After the Retired Empress Jito passed away in 703, establishing of more detailed regulations as well as the reform of the Code itself was called upon, as there was a gap between the Code which was then in effect and its realistic administration.
大宝3年（703年）持統太上天皇が崩御すると、実際に施行されはじめた律令と、現実的運用とのギャップから、細則の必要性や令そのものへの改革が迫られるようになる。