How can cities learn from each other? Evidence from China's five-year plans

International organizations such as the United Nations, the World Bank, the Organization for Economic Cooperation and Development, and the International Monetary Fund routinely organize cross-learning programs on specific topics for their member governments. Likewise, many national governments organize offers little theoretical or practical guidance on how best to organize such cross-learning activities. One fundamental question is whether to proceed on the basis of cohort- or task-oriented programs, where a cohort-based approach would emphasize shared, institutionalized learning over time amongst local governments with shared planning priorities. To assess this question, we use a case study comparing 286 cities and their avowed priorities for China's 11th and 12th Five-Year Plans. The evidence from our case study supports a task-rather than a cohort-oriented approach. Moreover, because of China's unique administrative structure, with an integrated approach entailing proactive national level guidance and directives, we conclude that for most other countries a cohort-oriented approach would be even less effective. The practical implication of these results is that a task-oriented approach to cross-learning is more advisable.