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The answer to that question is lost in the mists of time...
According to Shinto, it was Jimmu, the first emperor of Japan, who made it an official, state sponsored religion. But he is considered by many to be a mythological figure...
But that is only state Shinto. Shrine Shinto and a few other forms are even older, since the Shinto myths speak of people who lived in Japan and followed the way of the Kami before the empire came to be...
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