The analysis of development of innovation in services starts from the interaction of different actors. This research aimed to identify the dynamics of the mobilization of preferences and capabilities of different actors (political decision-makers, users and servers) in the development of the final characteristics of the service and, consequently, of the innovation in the public health context of a municipality located in the south of Brazil. Was carried out analysis of data from descriptive and inferential statistics of case study. The main results highlight the preponderance of the operation of server capacity for mobilization of different types of innovation, and consequently the production of the final characteristics of the health service. In this context, service innovation can finally be taken as the endogenous decision-making process of the organizations that make up the sector and that derive from the very nature of health services. Finally, we described the limitations and future research opportunities.