Risk is an important factor when public issues are at stake. This paper develops a systems model of risk, aimed at public stakeholder domains. The model uses a narrative that recognises that decisions are subject to risk appetite, and so risk is not always undesirable. The model reframes traditional risk components in terms of systems thinking and in doing so critiques quantitative risk measures, which may have reached a natural ‘limit of growth’ when current public interests are considered. By applying the systems model of risk to cases such as transport, food and health, risk is seen as an emergent property resulting from patterns of forces, and is therefore governed by resilience. As users of public services currently have limited access to policy making, the model aims to increase access to risk judgements when risk quantification alone is inadequate.