After the amendment of the Legislative Law in 2015，the local legislative power was delegated to all city divided into districts. This decentralization also raised two opposite concerns：legislative expansion and repeated legislation. Through the empirical analysis of the legislation in the field of urban sanitation in sample cities，it can be concluded that the local legislation of cities with districts in China is more to refine the provisions of the upper law，with less original and repetitive provisions. Many mechanisms have an impact on this，but from the perspective of organization，the organizational behavior mechanism and organizational incentives have an impact on the legislative power of cities with districts，and the exercise of the legislative power of cities with districts in China is generally conservative. In the future，the Local People’s Congress should play a leading role in legislation and weaken the conservative tendencies of organizations