Social innovations and social enterprise have been seen as innovative measures to achieve sustainable development. Drawing on an evaluation of a development project on creating social enterprises in Sweden, this article analyzes social innovations as a policy area. The policy area is often described as loaded with ideological contradictions. The aim of the article is to explore underlying premises and discourses in policy implementation aimed at creating social innovations in a comparison between two ideal types on social sustainability—(1) an individual activation strategy (responsibilization of the individual) and (2) a societal equilibrium strategy (balancing social values). The research question is inspired by Carol Bacchi’s policy theory and asks what is the problem represented to be? The analysis is carried out at the micro-level as a context-sensitive approach to explore articulations made among actors creating the policy and entrepreneurs participating in a locally organized project. The article contribute with a better understanding of how societal problems and their solutions are discursively determined, with implications for policy makers and project managers active in this policy area. The analysis and findings indicate a significant policy shift during the implementation process. Initially, the policy idea consisted of well-considered ambitions to create a long-term sustainable development. During the implementation of the project, the problem’s representation changes gradually in the direction towards individual activation. This transition is driven by pragmatic difficulties of defining the policy area, problems of separating means from ends, and the need to make decisions based on a limited range of information. We conclude by emphasizing the need for reflection on how the social dimension is defined when implementing social innovation strategies. Furthermore, there is a lack of studies of how this policy area can be linked to policies for social sustainability. © 2021 by the authors. Licensee MDPI, Basel, Switzerland.