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The understanding of governance as concerned with shaping the space of legitimate action—defining why a system exists, what it must preserve over time, and which kinds of actions are admissible. Governance operates at the level of meaning and orientation, not behaviour.
A board defines that the institution exists to preserve public access to knowledge, that commercial extraction is prohibited, and that discretion about collection priorities lies with curators—this shapes the space of legitimate action without prescribing every decision.
Pre-Gov Section 2.1