Research on Legislative Path of Guangdong- Hong Kong-Macao Greater Bay Area from the Perspective of Regional Collaborative Innovation Development

Abstract： Against the backdrop of the collaborative development of science and technology innovation in theGuangdong-Hong Kong-Macao Greater Bay Area （the Greater Bay Area）， there is an urgent and practical need for thelegislative system construction of the Greater Bay Area.Currently， due to the different legal systems of Guangdong，Hong Kong and Macao and the lack of regional cooperation and collaborative legislation， the legislative construction ofthe Guangdong-Hong Kong-Macao Greater Bay Area faces many difficulties. The EU provides a successful model ofregional integration to carry out regional cooperation among different legal systems and build legislative systems. Basedon the research and reference of the practical experience of EU regional legislation， the Guangdong-Hong Kong-Macao Greater Bay Area should make efforts in several ways， reinforcing the top-level design， establishing a basic lawfor the Guangdong-Hong Kong-Macao Greater Bay Area at the central level， promoting soft law governance， strength?ening the consultation and cooperation at the regional level in the Guangdong-Hong Kong-Macao Greater Bay Area，encouraging the bay area legislation pilot test first， optimizing the legislation work communication and coordinationmechanism aspects of Guangdong， Hong Kong and Macao， to strengthen the large bay area security legislation system，and escort the construction of an international science and technology innovation center in the Guangdong-HongKong-Macao Greater Bay Area.

Key words： Guangdong-HongKong-Macao Greater Bay Area; collaborative innovation; European Union; legislation

CLC： G 640; D 911"" DC： A""" Article：2096?9783（2023）04?0122?15

1 Research Background

On 18th February 2019， the Central Committee of the Communist Party of China and the State Council[1] issuedthe Outline Development Plan for the Guangdong-Hong Kong-Macao Greater Bay Area （the Outline）， proposing tobuild the Guangdong-Hong Kong-Macao Greater Bay Area into an international innovation hub with global influence，which marked the full implementation stage of the development of the Greater Bay Area. As a heterogeneous urban ag?glomeration with one country， two systems， three customs areas， three legal systems and four core cities[2]， Greater BayArea has become a pole of China's economic growth and an international science and technology innovation centerwith global influence， and the importance of collaborative innovation and development has become more prominent.However， in the process of collaborative innovation and development in the Greater Bay Area， conflicts are inevitable dueto the differences in laws and systems. This requires the superimposed support of the \"visible hand\" from government andthe \"invisible hand\" from market， and coordinate the resolution of conflicts and problems in the way of rule of law andmarket-oriented integration. That is， promoting the convergence of rules and mechanisms through legislation as the ba?sic guarantee for the collaborative innovation and development of the Greater Bay Area， and promoting the free andconvenient circulation of innovation factors to stimulate market vitality.

The existing research literature on Greater Bay Area is abundant， including multiple perspectives such as regionalcollaborative innovation development， mechanism system and rule convergence. In terms of coordinated development，Mao Yanhua et al[3]. promoted the coordinated development pattern of the Greater Bay Area from the aspects of cohe?sion of cooperation consensus， cultivation of industrial value chain， and innovation of institutional mechanisms. Ye Linet al[4] clarified the difficulties faced by the development of the Greater Bay Area from the aspects of system， subject， el?ement and network， and put forward practical suggestions. Suo Jian et al[5] constructed 10 indicators from three aspectsof innovation environment， innovation input and innovation output， used the entropy TOPSIS to study the level of highqualityinnovation development of Greater Bay Area in 2018， and divided 9 cities and 2 districts into three types： lead?ing， medium and low for analysis. In terms of mechanism system， Chen Zhao et al[6] used the innovation data of GreaterBay Area to establish a composite model to measure the synergy， and put forward policy suggestions for the synergymechanism in the Greater Bay Area. Liu Zuojing et al[7] analyzed the basic experience of building an innovative eco?nomic system in the world's three major bay areas， and put forward six major countermeasures and suggestions for theconstruction of an innovative economic system in Greater Bay Area. In terms of rule convergence， Zhu Zuixin[8] pro?posed a path for the convergence of rules led by the central government， with the participation of local entities， socialorganizations， and diversified interaction， and related implementation mechanisms， to promote the effective conver?gence of rules in Greater Bay Area. Li Tiecheng et al[9] proposed the construction of a \"1+4+2\" collaborative innovationpolicy system in the Greater Bay Area. On the basis of studying the EU's policies and measures to promote the freeflow of talents， Zeng Kaihua[10] put forward a proposal on the connection of talent flow in the Greater Bay Area.Literature research shows that there are various research perspectives on Greater Bay Area， but there are notmany systematic studies on the legislative implementation path or legislative technical route in the collaborative inno?vation and development of the Greater Bay Area.

