In the ritsuryo system, Kanden (imperial estates) undertook that role and was controlled by Oiryo (Bureau of Palace Kitchens under the Ministry of the Imperial Household), but incomes became unstable by reasons that Kanden was lost in various places due to decline of the ritsuryo system and expansion of Shoen (manor in medieval Japan), and nonpayment of tribute of Kugomai continued.
律令制においては官田がその任を担って大炊寮が管轄していたが、律令制の衰微と荘園の拡大によって各地で官田の喪失、供御米の未進が相次ぐなど収入が不安定になった。