This is because of the significant mixing of Shinto and Buddhism and the influence of Enryaku-ji temple, which is why the shrine seems to have been regarded as a temple and not a Shinto shrine; but since it later became one of the 22 Shrines, it is evident that it was also regarded as a shrine.
これは神仏習合の色あいが濃く延暦寺の支配を受けていたことから、神社ではなく寺とみなされていたためと見られるが、後の二十二社の一社にはなっており、神社としても見られていたことがわかる。