Although involved， it is limited to a specific field such as the environ?ment[11] and \"dual carbon\"（carbon peaking and carbon neutrality）[12]. To this end， based on the actual needs of collabora?tive innovation development of the Greater Bay Area， this paper sorts out the existing policy basis of the Greater BayArea， analyzes the difficulties existing in the supply of the legislative system in the Greater Bay Area， and on the basisof drawing on and summarizing the practical experience of EU legislation， proposes a legislative path of the Guang?dong-Hong Kong-Macao Greater Bay Area from the perspective of regional collaborative innovation development.

2 The Practical Basis for the Construction of the Legislative System in theGreater Bay Area

2.1 The Continuous Improvement of the Greater Bay Area's Collaborative Innovation Development Capa?bilities Requires the Guarantee of the Legislative System

The Greater Bay Area includes the two Special Administrative Regions of Hong Kong and Macao and Guangzhou，Shenzhen， Zhuhai， Foshan， Huizhou， Dongguan， Zhongshan， Jiangmen and Zhaoqing， with a total area of 56，000 squarekilometers and a total population of 86，692，300 at the end of 2021， and an overall economic volume of about RMB12.6trillion in 2021[13]， which is similar to that of the Tokyo metropolitan area in Japan. In 2022， GDI Think Tank releasedthe \"Guangdong-Hong Kong-Macao Greater Bay Area Collaborative Innovation Development Report （2021）\"[14]，benchmarking against the world's three major bay areas. The Greater Bay Area published 365，900 invention patents in2020， having maintained positive growth in the past decade （see Figure 1）， far higher than the other three bay areas.Compared with the internal cities of the Greater Bay Area， in term of cross-city invention patent cooperation rate （Ta?ble 1）， it is 6.88‰ between Guangzhou and Dongguan， 54.06‰ between Shenzhen and Hong Kong， and 15.45‰ be?tween Zhuhai and Macao. The driving effect of the Guangzhou-Shenzhen-Hong Kong-Macao pole is obvious， andcross-city collaborative innovation cooperation continues to strengthen. However， at present， the scientific and techno?logical innovation potential of the Greater Bay Area hasn't been fully developed， and the innovation synergy mecha?nism between cities is not yet optimal[15]. This mainly due to the lack of in-depth cooperation limited by institutionalobstacles， laws and regulations in three places， resulting in low innovation efficiency. The Greater Bay Area has thecharacteristics of \"One Country， Two Systems\"， and it is necessary to maximize the advantages of \"Two Systems\" exter?nally and reduce the institutional obstacles of \"Two Systems\" differences internally[16] . This means， the collaborative in?novation development of the Greater Bay Area needs a large number of legislative protections that require innovationand exploration， and the construction of the International Innovation Center in the Greater Bay Area should continue tobe promoted on the track of rule of law.

