At first all shrines got offerings directly from the Jingikan; but because it took time to travel to shrines in distant districts, the Kokushi began to conduct offerings on behalf of the Jingikan, creating the distinction between Kanpeisha and Kokuheisha.
当初は全て神祇官から直接奉幣を受けていたが、遠国の神社についてはそこへ行くまでに時間がかかることから、国司が代理で行うようになり、官幣社・国幣社の別ができた。