<p>This paper examines the policy implementation in service-learning and student engagement at six universities in Central China. Through policy text analysis and semi-structured interviews, the study identifies multiple participation patterns shaped by course mechanisms. In cases where two-way evaluation, service agreements, mid-term checkpoints, and financial support were added to a task-oriented approach anchored in credits and structured reflection, student autonomy, cross-semester continuity, and trilateral collaboration improved. The findings explains the divergence in participation models through the differentiated constraints and incentives embedded in policy mandates, university governance, and course implementation. The contribution lies in a more balanced account of policy effects and an evidence linked explanation of the participation dilemma in Central China’s Universities. It calls for a rethinking of how service-learning is positioned and practiced in universities to better fulfill its purpose of civic education and development.</p>