People who directly took hold and control of people in the local society instead, were those in the wealthy class and the powerful farmer class who grew from the younger people of class of former Gunji and native Kokushi and so on, and came to conduct a large-scale farmland management in the qualifications of Tato (a field manager) or Fumyo (a local tax manager), and they came to be controlled by Zuryo who was a head of Kokushi transferred to the locale.
代わって在地社会の民衆を直接把握して支配下に置いたのは、元郡司層や土着国司子弟などから成長し、田堵や負名の資格で大規模な農地経営を行うようになっていった富豪の輩、有力百姓階層であり、彼らを現地赴任国司の筆頭者たる受領が支配するようになっていく。