With the increasing of public-private cooperation, the boundaries between two parts had blurred. When choosing policy, the state not only needs to coordinate within the bureaucracy, but also to communicate with the civil society via different channels. However, since the state and civil society cannot establish the concept of mutual empowerment, the non-profit lottery did not carry out the intended results. Applying the concept of mutual empowerment, this paper suggests if the state and civil society can establish an interdependent policy network.