Indigenous public policy is increasing moving towards shared decision-making and formal partnerships as a mechanism in policy development. This has implications for how we build the capability of the sector, including of Indigenous public servants.

As evidence of this, the national cabinet agreed in July to the National Agreement on Closing the Gap. For the first time, Indigenous non-government stakeholders, represented through the Coalition of Aboriginal Peak Organisations, were parties to this agreement. They have an ongoing role as decision-makers through a formal partnership. This was a historic moment in intergovernmental relations.

The original Closing the Gap framework (2007-08) included six targets and $4.6 billion in investment to deliver nationwide outcomes. Viewed through different lenses, the framework was both a success and a failure. On the positive side, it brought a new level of accountability to government action and a system-wide approach to reform. On the negative side, it failed to capitalise on the momentum for change that had been developed through the non-government sector in the years leading up to these COAG agreements.

The momentum for change came in part from a campaign led by the then-Aboriginal and Torres Strait Islander Social Justice Commissioner, Tom Calma AO. Given this origin, the framework of 2007-08 lost a key asset when it took the form of COAG agreements. Much of the leadership required for sustained change lies in local communities and families. Many of the services required to deliver outcomes are delivered through Indigenous organisations. A more connected approach could have better harnessed a much broader reform ecosystem than just government services.

In 2018, when the newly formed Coalition of Aboriginal Peak Organisations wrote to the Prime Minister and chief ministers, there was support within the public service and a political appetite to secure an agenda that had the support of Indigenous communities and organisations. Having worked on the refresh process at that time I can attest that working in partnership was never an easy journey. The political theatre employed by all groups through the later stage of this negotiation was as dynamic as in any other intergovernmental negotiation. But it was a very new way of doing business.

For the public sector to deliver outcomes in Indigenous affairs, it requires a well-informed, culturally competent public service. One that can draw on the knowledge and expertise of its Indigenous members to stay informed of local Indigenous policy priorities, agendas and politics. If the public service is to respond to the challenge of doing business in partnership with Indigenous Australians, it will need to accelerate the growth of this capability.

My recent time in the public service gave me new perspectives and experiences of the effort and commitment made by public servants to achieve lasting change. Among my colleagues were bright, enthusiastic and passionate Indigenous Australians searching for ways to make a change for their communities, families and others. Their personal investment needs to be matched by investment in their professional development by the public service, and matched by non-Indigenous colleagues in a lifelong learning about Indigenous experiences.

The public service continues to work hard to grow participation of Indigenous Australians in the public service. However, that is not enough. Indigenous Australians continue to be over-represented at the more junior levels of the Australian Public Service, and not in roles where they can contribute to policy leadership.

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Programs providing alternative pathways for entrance to the public service have been successful, attracting high-calibre staff. I was pleased to meet people from regional communities working in Canberra, bringing with them unique perspectives and experiences that enrich the public service. An ongoing issue for the public service remains the continuing investment in Indigenous staff who join the public service through these pathways, only to disengage after a few years without guidance on how to develop their careers. The Australian Public Service Commission has released The Commonwealth Aboriginal and Torres Strait Islander Workforce Strategy 2020-24 in recognition of these issues.

A young Indigenous high school graduate can follow a traineeship entry, but not understand how to market transferable skills and their experience into promotion or a lateral move into other streams of work, such as policy. A structured mentoring and development program could improve engagement and provide pathways for more Indigenous public servants to move through the public service and instil much needed Indigenous perspectives in all policy areas. A critical key is pathways to achieving the university qualifications that provide the analytical capability they require for more senior positions and policy roles.

Another challenge for the public service is the retention of well-qualified and competent executive-level officers. In the past decade, several public service agencies have invested in recruitment programs to target Indigenous graduates - indeed the Department of Defence developed such a successful program that the retention rate was better than for non-Indigenous graduates. As the Indigenous business and non-government sector has developed, Indigenous executives are targeted for recruitment. There is scope to support Indigenous executives taking external development opportunities, allowing them to give back to communities and Indigenous-run organisations, bringing back more experience to the public service senior leadership.