To make it possible to flexibly deal with the change of device group by making an inquiry to a low-order module at need when a work instruction is inputted to a high-order module and developing it into the executable instruction of the low-order module and allocating it.

A work negotiation part 8 receives a work execution request (work instruction) from the other high-order Holon module, judges whether or not the work instruction can be executed by referring to a function model 9 and outputs a response to the request. When the work instruction can be executed, the work instruction is transmitted to an allocation execution part 11 in the case of a development/allocation Holon module. An allocation execution part 11 makes the inquiry to all the low-order Holon modules whether the work instruction can be executed or not. When it can be executed, the work instruction is allocated to the Holon module which is previously selected/ registered. The optimum module is selected based on an optimization rule 14 by an allocation optimization execution part 13.