Lets define some examples to clarify what I'm talking about.
- United States: has a legislature in the form of the US Congress
- New York: has a state legislature
- New York City: can issue its own legislation
- Manhattan: has no legislative or executive authority on its own
So the borough of Manhattan (pop. 1.6m) does not have its own separate authority with legislative powers. Are there even bigger fully dependent political entities like this?
- “Bigger/larger” refers to the total population in the district/borough/region
- “Legislative power” refers to a set of rules that can be passed by the political entity completely independently and subsequently enforced by government authorities. So if the Manhattan borough council issues non-binding declarations, it doesn't count as "legislative power".
- Political entities that have sub entities with legislative power do not count. For example England does not have its own separate Parliament but it does have numerous cities with their own legislative powers.
- “Political entity": The Five Boroughs are the municipal corporations of New York City. While they overlap with their Counties, and are subordinate to New York City, they are legally distinct. They each have a president, council, and a district attorney. For example Manhattan Borough President. It could have a legislature, like Suffolk County does, but it does not. As a rule of thumb, if Wiki calls this entity "borough", "county", "district", etc, then it can be considered a "political entity".