A quick primer
Google's own troubleshooting checklist for a campaign that's "hit a ceiling" names several independent categories of cause, split between targeting and creative: check whether CPA/ROAS targets are too restrictive — that's a bidding/targeting issue, blocking auction participation; check whether there are enough creative assets of every type and size, aiming for an "Excellent" Ad Strength — a purely creative category; try adding or refreshing search themes — a semantics/targeting category; and audit whether account- and campaign-level exclusions are limiting reach — also targeting. In other words, Google's own advice is to work through independent checkpoints in sequence rather than guess at one overall cause.
A dedicated official tool for pinpointing the cause is the channel performance report: it includes diagnostics in the Status column of the channel distribution table, surfacing specific areas limiting serving on each channel along with recommendations to fix them. That's the closest thing to a direct answer to "targeting or creative," since the diagnostic usually points to a concrete cause on a specific channel rather than a vague overall underperformance.
There's also an important methodological caveat worth applying to any numbers you look at: PMax optimizes for marginal ROI — so an averaged ROI/CPA for a specific channel or segment can be misleading; even a segment with a lower average ROI may be the most valuable traffic with the highest marginal return in specific auctions. A low average for a channel or segment isn't, by itself, proof of a targeting or creative problem.
What to check before you touch anything
- Whether the CPA/ROAS target is set too tightly — via the bid strategy report: if actual cost per acquisition is consistently above target, that limits auction participation regardless of creative quality.
- Whether every asset group has reached "Excellent" Ad Strength — if not, part of the problem is definitely creative, and worth fixing before further targeting diagnosis.
- What the Status column in the channel performance report shows — a direct, official pointer to a specific limiting cause by channel.
- Whether budget is the real constraint — via budget pacing insights and Performance Planner, since a budget cap can masquerade as a "performance problem" when the cause is elsewhere.
- Whether you're drawing conclusions from a segment or channel's average ROI/CPA alone — that can be the wrong basis for a decision given how marginal-ROI optimization works.
Possible approaches
- If the CPA/ROAS target is unrealistically tight — loosen it to a more realistic figure based on actual data from the bid strategy report before touching anything else.
- If Ad Strength is below "Excellent" in even one asset group — start by expanding the creative set (text, images, video across all formats) before moving on to targeting hypotheses.
- If the channel performance report's diagnostics point to a specific cause (narrow exclusions, insufficient reach on one channel, for example) — fix that specific issue rather than blindly changing creative or targeting.
- If account- or campaign-level exclusions (negative keywords, brand exclusions, placement exclusions) haven't been reviewed in a while — audit them for continued relevance, since they directly limit reach and can masquerade as "low performance."
- Don't draw conclusions from a segment's or channel's average ROI/CPA without accounting for marginal-return logic — when in doubt, weigh the campaign's overall result against its goals rather than isolated channel averages.