During the 14th Five-Year Plan period, higher education has entered a new stage of development, and provincial governments, as key players in the construction of higher education, have issued policies to accelerate the construction of higher education. This article constructs a two-dimensional analysis framework based on policy themes and policy tools, and quantitatively analyzes the 14th Five-Year Plan for the Development of Education issued by provincial governments in China. Research shows that policy themes cover a comprehensive range, but there are differences in policy supply. Policy tools are used, but there is a lack of scientific interrelationships. The coupling between policy tools and policy themes is relatively low. Future policy adjustments should make up for the shortcomings in policy supply to fully leverage the basic functions of universities, use comprehensive policy tools and optimize the interrelationships between policy tools, and pay attention to the coupling of policy themes and policy tools to stimulate the vitality of university development.