When Yoshiari was appointed to the chief officer of Go-kinai (five provinces close to the capital: Yamashiro Province, Yamato Province, Kawachi Province, Izumi Province, and Settsu Province) in 895, he appointed Suenaga as a monminkushi (a position temporarily established to investigate people's demand and discontent) of Yamashiro Province, and he investigated the circumstances in this province, where lands were frequently annexed by influential and powerful families or clans at that time, to make up plans for a reform of the local government and relief of peasants.
特に寛平7年（895年）に能有が五畿内諸国別当に任じられると、山城国問民苦使に任じられて、権門による土地兼併が激しい同国の実情を調査して地方行政の改革と農民救済策をまとめた。