It is said that kokushi were originally known as 'kuni no mikoto mochi' (provincial governors), and above them were the 'oho mikoto mochi' (provincial governor-generals) who were in charge of several provinces (it is said the name 'Dasaifu' (an area in Kyushu) is derived from 'oho mikoto mochi', as it shares the same Chinese characters).
また当初は国宰（くにのみこともち）という呼称されたと言われており、国宰の上には数ヶ国を統括する大宰（おほみこともち）が設置されたという（「大宰府」の語はその名残だと言われている）。