Villages and towns（sub-districts）are the key link of legal development and the main position of the law-based grass-roots governance. At present，problems such as lack of overall planning and coordination for the legal development in villages and towns（sub-districts）and work force are getting prominent，affecting the grass-roots governance ability and modernization of governance level. In this regard，Quzhou City，Zhejiang Province，has carried out a comprehensive reform of the rule of law in line with local conditions，established and improved committees to govern the towns（sub-districts）according to law，make explorations on the reform of legalization of petitioning and the comprehensive reform of judicial offices，promoted legality review and established one grass-roots team to carry out law enforcement，producing remarkable results. On this basis，it is suggested to make a comprehensive improvement in top-level design，law-based thinking pattern，clarification of responsibilities，implementation of legitimacy review，team building and information security.