This research aims to develop a mathematics instructional model based realistic mathematics education (RME) to promote students' problem-solving abilities. The design research used Plomp models, which consists of preliminary phase, development or proto-typing phase and assessment phase.  At this study, only the first two phases conducted. The first phase, a preliminary investigation, carried out with a literature study to examine the theory-based instructional learning RME model, characteristics of learners, learning management descriptions by junior high school mathematics teacher and relevant research. The development phase is done by developing a draft model (an early prototype model) that consists of the syntax, the social system, the principle of reaction, support systems, and the impact and effects of instructional support. Early prototype model contain a draft model, lesson plans, worksheets, and assessments. Tesssmer formative evaluation model used to revise the model. In this study only phase of one to one evaluation conducted. In the ppreliminary phase has produced a theory-based learning RME model, a description of the characteristics of learners in grade VIII Junior High School Padang and the description of teacher teaching in the classroom. The result showed that most students were still not be able to solve the non-routine problem. Teachers did not optimally facilitate students to develop problem-solving skills of students. It was recommended that the model can be applied in the classroom.