What does と創る mean? (市民と創る教育改革)


I found these

> 市民と創る教育改革

> ハハ... クイーンさまと創る理想の世界での姿にしてました。

  * Does this と indicate something done with x?

I understood the sentences as

> An Educational reform made together with the citizens

> I made it look like the appearance I would have in the world me and the
> queen will make

