The shrine was likely founded by Agatainukai-no-Michiyo (県犬養三千代 655?-733), mother of Empress Kōmyō (光明皇后), to enshrine her family ancestors (she was the first of her clan to hold the name Tachibana).
Empress Kōmyō then moved the shrine to the capital Heijō-kyō (平城京 the old name for Nara).