Drawing on co-production theory, this study, through an empirical analysis of centralized residential governance in L Village, X Town, Shanghai, reveals that policy communication is inherently a co-productive process. However, the interplay between structural environments and residents’daily lives generates“information noise”—subjective cognitive distortions that hinder effective communication. In this context, grassroots policy implementers act as“noise reducers,”employing policy discourse, local knowledge, and affective narratives to align diverse public perceptions into a shared framework, thereby fostering consensus. This study extends co-production theory from public service delivery to policy process analysis, uncovering the dual constructedness of communication (the state-society interplay) and offering practical insights for enhancing governance precision.

policy communication, co-production, informational noise, hybrid discourse, consensus