I identified the nature of Cambodian pedagogical reform as follows: (1) it is a social practice where various actors with different backgrounds and interests actively construct and reconstruct the meaning, mediated by tools; (2) it is a reversible process that involves dynamics and tensions both within and across levels; (3) it is not just a pedagogical project, but it has political, social, and cultural facets that define its shape and scope. In particular, I found that policy messages were expanded, modified, and even transformed in the communities of practice at different levels, as a result of actors' negotiation of meaning.