Saichō tried to broaden Buddhism’s popular base in Japan. During the Nara period the court had promoted Buddhism as a religion of the elite. To a large extent, the Nara schools had not objected. In fact, the Hossō teaching that only some sentient beings possessed the seeds necessary for enlightenment contributed to these elitist attitudes. Monks were directed to stay in their temples and practice. The court believed that unrestricted contact with the populace could be subversive and thus discouraged it. The fifth article in the Sōniryō [rules regulating monks and nuns] stated:

Monks or nuns who are not residents of a monastery or temple and who set up (unauthorized) religious establishments and preach to congregations of the people shall be expelled from holy orders. Officials of provinces and districts, who are aware of such conduct but do not prohibit it shall be punished in accordance with the law. Persons desiring to beg for food must submit an application supported by the joint seals of their superiors through the provincial or district offices. The authorities may grant permission after they are satisfied that true ascetic practice is intended.

The twenty-third article read:

Monks, nuns, and others who send lay persons from house to house to exhort people with prayers and images shall be punished with one hundred days hard labor; the lay persons shall be dealt with according to the law.

The Sōniryō date from the early eighth century. In subsequent years they were supplemented by edicts under a number of emperors including Kanmu. In Saichō’s time, although the above two articles were still laws, they were largely ignored. Such sources as the Nihon ryōiki, compiled in the early ninth century, provide ample evidence that Buddhism was already spreading among the common people. The Nara monks did not choose to challenge Saichō’s plan to send Tendai monks out to the provinces to preach and assist with public works such as bridge building. They too were interested in this type of activity.