How citizen representation matters in co-production

This Research Brief was written as part of ANZSOG’s The Bridge research translation project and summarises a piece of academic research relevant to the public sector.

Co-production holds the promise of more responsive public services. An article in the Australian Journal of Public Administration discusses the role of representation in co-production and its impact. It shows that when a co-production program features demographically representative participants, willingness to co-produce increases. The article also suggests that policymakers can improve citizen participation by providing clear and accessible information that connects to participants’ experiences. 

The article draws on research in Aotearoa New Zealand which presents a unique bicultural setting for co-production and the representation of Māori. 

Understanding co-production 

Co-production emerged as a concept in the late 1970s and early 1980s as a way of understanding the role citizens can play in delivering public value. Early definitions focused on citizens contributing alongside service providers, but the concept has since evolved with changing approaches to governance and civic participation.  

More recent perspectives emphasise co-production as an ongoing partnership between governments, service providers and community members, where all participants make meaningful contributions to the design and delivery of services. 

This evolution of co-production reflects a broader shift towards more participatory approaches that value citizen involvement across all stages of public service delivery.   

Co-production is extending beyond service delivery to include:  

• identifying needs (co-commissioning)

• designing services (co-design) 

• contributing to delivery (co-delivery) 

• evaluating outcomes (co-assessment).  

This view moves away from seeing citizens as passive recipients of services and instead positions them as active partners in shaping and improving public services. 

Representation as a foundation of legitimacy in co-production 

Research shows that when public institutions better reflect the diversity of the communities they serve, citizens are more likely to trust them and view them as legitimate. 

Studies also suggest that people may be more willing to participate when contributors reflect the demographics and experiences of the broader community. 

Recent developments suggest that co-production initiatives perceived as inclusive and representative are more likely to be seen as legitimate. This in turn increases motivation to participate. 

About the research 

The research analysed how citizen co-producers’ demographics and the presence of minority leadership influence citizens’ willingness to participate in co-production.  

The study focused on policing in Aotearoa New Zealand. Organised around a collaborative model known as ‘plural policing’, the New Zealand Police have worked to build strong relationships with Māori communities, grounding their law enforcement practices in cultural understanding and mutual respect. 

This collaborative approach to policing presents co-production principles, such as inclusive decision-making and resource pooling between the police force and community members. 

What the research found 

As referenced above, the research found that when participation in a co-production program represents the community demographics, citizens are more willing to co-produce if they are fully aware of that representation. It was community reflectiveness of co-producers, but not public officials, that affected willingness to co-produce. 

The findings also suggest that people are more likely to engage in co-production processes when they see participants who reflect the diversity and experiences of the broader community.  

Representation appears to strengthen perceptions of inclusion, fairness and legitimacy, which in turn can encourage greater participation and trust in the process. The findings also highlight the importance of normative motivations. People are not only motivated by personal benefits or practical outcomes, but also by whether they believe a process is fair, inclusive and representative. 

The presence of a minority leader alone had no significant impact on citizens’ willingness to co-produce. Perceived legitimacy, in terms of the leader's demographics, did not significantly increase the public's intention to get involved. In communities in which experiences diverge sharply along identity lines, representation that resonates at multiple levels may prove critical. 

The bottom line 

The study suggests that practitioners should prioritise inclusive and representative participant selection in a co-production program to improve perceptions of fairness and procedural justice. While symbolic display of diversity is often valued, it may not be sufficient to encourage citizen involvement in co-production. Initiatives should actively promote minority interests and focus on achieving tangible policy outcomes to avoid superficial representation. 

Findings also suggest that policy makers could improve citizen participation by providing clear, accessible information that resonates with participants’ experiences. Individuals more attentive to co-production details respond differently and connecting to experiences increases participation. 

Want to read more? 

Citizens are more willing to co-produce when participants represent community demographics - Wonhyuk Cho, Seulki Lee, Yoon Kyoung Cho and Chevelle Ataera, Australian Journal of Public Administration, April 2026