This actually involves a very problematic system of the Eastern Han, which is that aristocratic families essentially manage each region.
Now Chen Xi has removed the aristocratic families, giving the state the chance to regain control of the grassroots, but the Eastern Han has been twisted for two hundred years. There are not only long-standing aristocratic families, but also some landlords that have emerged in three generations.
Smaller ones, like Zhang Fei, have money, land, and escorts but no official position, though they have some fame in a small local area. However, they are still overshadowed by local aristocrat families and can do very few things.
Larger ones, like Mi Zhu, except for not having official ranks or titles, when it comes to financial and material strength, they're not less than aristocratic families. They're very famous in a county, and if the local aristocratic family is not too strong, they may even need to show respect, though they are not actual managers.