2.2 The Current Policy System in the Greater Bay Area Lays the Foundation for the Construction of theLegislative System

In recent years， measures such as the Outline Plan and cooperation plans have been introduced from the central tolocal levels， gradually forming a \"four beams and eight pillars\" policy system to support the coordinated innovation de?velopment of the Greater Bay Area （Table 2）， and continuously optimizing the innovation system and policy environ?ment in the Bay Area. The first one is the central level. In 2003， the Mainland， Hong Kong and Macao signed CEPA re?spectively， marking the start for cooperation between Guangdong， Hong Kong and Macao. In 2017， the National Devel?opment and Reform Commission and the governments of Guangdong， Hong Kong and Macao signed the FrameworkAgreement on Deepening Guangdong-Hong Kong-Macao Cooperation and Promoting the Development of the GreaterBay Area， kicking off the promotion to development of the Greater Bay Area at the national level. In 2019， the OutlinePlan was promulgated， which means that the Greater Bay Area has entered the stage of \"planning\". The second one isthe local level. In 2009， Guangdong and Hong Kong signed eight cooperation agreements[17]. In 2010， Guangdong andHong Kong signed the Guangdong-Hong Kong Cooperation Framework Agreement. In 2011， Guangdong and Macaosigned the Guangdong-Macao Cooperation Framework Agreement. In July 2019， Guangdong issued the Guidelines onthe Development Plan Outline for the Guangdong-Hong Kong-Macao Greater Bay Area， and issued the Three-YearAction Plan at the same time， forming a \"working drawing\" and \"task book\" for promoting the construction of the Great?er Bay Area at the provincial level. The third one is the city level in the Greater Bay Area. Eleven cities in the Bay Ar?ea have formulated supporting policies around the tasks of the Planning Outline. Guangzhou has successively issuedpolicies such as the Implementation Opinions on Jointly Building an International Financial Hub in the Guangdong-Hong Kong-Macao Greater Bay Area and the Action Plan for the Promotion of Trade Liberalization， Customs Clear?ance and Facilitation in Guangdong-Hong Kong-Macao Greater Bay Area. Shenzhen has promulgated a series of spe?cial economic zone legislation， including the Regulations on the Qianhai Shekou Free Trade Pilot Area of the ShenzhenSpecial Economic Zone and the Regulations on the Qianhai Shenzhen-Hong Kong Modern Service Industry Coopera?tion Zone in the Shenzhen Special Economic Zone. Hong Kong has established a Guangdong-Hong Kong-MacaoGreater Bay Area Development Office[18] and has implemented a series of policies and measures such as the \"Technolo?gy Talent Admission Scheme\". In 2022， Macao promulgated the Urban Master Plan of the Macao Special Administra?tive Region （2020-2040）， which proposes to cooperate with the development of the Greater Bay Area and highlight theposition of Macao SAR as the central city of the Greater Bay Area[19]. In summary ， the Greater Bay Area has initiallyformed a multi-level policy system of \"central- regional-local\"， covering industry， talent， finance， taxation， judiciaryand other aspects， providing a basic basis for the construction of the legislative system in the Greater Bay Area. This isconducive to accelerating the realization of the Greater Bay Area from \"policy promotion\" to \"rule of law guidance\".

3 The Dilemma Faced by the Construction of the Legislative System in the Col?laborative Innovation Development of the Guangdong-Hong Kong-MacaoGreater Bay Area

3.1 There are Differences in the Existing Laws and Systems of Guangdong， Hong Kong and Macao

Firstly， Guangdong， Hong Kong and Macao belong to different legal systems， and all three places have establishedrelatively mature legal systems and operating systems， resulting in a series of difficulties in the construction of the legis?lative system in the Guangdong-Hong Kong-Macao Greater Bay Area [20]. In terms of the application of law， only theprovisions listed in Annex III of the Hong Kong Basic Law and the Macao Basic Law can be applied in Hong Kong andMacao respectively， which is the primary manifestation of institutional differences and conflicts. Most of the contentsstipulated in Annex III of the Basic Law of Hong Kong and Macao are related matters involving national sovereignty，Research on Legislative Path of Guangdong-Hong Kong-Macao Greater Bay Area from the Perspective of Regional Collaborative Innovation Developmentand in fact， the basic laws promulgated by the state that affect the vital interests of the people cannot be applied inHong Kong and Macao， and are regarded as extraterritorial laws. Secondly， there are legal barriers in the economic andtrade fields of Guangdong， Hong Kong and Macao. Although the three places are all members of the WTO， and the eco?nomic and trade exchanges between the three places and other economies are becoming more frequent， there is still nouniform applicable law in Guangdong， Hong Kong and Macao， and there are legal barriers in the economic and tradefield. Thirdly， there are barriers in the administrative management system of Guangdong， Hong Kong and Macao. Thereare huge differences in the administrative management systems of Guangdong， Hong Kong and Macao in terms of talentintroduction， tax collection， cross-border materials， etc.， and the lack of synergy in the laws and regulations in relatedfields has led to the inconvenient cross-border flow of innovation factors， the difference in tax for overseas high-endtalents and talents in short supply， etc.， and these basic institutional conflicts cannot be completely resolved throughexisting policies.

