As the system of Insei (rule by the Retired Emperor) was enforced in the late Heian period, Chiten no kimi (the Retired Emperor in power) used inzen and innocho kudashibumi to strongly express and achieve his political intentions.
平安時代後期に院政が始まると、治天の君（院政を行う上皇）は、院宣や院庁下文を発給することで、自らの政治意思を明示・具現化していった。