In the meantime, kokushi who strengthened their rights by the contracting system of kokushi began to deal with Koryo as if it were their own property and appointed Tato as Zaichokanjin (the local officials in Heian and Kamakura periods) who were such as Goji (a local government of official under ritsuryo system) and hoji (an officer governing koryo, or public land) as their local government officials.
一方、国司請負制により権限が強化された国司は公領を自領のように扱いはじめ、田堵を在庁官人に任命し、郷司、保司等として地方行政官とした。