3.2 Regional Co-operation between Guangdong， Hong Kong and Macao Lacks Relevant Legislative Basis

Although the cooperation between Guangdong， Hong Kong and Macao has \"One Country， Two Systems\" as theconstitutional basis， and the Hong Kong and Macao Basic Law， the WTO Agreement， the CEPA Agreement， and theRegional Cooperation Agreement as the basis for cooperation， the current institutional protection is more reflected inthe form of inter-regional agreements and government documents， and lacks a \"Hard law\" foundation. This means thata relatively legal system is absent[21]. First， the Constitution， which is the fundamental law of the country， and the HongKong Basic Law and the Macao Basic Law， which are constitutional documents， do not specifically provide for coopera?tion between local governments. Hence， lack a clear basis for joint legislation between the SAR Government and theMainland Government[22]. Second， the CEPA agreement is an inter-regional agreement based on the WTO and lacks alegal basis in the sense of domestic law. The planning outline， cooperation plan， etc. issued at the national level are ad?ministrative guiding documents in nature， and are not enforceable， let alone the legal basis stipulated in the LegislationLaw. The Hong Kong Basic Law and the Macao Basic Law also do not stipulate the competence of the Hong Kong andMacao SAR governments to conclude inter-regional cooperation agreements with mainland provinces[23]. Third， be?cause the nine cities in the Mainland and Hong Kong and Macao belong to three jurisdictions and two basic systems，the form of legislation is quite different， legislative coordination is difficult， and there is little cooperation in legislativepractice. Among the current regulations in force in Guangdong， only the Administrative Measures for the Employmentof Domestic Fishermen by Guangdong-Hong Kong-Macao Migrant Fishermen deal with the docking with the legisla?tive level of Hong Kong and Macao.

3.3 There is Insufficient Experience in Local Legislation for the Development of the Guangdong-HongKong-Macao Greater Bay Area

However， compared with the requirements of the strategic objectives and actual needs of the rapid development ofcollaborative innovation in Greater Bay Area， Guangdong's local legislation is still relatively lagging behind. Firstly，the supply of local legislation is insufficient. Currently， Guangdong still lacks special legislation to promote the coordi?nated innovation and development of Greater Bay Area. Although some of them involves the construction of the GreaterBay Area， most are encouraging provisions， but not special mandatory and unified legislation. Secondly， the content ofcurrent local legislation is relatively scattered. Guangdong's current local regulations and rules， involving legislationon industrial development， innovation and entrepreneurship， intellectual property rights， talent protection， etc.， presentproblems such as insufficient docking， fragmentation and scattered resources in serving the collaborative innovationand development of the Guangdong-Hong Kong-Macao Greater Bay Area. Thirdly， the nine mainland cities have notyet established a legislative cooperation mechanism. Due to the differences in systems such as economic development，talent household registration， funding subsidies and other aspects between the nine cities， as well as the fierce intercitycompetition and game relationship， the nine cities have not yet established a legislative work cooperation mecha?nism.

4 Experience in the Construction of the EU Legislative System

As a \"community of rule of law\"， the main work of the EU is legislation， and its internal operation is based on EU trea?ties and secondary legislation on this basis[24]. The EU is a model of successful regional integration legislative regimes，that operate across legal systems between sovereign states with different legal systems in Europe. Every member statehas a common obligation to comply with the laws enacted by the EU， and policies and laws derived from them are alsoin the interests of all parties based on compliance with the laws. The EU is a unique entity that has both a supranation?al component and an intergovernmental cooperation component in different policy areas and in different ways[25]. Thelegislative system constructed by the EU provides a framework and rules of conduct for communication and compro?mise in the decision-making of common policies by its member states and non-institutionalized organizations. TheGreater Bay Area needs to learn from the regional synergy between different legal systems and the establishment of alegislative system.

