Co-designing policy with Aboriginal and Torres Strait Islander peoples

Policy development in Australia has often overlooked the rich and diverse knowledge systems of Aboriginal and Torres Strait Islander peoples. This has led to policies that fail to address the needs and aspirations of Aboriginal and Torres Strait Islander communities. Co-designing policy with Aboriginal and Torres Strait Islander peoples can bridge the gap between Indigenous knowledge systems and policy development, fostering trust and creating meaningful change. 

An article in Policy Design and Practice outlines the development a culturally grounded framework which weaves Indigenous perspectives into policy co-design, ensuring inclusive, and culturally informed policies. 

Co-designing policy

Although not a silver bullet, co-designing policy with Aboriginal and Torres Strait Islander peoples has been regarded as a critical undertaking in bridging the gap between Indigenous knowledge systems and public policy development. Done authentically, co-design can inform the way policy instruments align to the needs and aspirations of priority populations that lead to lasting change. Done poorly, co-design can be tokenistic, erode trust and fail to achieve its objectives. 

Developing the framework

A gap remains for a consolidated framework for co-designing policy with Aboriginal and Torres Strait Islander peoples. The development of the culturally grounded framework sought to answer the question: 

• What does best practice and an evidence-based approach look like when co-designing policy with Aboriginal and Torres Strait Islander people?  

A framework synthesis approach was used that drew on academic literature, case studies, and research yarning circles. It was guided by an Aboriginal basket weaving theoretical framework. This centres relationality, interconnectedness and Indigenous knowledges and practices (e.g. storying and yarning) in data collection, analysis and interpretation. Its five elements are: 

1.Core: provides basket’s structural integrity (usually requires stiffer and/or more tightly woven materials). 

2.Grasses: weave around the core creating the basket’s beauty. 

3.Steady hands: maintains basket’s tension and shape. 

4.Mind: requires patience to repeat the weaving pattern and relax into storying and yarning. 

5.Needle: connects, pulls and places the grass to attach it to the core. 

The culturally grounded framework

The culturally grounded framework for co-designing policy with Aboriginal and Torres Strait Islander people (the Framework) was developed in accordance with the basket weaving framework with the elements rearranged. It is depicted in Figure 1 below. 

Figure 1. Culturally grounded framework for co-designing policy with Aboriginal and Torres Strait Islander peoples (Fono et al, 2025) 

Mind 

The weaver’s mind visualises the basket’s shape, texture, appearance and functionality by evaluating and testing the interconnectedness of its constructs. Analogous to co-designing policy, the Framework’s mind requires cultural, political and intellectual insight to envision, plan and ultimately determine the policy’s design.  The Framework prioritises reciprocity by upholding transparent decision-making that privileges Indigenous contributions, recalibrating traditional power structures toward centring community needs. 

Core 

Just as every woven basket needs a core, all co-designed policies require a resilient foundation. The framework’s core endorses the inclusion of Aboriginal and Torres Strait Islander peoples’ expert contributions from the policy problem identification stage. Throughout the weaving process, the core can sometimes become hidden, so Aboriginal and Torres Strait Islander ways of knowing, being and doing must be meaningfully incorporated to ensure its visibility from the very beginning and throughout. 

Hands 

The Framework’s hands symbolise Indigenous governance and cultural agency. Co-designing policy must be Indigenous-led so that policy delivery, evaluation and accountability mechanisms are woven throughout the policy’s design. 

Grass 

Just as the type of natural weaving materials determines the basket’s resilience and adaptability, the Framework’s capacity to withstand changing political circumstances and other challenges is dependent on the participants’ voices informing the policy content. yarning and storying are imperative to co-designing culturally informed policy as they preserve respectful and safe spaces for honest, open, non-linear and free-flowing dialogue. 

Needle 

The needle represents the essential tools and resources required for co-designing policy, such as funding and facilitation methods like workshops. The needle relies on the hands for direction and control and helps to bring the mind’s visions to life through careful and precise weaving. The needle also symbolises the pen writing the policy, which policymakers must be willing to surrender or share with Aboriginal and Torres Strait Islander peoples to uphold Indigenous governance. 

Framework implementation challenges

Three implementation challenges are identified. First, policymakers may be hesitant to use the Framework as it is an unfamiliar approach that lacks precedence. As cultural responsiveness varies across public contexts, some agencies may have more capacity to adopt the Framework than others. Secondly, just as no two woven baskets are ever the same, co-designed policies will inherently differ. This highlights the unique political, bureaucratic and cultural contexts influencing their design.  

Thirdly, Aboriginal and Torres Strait Islander peoples have historically faced repeated disappointments from government initiatives, leading to a deep-seated mistrust. This poses a significant challenge for governments to engage Aboriginal and Torres Strait Islander peoples in co-design processes. Addressing this requires policymakers to genuinely empower Aboriginal and Torres Strait Islander voices by investing in respectful, transparent and consistent engagement. 

The bottom line

The Framework is a call to action for policymakers to move beyond traditional approaches and embrace a culturally enriched process to facilitate lasting and meaningful change toward closing the gap. The Framework elements (mind, core, hands, grass and needle) epitomise an indigenised way of integrating cultural knowledge systems in policies to foster impactful outcomes. 

• A culturally grounded framework for co-designing policy with Aboriginal and Torres Strait Islander peoples – Margaret Apolima Fono, Felicity Chapman, Carmen Parter, Jodi Knight, Simone Sherriff, Vita Christie and Kylie Gwynne. Policy Design and Practice, June 2025

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