Health touches everyone, especially those living in underserved areas. China, who started its New Medical Reform in 2009, has highlighted the baseline health equity for rural residents who relatively stand in a lower social and economic level compared with their urban counterparts. According to the current research on baseline equity for health, scholars’ views vary on the definition of baseline equity and it is urgent to formulate a conceptual framework of baseline equity to guide the health policy in rural China. This paper tries to make up the insufficiency of present research and to construct a conceptual framework on baseline equity for rural basic medical insurance based on policy process theory in China. On the basis of a calculation model for baseline (in) equity index and regression model for influencing factors of baseline (in) equity, a complete conceptual framework for baseline equity of rural basic medical insurance has been formulated by analyzing the whole policy process of rural basic medical insurance and interactive gaming among all stakeholders.  This framework begins with the policy backgrounds of rural basic medical insurance from the perspectives of politics, economics, culture, and society, and mainly focuses on gaming among all stakeholders involved in the health related issues including policy objectives, policy programs, program evaluation and program selection, and aims at the achievement of goal of baseline equity of rural residents eventually. It is hopeful to adapt this conceptual framework to clarify the meaning of baseline equity for health, to evaluate the degree of baseline equity of rural China and to provide reference for other developing countries in the future research.