The PAM support was only enabled with configure option
--enable-account-tools-setuid. The other account tools would use PAM
then to verify that the user is granted elevated permissions for
actions which normally only root can do.
In chage, however, any non-root user who does not specify the -l
command line option is denied access in check_perms. The check for
being root or not is done with getuid, so non-root users cannot
change user account's aging information in any possible way since
more than 18 years by now.
It's safe to say that nobody misses this non-existing feature. Biggest
benefit is to get chage out of the ACCT_TOOLS_SETUID group of tools.