らしていた。