How can policy-makers ensure that they include the voices of racially minoritized citizens deemed ‘hard-to-reach’ in service delivery? This article uses a design experiment methodology to examine how co-creation can achieve social innovation in service delivery. It discusses a theoretically-informed empirical investigation into how inclusive co-creation can lead to social innovation. Inclusive co-creation was found to allow racially-minoritized groups to articulate their needs. However, where they have limited influence on service delivery improvements, the co-creation process cannot be said to be socially innovative.