In this chapter, we analyse how co-creation is constructed in Norwegian parliamentary white papers over a period of ten years. The documents cover the policy areas public health, health and care. By using concepts and theories from a growing literature on co-production and co-creation, such as active involvement, responsibility, partnership, individual and collective actions, we study similarities and differences over time. Methodologically we use a close reading approach searching for concepts, meaning and discourses in the texts. The analysis indicates a movement where a responsibilisation discourse is emerging and incorporates elements from existing discourses on democracy and efficiency. In that way, it is an open question whether co-creation in the Norwegian welfare context is primarily about additive co-creation or whether there is a turn towards substitutive co-creation, that is, that relatives and private actors are expected to replace public welfare services in various ways.