4.1 Basic Information on the EU Legislative System

Firstly， EU law is the result of legislative harmonization. The EU legal system has a process of development， gener?ally consisting of three pillars： EC law， the Common Foreign and Security Policy and Cooperation in the Field of Justiceand Home Affairs. Among them， EC law is the \"basic law\" with supranational characteristics. The EU legislative sys?tem integrates the civil law system and the common law system. Its major legal pillars are closely integrated， and the le?gal system of supranational nature and regional cooperation constitutes a complete legal system that is the result the re?sult of the successful establishment and operation of its legislative system. Secondly， basic treaties are the main sourceof EU law. Basic treaties such as the Treaty of the European Coal and Steel Community and the Treaty of the EuropeanEconomic Community reflect the economic requirements of the contracting States and constitute the main source of EUlaw. Traditional treaties are created， amended， and operated by the signatories， while EU treaties are based on and im?proved by themselves[26]. Thirdly， EU law has established the principle of subsidiarity. From the point of cooperationand coordination， the 1992 Maastricht Treaty has established the principle of subsidiarity， harmonizing the applicationof law between member States. Through treaty mandates， the Community may take measures in the area of non-Com?munity competence in which \"measures taken by member States do not fully achieve the objectives， but the Communitytakes measures to better achieve the objectives\". Fourthly， EU law pays attention to the integration of different legalsystems. From the perspective of order operation， the integration of EU law is based on the values of \"freedom， equalityand democracy\"， and adopts a diversified integration approach to the two legal systems， so that statutory law and caselaw complement each other in the application of EU law.

4.2 The Main Features of the EU Legislative System

The first feature of EU legislative system is complete legislative authority. The legislative decision-making bodyin the EU legislative system is an important part of the entire EU legal system， which depends on the structure of theEU's governing body and stipulates the corresponding legislative competence of each body through the correspondingsystem. The legislative power of the EU is formed in the context of the supranational union of the European Union. It isjointly exercised by the Council of the European Union and the European Parliament. The former represents sovereignstates while the latter represents the people of the Union. Laws adopted by it have priority and direct application， andsuperior to the domestic legislation of the member states. The EU legislature includes the Council of Europe， the Coun?cil of the European Union， the European Commission， the European Parliament， and the European Court of Justice [27].The second feature is comprehensive subregional cooperation. Subregional cooperation is an important force for promot?ing stability in Europe. In the face of adverse factors such as the global pandemic， economic downturn and Brexit， theEU continues to promote stable development in Europe by strengthening sub-regional cooperation. Sub-regional coop?eration is relatively geographically concentrated， involves a small scope， has a relatively single cooperation goal， andthe mode of cooperation is more influential. It has become an inherent feature of the European integration process[28].The successful experience of European sub-regional cooperation lies in the fact that， based on geographical relations，many countries in the sub-region have established consultation mechanisms， established corresponding organizationalbodies as deliberative bodies for cooperation， and issued relevant agreements， declarations and other soft laws on coop?eration. The third feature is stable rules for the application of law. The conflict of laws and application between EU lawand the laws of EU member states have their own stable rules and operating methods， which includes two points as fol?low. First， EU law has the principle of direct application and direct effect，， which is different from the relationship be?tween international law and domestic law. EU law and its related treaties do not need to be transformed and appliedthrough domestic legislative procedures. Second， EU law has the principle of precedence. That is， in the event of a conflictbetween EU law and the law of Member State， EU law takes precedence in accordance with the practice confirmed bythe judicial practice of the European Court of Justice.

5 The Path of Legislative System Construction in the Collaborative Innovationand Development of the Guangdong-Hong Kong-Macao Greater Bay Area

5.1 Strengthen the Top-Level Design and Build Basic Laws for the Guangdong-Hong Kong-MacaoGreater Bay Area at the Central Level

Guangdong， Hong Kong and Macao operate under distinct legal systems， akin to the existence of diverse legalframeworks in several European Union countries that may result legal conflicts. In terms of first-level legislation， theEU has the EU Foundation Treaty， which is the basic law of a \"constitutional\" nature. It is the source of the powers andfunctions of the EU institutions， confirming the legal system， guidelines and policies being applicable within the Com?munity. Similarly， from the perspective of the collaborative innovation and development of the Guangdong-Hong Kong-Macao Greater Bay Area and the practical needs of the convergence of rules and systems， it is necessary to apply the\"basic law\" uniformly and need to be guaranteed by the rigid \"hard law\". From the perspective of the internal legisla?tive power of the Guangdong-Hong Kong-Macao Greater Bay Area， there are multi-level complex relationships suchas provincial-level legislative power， legislative power of special administrative regions， legislative power of specialeconomic zones， and legislative power of districted cities， and the unification of the legislative system in the GreaterBay Area needs to be led by the central level， which is also in line with the provisions of the Constitution and the BasicLaw of Hong Kong and Macao. Therefore， in order to ensure the legality and constitutionality of the legislation in theGuangdong-Hong Kong-Macao Greater Bay Area， it is proposed that legislation be unified at the central level and es?tablish the \"Guangdong-Hong Kong-Macao Greater Bay Area Cooperation Law\"， which clarifies the regional innova?tion and cooperation between the central government and Guangdong， Hong Kong and Macao， between Guangdong，Hong Kong and Macao， and between the nine cities in the Bay Area and Hong Kong and Macao， and establishes the ba?sic principles for the application of the law on collaborative innovation and development in the Bay Area. Specifically，the Standing Committee of the National People's Congress exercises national legislative power to make special provi?sions on the Guangdong-Hong Kong-Macao Greater Bay Area Cooperation Law. These provisions aim to strengthen co?operation between regional governments， strengthen intraregional connectivity， break the pattern of local legislativeand administrative division economic development， gather regional capabilities and resources， optimize resource alloca?tion， and establish the normalization of collaborative innovation cooperation and regional economic integration.

