A municipality investigated why some residents rarely used a new service. Staff first assumed information had not reached them, so produced more posters and online messages. Use barely increased. Direct conversations revealed other reasons: opening hours conflicted with work, the venue was hard to find, and some were unsure what they could ask. The municipality changed several parts of the service, not just information. They clarified access, tested other times and explored making first contact less demanding. More people used the service, but experiences still differed. Inclusion cannot be reduced to a poster's quality or one measure. It emerges where people, frameworks and expectations meet. An offer can be open to all in principle but difficult in practice. Assessment must therefore include those who do not appear. They can reveal barriers regular users never notice. An inclusive service thus needs the ability to learn, not merely the willingness to invite.