The idea of compiling the laws was around from the time of Emperor Kanmu, but the project only went into full swing when a "law office" was established during Emperor Saga's reign, and FUJIWARA no Fuyutsugu was appointed as the head, with FUJIWARA no Kadonomaro, AKISHINO no Yasuhito, FUJIWARA no Mimori, TACHIBANA no Tsunenushi, and OKIHARA no Miniku as members.
格式編纂の構想は、桓武天皇の頃から存在したが、嵯峨天皇の時代に「造格式所」を設置して、藤原冬嗣を総裁として藤原葛野麻呂・秋篠安人・藤原三守・橘常主・興原敏久らと事にあたらしめてから編纂事業が本格化した。