為什麼「當為（應該如何）」與「存在（實際怎樣）」兩者間產生極大的落差，本文作者藉此文嘗試以現行區級公共圖書館為例，進一層檢視其建制的本質，並且提出結論與建議，使其組織結構得以健全。

Why there are so much a gap exists between ＂what should be＂ and ＂what really is＂? The author of the article attempts, to illustrate it by the practical event of district libraries in the Taiwan area to discuss the legal essence from the perspective of administrative law. At final, this paper will offer suggestion to rebuild organizational structure.