The National Conference on Education took place in July 2010，and the National Guidelines for Educational Reform and Development Program（2010-2020）was formally promulgated. The formulation of the document lasted nearly two years，and in the course of drafting，several innovations were made，such as keeping the process of decision-making open to the public，and various stakeholders involved in educational reform could strive to safeguard their interests like players in a game. This article tries to clarify the process of its formulation and interpret the expression of interests of various stakeholders in the process of decision-making related to important public policies，and tries to assess the rationality of the entire process of decision-making and to what degree it could be regarded as scientifically sound.