Instrument-service design misalignments in community age-friendly governance in China (1993-2025): A place-based analysis

BackgroundPersistent mismatches between policy instruments and service design dimensions have hindered the delivery of inclusive aging services in Chinas community-based governance. While aging policy agendas increasingly reference integration and user-centred care, the operational tools remain biased toward infrastructural and regulatory interventions. This study addresses the gap by linking policy instrument theory with design-informed service logic. MethodsA two-dimensional analytical framework was developed, mapping 22 policy instruments to six service design dimensions--procedural integration, emotional support, participatory engagement, informational communication, institutional coordination, and strategic goal setting. Based on 48 national-level aging policy documents issued from 1993 to 2025, we conducted NVivo-assisted coding, word frequency mapping, and co-occurrence heatmap analysis. Fieldwork in Zhenzhu Community (Feixi County) further substantiated institutional coordination patterns and local service implementation dynamics. This framework was applied to identify and analyze coordination issues through empirical data from policy documents and non-participant observation. ResultsThe analysis identified a path-dependent reliance on supply-driven and environmental instruments, with limited attention to demand-responsive and affective elements. Three key coordination failures were identified: procedural fragmentation, emotional neglect, and cross-sectoral misalignment. Empirical findings from Zhenzhu Community highlighted how these mismatches weaken service continuity, marginalise older adults lived experiences, and restrict adaptive planning. ConclusionBy integrating service design principles into instrument analysis, the study reframes how institutional configurations shape aging governance. A recalibrated policy instrument mix--one that embeds feedback loops, promotes participatory mechanisms, and strengthens interdepartmental collaboration--is essential for enabling adaptive and user-centred service systems. The proposed framework offers transferable insights for policy reforms in other lower- and middle-income countries facing parallel demographic and governance challenges.