Design is about making change. Our aim is to turn an existing situation into a better situation. Sometimes that might be about designing a new thing. But other times it may be about allowing change to happen.
If we are interested in the latter then a useful question to ask is what is holding the existing situation in place? What is reinforcing the status quo? What is stopping innovation? What is preventing change?
Sometimes we need both. We need to float a new idea, but to stop it from sinking, we need to also create the conditions for change. But other times, it may be sufficient just to design the conditions for change, and then to allow something that has been waiting to emerge the chance to develop.