The Creation Ruling Mandate is based on the authority invested in Queen Merela the Exalted by the Unconquered Sun. The Unconquered Sun is also head of the Divine Bureaucracy and has mandated the control of Yu-Shan to heavenly bureaus.
Therefore, if you’re going to base your mandate on way Sol says, the Exalted run Creation and the Bureau of Heaven runs Yu-Shan. Neither works for the other, but both are under Sol.
If you care about what he says.