However, in the later Heian period, when the Insei political system started, where the retired emperor took power and administered all affairs of state as a de facto emperor, it was required to establish a way to express its own political will instead of Daijokanpu.
しかし、平安後期に太上天皇が治天の君（事実上の国王）として君臨し、政務を取り仕切る院政が開始すると、詔勅や太政官符に代わる、政治意思の表示方式を確立する必要が生じた。