5.2 Improve Soft Law Governance and Strengthen Consultation and Cooperation at the Regional Level inthe Guangdong-Hong Kong-Macao Greater Bay Area

The main manifestation of soft law governance in regional cooperation is through regional cooperation agree?ments[29]. In practice， the EU has achieved the same goals of regional cooperation by formulating a large number of re?gional agreements. Specifically， soft law can ensure the harmonious and sustainable development of the cooperative byregulating the behavior of the members of the cooperative entity， regulating the management behavior of the coopera?tive institution， and resolving internal and external disputes within the cooperative[30]. Given the different legal systemsof the three places， it is necessary to make a gradual breakthrough in formulating hard laws to promote the developmentof Greater Bay Area. However it is more crucial to accumulate experience at the soft law level. In practice， cooperationagreements， regional plans， policy measures， etc. signed or issued by the Guangdong-Hong Kong-Macao Greater BayArea government through the joint meeting system of regional governments or regional department consultations， allfall within the scope of soft law governance， and their practical role is obvious. In March 2023， the 23rd Meeting of theHong Kong-Guangdong Co-operation Joint Conference signed a series of cooperation documents such as the Agree?ment on Exchange and Cooperation in Science， Technology and Innovation between Guangdong and Hong Kong， andthe Agreement on Deepening Financial Co-operation between Guangdong and Hong Kong. In the same month， Shen?zhen and Hong Kong signed the Arrangement on Comprehensively Promoting Shenzhen-Hong Kong Cooperation inScience and Technology Innovation. According to the Global Innovation Index 2022 published by the World Intellectu?al Property Organization （WIPO）[31]， the \"Shenzhen-Hong Kong-Guangzhou\" science and technology cluster has rankedsecond in the world for three consecutive years， and the comprehensive strength and international competitiveness ofcollaborative innovation and cooperation in the Guangdong-Hong Kong-Macao Greater Bay Area have become moreprominent. Obviously， soft law is more feasible and operational than hard law through equality， voluntariness and con?sultation. At the current stage， strengthening the governance of soft law in the Guangdong-Hong Kong-Macao GreaterBay Area has become an inevitable and realistic choice to eliminate the obstacles of the \"two systems\"[20]. Therefore， itis suggested that on the basis of implementing the Outline， the governments of Guangdong， Hong Kong and Macaoshould strengthen consultation and cooperation at the regional level， and focus on jointly carrying out basic research，technological research， industrial development， through signing specific and comprehensive scientific and technologi?cal innovation cooperation agreements or jointly formulating policies and measures for scientific and technological in?novation development， etc. These efforts can promote the efficient and convenient flow of innovation elements， andstrengthen the convergence of scientific research rules and mechanisms in the Bay Area. It is also important to accumu?late experience in soft law governance.

