In a nutshell (in nuce), when it comes to 1 Peter 2:13, J.N.D. Kelly rejects the traditional renderings of KTISIS such as those found in the KJV, RSV and the NEB. He thinks that PASHi ANQRWPINHi KTISEI should not be translated "institution" or "ordinance." He insists that KTISIS always signifies "creation" or "creature" (ad concretum sensum) in the GNT, and Kelly further argues that the notion of God qua Creator stands as a backdrop to the GNT usage, although this point might be disputed by others.
The main point that I want to draw attention to here, however, is what Kelly offers in place of the traditional interpretation for 1 Peter 2:13. He reckons that Peter is exhorting his readers to
subject themselves voluntarily to human creatures (pages 108-9).
"This exegesis also brings out the point of for the Lord's sake. Many commentators refer this to Christ, but it is God who created the world and men; it is therefore out of regard for Him as Creator that we ought to behave humbly towards our *fellow-creatures*' (page 109, stars added for emphasis).
Lastly, Kelly informs us that Peter passes from "the general to the particular" as he infers: "this principle of voluntary subordination should colour first of all the Christian's attitude to state authorities; whether to the emperor as sovereign, or to governors as sent under his commission" (page 109).
Kelly seems to be saying that KTISIS has reference to certain fellow humans (i.e., those exercising governmental authority). That is, it does not apply to the governments themselves, but to authorities who compose those human governments. Whatever you may personally think of Kelly's exegesis, his treatment of 1 Peter 2:13 shows that KTISIS might be applied to human rulers or authorities, who exercise power by heaven's allowance.