Abstract: Institution and personality is mutually constructed, and the creating of administrative personality is closely related with institution of social governance. In the traditional patterns of power and law, administrators have been shaped respectively into relied-personality and instrumented-personality because of moral and ethical hierarching and nullifying correspondingly. With service-oriented government becoming a reality, social governance has been transforming significantly. Morals will be highlighted again and moral institution become inevitable. And so the creation of public administrator's independent personality has institutional guarantee. Only in moral institution can independent personality of administrator be created generally and constructed self-consciously.