During the 14th Five Year Plan period, higher education entered a new stage of development, and provincial governments were key players in the construction of higher education. They also issued policies to accelerate the construction of higher education. This article constructed a two-dimensional analysis framework based on policy themes and policy tools, and quantitatively analyzed the "14th Five Year Plan for the Development of Education" issued by the provincial government in China. Research showed that policy themes cover a comprehensive range, but there were differences in policy supply; Policy tools had been used, but there was a lack of scientific interrelationships; The coupling between policy tools and policy themes was 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; pay attention to the coupling of policy themes and policy tools to stimulate the vitality of university development.