In this dual capacity, the "shugo" lords had to compete with other landed samurai in the provinces for land they administered as governors, but did not personally own. Like the noble proprietors, a single "shugo" lord owned lands in widely dispersed areas in several provinces. His power was not built upon personal ownership of land like the territorial lords (daimyō) of the sixteenth century, but upon the loyalties of the local samurai through ties of vassalage. There was much greater coercive potential exercised by the territorial lords of the sixteenth century, because their ties of vassalage were based on their ownership of the lands around them: as owners they could dispense with the land as they saw fit, getting rid of recalcitrant vassals without much ado. In the fourteenth century, the "shugo" lords could not claim province wide ownership of territory: first, the concept of personal provincial ownership was as yet undeveloped; second, they never amassed large amounts of personal property, relying rather on using the traditional framework of estate lands and public lands to enfoeff their vassals. This is the central enigma of the fourteenth century: the fragmentation and dissolution of the estate system, and the disappearance of the civil administration coincided with the proliferation of private lands, but the external framework of the estate system ("shōen") and the public lands system (kokugaryo), though devoid of content, still remained. Given the fragmentation, it was the intermediary ties of "shugo" vassalage, and the "shugo" role as provincial governor, that helped to integrate the disparate forces to some degree.