Abstract: Since the 1980s, the reform movement of public administration has already subverted the traditional bureaucracy system and has cultivated many different theoretical schools. However, these theoretical schools convey conflict values and arising ambiguities to the direction of the reform. This paper analyzes the characteristics of theoretical basis, administrative target, administrative value and administrative manner from the theories of new public management, new public service, and digital governance, and applies their reasons from the perspectives of humanity hypothesis, function of web technology, theory background, cognition of behavior motivation, and administrative values and manners. This paper also asserts that the modern government reform should focus on the essence of unity and integral, and follow the direction of seamless administrative theory. The seamless theory is a unity, which combines service demand and administrative supply, and contains the concepts of theory basis, administrative target, administrative value, and administrative manner. This theory provides a new cognition for the government officers and relevant researchers.