The enabling government in the new structure economics actually means a kind of referee country. The referee country is regarded as a social public entity serving for all members, thus it has a nature of good. In order to carry forward the good behavior, people often entrust great authority to this kind of country and its government. But in the real world, those agents who grasp the civil rights often abuse the institution means for personal goal and benefit, which results in the transformation of its function. Therefore, any enabling government in charge of positive functions cannot be an unlimited government, but should operate under a relatively mature and perfect system of normalization and supervision.