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This article aims to understand how territorial managers view the process of local-public-service co-creation. Based on the literature, we have established a co-creation model resulting from the analysis of private and public action at a national level. Strategic management and value co-creation are linked to characteristics of co-construction, managerial/social innovation, and empowerment opportunities. The model is confronted with the situation on the ground through an analysis of interviews and observations regarding the social action sector at a local level. The results confirm the dimensions and variables from the literature and compliment them by proposing a new dimension, i.e., the determinants of co-creation. Finally, three contributions for territorial managers emerge: conflict management as inherent to collective action, the influence of context and interactions as a lever for development, and co-creation to improve the legitimacy of public action.