In the Heian period, Rakuchu was under the control of the Kyoshiki (Capital Bureau) and kebiishi (a police and judicial chief), but Hendo (Rakugai) was considered to be under the control of the kokufu (provincial office) of Yamashiro Province.
平安時代には洛中は京職・検非違使の管轄であるが、辺土（洛外）は山城国国府の管轄と考えられていた。