Autopoietic systems are never created by other autopoietic systems. Autopoietic systems, by definition, are self-made. For example, the mass media system was not created by the economy or politics or anything else; it created itself the moment it closed its own communication loop–the moment it used its own information to make new information.
Social systems are not created by human beings either; they have to create themselves with their own communication. For instance, the legal system had to create itself with its own communication.
This is how evolution works. Systems differentiate themselves from an environment, and a system must be “ready to go” at an opportune moment. Most systems never find an opportune moment, and successful systems must somehow overcome this improbability. For example, the evolution of an autonomous legal system was an improbability, but it happened in Europe.