Abstract: The equilibrium of university organizations is influenced by external environment and internal forces. Internally, it is both rational bureaucracy and politics, which makes the university governance ambiguous and complex. Higher education institutions are subject to external environment (especially government and market) and internal factors and must maintain a certain degree of autonomy. At the same time, they are subject to internal control and must maintain a certain degree of openness. The "de facto" state is that in the triangular model, there are academic-oriented, market-oriented and government-oriented models. The "de jure" state is the balance between the internal and external forces of the academic, government and market. University governance, under the combined effect of internal and external forces, maintains a relatively independent state of development. From the perspective of internal rational bureaucracy and political organization, university governance should handle the relationship between them. The "de facto" state is either based on bureaucracy, managing universities in accordance with the mode of administrative institutions, or overemphasizing the interests and powers of certain people. The "de jure" state is to play the role of a rational bureaucracy and to improve the ability to govern. Also, it is necessary to consider university governance from the perspective of political organization, to establish a communication and coordination mechanism and to construct a trust-based organizational culture in order to effectively resolve conflicts. The university governance of China should shift from "seeking change" to "seeking governance", from governance reform to governance construction, from governance system to governance ability, from governance objective to governance efficiency. And finally, it can implement a university governance design from the "de jure" state to the "de facto" one.