The special feature of national development zones is that they have broken through the traditional path of setting up administrative institutions：from the central level，they are crowned with the high-level status of “national level” through the approval procedure of the State Council，and the Ministry of science and technology and the Ministry of commerce are respectively responsible for the centralized management of high-tech industrial development zones and economic and technological industrial development zones according to the authorization of the State Council；From the local level，based on territorial management，the development zone usually establishes management institutions according to the local laws and regulations issued by the Standing Committee of the provincial people’s Congress. The Development Zone nominally performs administrative functions as an agency of the municipal government，and is authorized by the provincial and municipal governments to take economic functions as the main government functions. In addition，some development zones expand the scope of management by trusteeship administrative regions，develop land and implement social functions in the region. Therefore，the management organization of national development zones has formed a complex identity of direct management of central ministries and commissions and multiple governance systems across local multi-level governments. The existing legal concepts such as dispatched offices，dispatched offices and legally authorized organizations can not accurately locate the legal nature of the management organization of the development zone. At present，some local norms use the word “legal organization” to give the management organization of the development zone an appropriate legal positioning，which is not only in line with the actual legal state，but also does not violate the provisions of the superior law.