This study contributes one of the first explorations into how provincial governments shaped the WCU building discourse in tandem with universities. Using a resource dependence approach and insights from institutional isomorphism, it develops a conceptual framework with three perspectives (national government, provincial governments and 'ministerial universities') to understand the relationship between national policies and local authorities' and institutions' strategic adaptations. This study shows that there are variations in how quickly provincial governments and universities within them respond to national policies. However, provincial reports and institutional strategies exhibit isomorphism with the national goals in the model of goal setting and interpretation of WCU definition. China's national policies for building WCUs reinforce provincial governments' and ministerial universities' resource dependence on national government, leading to the adoption of similar goal-setting approaches. However, an ambiguous understanding of WCU definition also prompts the imitation of building WCUs strategies. The ministerial universities develop tailored development plans, reflecting their reliance on provincial governments for critical resources, in light of the variable development advantages and requirements of provincial governments. Hence, the tension of homogeneous goals-setting oriented towards the national standard and diversified provincial development needs in the building WCUs pose a great challenge to local innovative practice.