What does guideline-like nature mean?

According to the General Law of Education, the PNDE has a guideline-like nature. It is usually assumed that guideline-like is opposite to binding; but this is not the case for PNDE since the guideline-like planning refers to elaborating a master plan on one country's development horizon in the mid or long runs within a given ambient that includes far-reach purposes and objectives as well as possible action strategies, all of which comes from the agreement amongst society's main players. Guideline-like planning corresponds to the political level of the planning.