In the context of China’s aging population, the existing research on home and community elderly care services mostly focuses on single case analysis or the path of technological empowerment, with relatively insufficient explanation of how multiple policy tools can be coordinated to promote the optimization of home and community elderly care services. Based on the grounded theory method, this paper selects 51 national home and community elderly care service reform pilot cases and constructs a multi-policy tool synergy logic model of “institutional synergy-service synergy-technological synergy-social synergy-quality synergy”, revealing the operational mechanism of multiple policy tools promoting the optimization of elderly care services. The research finds that institutional synergy builds a rigid governance framework through policies and regulations, financial guarantees, and cross-departmental collaboration; service synergy promotes the precise and efficient supply of elderly care services; technological synergy enables precise service delivery through smart platforms and intelligent devices; social synergy helps multiple stakeholders integrate into the elderly care service system to fill service gaps; quality synergy achieves closed-loop protection through standard regulations and risk control. The synergy logic model driven by multiple policy tools not only resolves the dilemma of fragmented elderly care resources and diversified demands but also provides a systematic theoretical framework and practical reference for the innovation of China’s elderly care service system with its own characteristics.