摘要
法律地位模糊、治理结构失衡、权责关系失范是当前公共图书馆法人治理的主要困境。回归法理基础与规范分析,公共图书馆法人治理需在《民法典》框架下重构法律地位与权责体系。核心路径是将其定位为“公益服务类特别非营利法人”,赋予有限独立人格:在保留国有资产所有权前提下,赋予馆舍设备独立支配权,严格限定民事行为能力边界,禁止非公益性经营活动。治理结构应实行理事会与执行层的权责分离,理事会作为决策中枢行使战略规划、预算审批及馆长提名权,执行层专注运营管理,二者权责由法律以清单形式强制划分。章程自治需设定刚性条款,包括理事会社会代表比例、利益回避规则及重大决策表决机制,政府干预权限通过“负面清单”限定于合法性审查。监督问责体系应整合独立监事审查、第三方绩效评估与财政拨款联动机制,强制披露治理年报并开放公益诉讼渠道,实现监督结果的法律刚性转化。制度设计的本质是以法人财产权有限独立为基础,通过治理结构制衡与问责刚性约束,平衡公益保障与治理效能,破解行政依附与市场越界的双重困境。图1。表3。参考文献37。
The ambiguity of legal status,imbalance in governance structure,and irregularities in authority-responsibility relationships constitute the primarydilemmas in the corporate governance of public libraries today.Returning to jurisprudential foundations and normative analysis,the governance of public libraries requires a reconstruction of their legal status and authority-responsibilitysystem within the Civil Code framework.The core approach involves designating them as"special non-profit legal persons for public service purposes",granting them limited independent personality:while retaining the ultimate state ownership of assets,they should be endowed with independent control over library premises and equipment,with strict boundaries placed on their civil legal capacity,prohibiting non-public welfare business activities.The governance structure should implement a separation of authority and responsibility between the council and the executive body.The council,as the decision-making center,exercises strategic planning,budget approval,and the nomination of the library director,while the executive body focuses on operational management.The authority and responsibility of both should be mandatorily delineated by law in the form of a list.Articles of association must establish rigid clauses,including the proportion of social representatives on the council,conflict-of-interest avoidance rules,and voting mechanisms for major decisions.Government intervention should be confined to legality reviews through a"negative list".The supervision and accountability system should integrate independent auditor reviews,third-party performance evaluations,and linkage mechanisms with fiscal funding.Mandatory disclosure of governance annual reports and opening channels for public interest litigation are essential to achieve the legal rigid transformation of supervision outcomes.The essence of the institutional design is to base it on the limited independence of legal person property rights,balancing public welfare assurance and governance efficacy through checks and balances in the govemance structure and rigid accountability constraints,thereby resolving the dual dilemmas of administrative dependency and market overreach.1 fig.3 tabs.37 refs.
作者
钱宁
李锐
Qian Ning;Li Rui
出处
《国家图书馆学刊》
北大核心
2026年第1期3-13,共11页
Journal of The National Library of China
关键词
公共图书馆
法人治理
《民法典》
非营利法人
特别法人
Public Library
Corporate Governance
Civil Code
Non-Profit Legal Person
Special Legal Person
