It seems Forming Qing has a bug.
Forming Qing change Manchu's Steppe Nomad government to Despotic Monarchy, however, it needs Manchu must not have a tribal government. So without government's reformed, Manchu cannot form Qing.(because steppe nomad government is regarded as tribal one) Ironically, it makes Forming Qing's reforming useless. I think Qing's allowing condition must be easier and more effective.