In the meantime, with the strengthened authority of Shugo (provincial constable), aiming for the establishment of the Shugo-ryogoku system (the system that a Shugo dominates a manor), Shugo lowered the social position of jito and kokujin (local samurai) of Kamakura period to hikan (low-level bureaucrat) and began to take over kokuga (provincial government offices) and their territory.
一方で守護の権力が強大化し、守護領国制の成立を目指して、在庁官人を含む鎌倉期の地頭、国人を被官化し、国衙や彼らの所持していた領地を掌握し始めた。