5.3 Encourage Pilot Projects in the Guangdong-Hong Kong-Macao Greater Bay Area

In the process of regional cooperation， only the legislative subjects within the geographical scope know what prob?lems are encountered， what kind of legal system is needed， and what kind of legislative path is used to solve them[32] .Judging from the EU's practical experience in carrying out sub-regional cooperation， the \"sub-regional cooperationzone\" model， which \"leads the area with points\" or \"promotes the whole with parts\"， has strong flexibility and efficien?cy due to geographical advantages. Therefore， since the Greater Bay Area is still a national institutional experiment，there must be some unforeseen problems that cannot be solved through the Basic Law， so it is necessary to innovateand boldly take the lead through local legislation， regional legislation and other legislation， and to provide effective in?stitutional options for the innovation and development of the Greater Bay Area in a timely manner. As early as 2011，the Shenzhen Special Economic Zone issued the Qianhai Shenzhen-Hong Kong Modern Service Industry CooperationZone Ordinance. In 2023， Guangdong Province officially promulgated the Regulations on the Promotion of the Develop?ment of the Guangdong-Macao Intensive Cooperation Zone in Hengqin， based on the authority of Guangdong Province，straightening out the relationship of rights and responsibilities with relevant units of Guangdong Province and ZhuhaiCity， stipulating the governance system of the cooperation zone and promoting industrial development. Based on the ex?isting sub-regional legislative experience in the Greater Bay Area， another suggestion is that the nine cities in Guang?dong Province further carry out regional cooperation development and legislative exploration. They could take the leadin establishing an integrated development system for the nine cities， and strengthen \"sub-regional cooperation\" in theBay Area; On the other hand， it is proposed to actively seek the authorization of the National People's Congress， em?power and empower Guangdong Province and the nine cities in the Mainland， give play to the role of local subjects，meet the resource allocation needs of the legislative authority of the Greater Bay Area， and make full use of the locallegislative power and the legislative power of the Special Administrative Region by Guangdong Province and the ninecities， so as to lay a foundation for the continuous improvement and systematization of the legislative system in theGuangdong-Hong Kong-Macao Greater Bay Area.

5.4 Optimize the Coordination Mechanism and Establish a Communication and Coordination Mechanismfor Legislative Work in the Guangdong-Hong Kong-Macao Greater Bay Area

Countries in the EU region have authorized the formation of the European Commission， the European Parliament，the European Council and other organizations， which have played a crucial role in the development of the integration ofthe rule of law in the EU. At present， the Guangdong-Hong Kong-Macao Greater Bay Area's irregular \"one case forone discussion\" synergy mechanism and pure bilateral cooperation mechanism cannot meet the practical requirementsfor the collaborative innovation and development of the Guangdong-Hong Kong-Macao Greater Bay Area. Learningfrom the experience of the EU， in promoting the legislative construction of the Guangdong-Hong Kong-Macao GreaterBay Area， establishing and improving an efficient and smooth legislative communication and coordination linkagemechanism is the basis for promoting the construction of the legislative system in the Guangdong-Hong Kong-MacaoGreater Bay Area. In terms of legislative collaboration in the Guangdong-Hong Kong-Macao Greater Bay Area， com?bined with the specificity of \"one country， two systems\"， it is proposed to set up a special legislative joint working plat?form in the Guangdong-Hong Kong-Macao Greater Bay Area， through which all parties are closely linked. In terms ofthe legislative coordination mechanism in the Guangdong-Hong Kong-Macao Greater Bay Area， a proposal includesestablishing an overall coordination mechanism for legislative consultation， joint construction and co-governance inthe Guangdong-Hong Kong-Macao Greater Bay Area. This proposal would implement specific systems such as legisla?tive information sharing， consultation and consultation on major legislative matters. These efforts could promote coordi?nated legislation among the three places. Through the establishment of a long-term mechanism for legislative communi?cation and cooperation， the three places can jointly put out institutional obstacles restricting the development of collab?orative innovation for \"consultation and research\"， reach legislative consensus from the source of decision-making，consult and study ways or methods to solve institutional obstacles， promote the breaking of institutional barriers， andturn \"differences in systems\" into \"benefits of systems\".

6 Conclusion

The guarantee of in-depth cooperation in the collaborative innovation and development of Greater Bay Area in thenew era is the guarantee of the rule of law. In the face of the practical demand for legislative system protection for thecoordinated innovation and development of Greater Bay Area， as well as the difficulties faced in legislative practice， onthe basis of fully learning from the successful experience of EU legislation， combined with the actual development ofGuangdong， Hong Kong and Macao， and by improving the legislative communication and coordination mechanism， wewill gradually promote the implementation of the legislative path of \"Central Basic Hard Law-Regional Soft Law Coop?eration-Sub-regional Legislative Pilot\"， so as to truly promote the realization of the rule of law in Greater Bay Area.Obviously， this legislative path from theory to practice is a practical problem that requires the joint efforts of the wholesociety to explore， and there are many issues， including the content of the Bay Area Basic Law， law enforcement， judi?cial assistance， etc.， which need to be further studied and explored.

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