Jishakogyo-rei (literally "law on the performance of temples and shrines") had been issued as part of such new policy systems since the rule by cloistered emperors; under Hogen Shinsei (Hogen new law) of 1156 acclaimed as having established the Shinjin (godlike person) Kugonin (people who presented food and other supplies to the Imperial Court, noble families, temples and shrines) Sei (system), Emperor Goshirakawa promulgated his own Shinji Kogyo Rei (literally "law on the performance of religious rituals") but as a specific policy action, the first instance is found in the policy advocated under the Shinsei of the Retired Emperor Gosaga in 1156 to admonish government officials and provincial governors against neglect of religious rituals and to prevent Shinjin and Kugonin from increasing in number.
新制の一環としての寺社興行令は院政期から出されており、職の体系や神人・供御人制を確立したとの評価がある保元元年（1156年）の「保元新制」においても、後白河天皇による神事興行令が出されているが、具体的な施策としては、後嵯峨上皇新制において、建長5年（1253年）官司国司による神事執務怠慢を諌め、神人、供御人の増加を防止する方針が打ち出されたことが最初の事例である。