It was assumed that Kokufu adopted a threefold structure including a squarely demarcated line in the outer fold, placing Kokucho at the center of the lot surrounded by the government offices called Kokuga.
方形の外郭線を持つ都市が国府で、その中心に国衙という役所群、さらにその要に国庁があるという三重構造が想定された。