Abstract
This article examines how the governance idea of co-creation is translated into practice within an area-based initiative addressing socio-economic challenges in a Norwegian municipality. Drawing on interviews, documents and field notes collected between November 2024 and March 2026, the qualitative case study combines translation theory with perspectives on institutional work and boundary work. The findings reveal a vertical translation asymmetry. At the strategic level, co-creation is translated primarily into internal coordination and resource mobilization across municipal units, while the designated arena for external participation remains inactive. At the operational level, collaboration with non-profit organization and volunteers develops through concrete activities and boundary-crossing arrangements. These practices demonstrate external participation and resource exchange, thereby reproducing selected elements of the co-creation idea, while shared problem-definition and design are less clearly documented. Relational working practices develop alongside continuing bureaucratic responsibilities. The study contributes to research on governance ideas by showing how co-creation acquires different practical meanings across organizational levels within the same initiative. Internal coordination may support operational collaboration while strategic authority remains within the municipality. The findings highlight the distinction between organizational conditions for co-creation and practices involving shared influence over problems and solutions.