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The basic framework of the local governing system in Goryeo Dynasty was developed in year 1018 A.D. (the 9th year of reign of King Hyeonjong;顯宗9年) after several reorganizations since the foundation of Goryeo Dynasty.The local governing system in year 1018 A.D. can be defined as 'Juhhyeon-Sokhyeon system(主縣屬縣制度)' in which one unit consisted of one Juhhyeon(主縣, control county) and several Sokhyeons(屬縣, subordinate county).Naju-mok(羅州牧) during Goryeo Dynasty was not only Juhhyeon of 'Naju-mok area(羅州牧地域)', which was consisted of Naju-mok and 22 Sokhyeons, but also a Gyaesu-gwan(界首官) of 'Naju-mok district(羅州牧領域)' (now Jeollanam-do;全羅南道) that included 57 Gunhyeon units.During Goryeo dynasty, Naju-mok(羅州牧) was a large local body inhabited by a large population, and they were equipped with a vast area of land, many officials, and facilities as well. Therefore, Naju-mok served as a center stage in the local societies in terms of local ruling, traffic, economic abilities, education and cultural activities.
Myeongjin Kim (Fri,) studied this question.