However, the myoden system could not catch hold of some areas, nor could it catch hold of some people, such as "kugonin" (privileged people who contributed provisions to the emperor) and "jinin" (associates of Shinto shrines), so instead, zaike was newly introduced as the unit of taxation and labor enforcement in order to seize those areas and people.
しかし名田が確立できなかった地域や、供御人・神人など名田体系では把握できなかった人々が存在したので、これらに対しても年貢などを賦課するために、在家を単位として収取したのである。