Cardinality-Invariant Neural Operator Policies for Scalable PDE Control

Controlling partial differential equations (PDEs) with learning-based policies remains fundamentally limited by fixed-dimensional representations: policies trained for a specific sensor, actuator, or agent configuration typically fail when the configuration changes. This limitation is particularly severe in multi-agent PDE control, where policies do not scale across population sizes without retraining. We address this challenge by reformulating PDE control as an operator learning problem that maps state fields to continuous control functions and trains them end-to-end through differentiable PDE solvers, yielding policies that naturally adapt to varying sensor and actuator configurations. Remarkably, policies trained on small swarms exhibit cardinality invariance, allowing for zero-shot transfer to significantly larger populations as well as robustness to partial agent failure. This scalability arises from agents sharing a common policy and coordinating through their physical environment, which produces an emergent self-normalization effect. To explain this phenomenon, we provide a theorem grounded in mean-field theory demonstrating that policy gradients computed from finite-agent systems converge to those of a continuous control limit. Empirically, we validate the framework on tracking, stabilization, and density transport across linear, nonlinear, chaotic, and turbulent PDEs.