Change in the public sector rarely happens in a straight line. It’s often messy, nonlinear, and impacted by a complex web of legacy systems, stakeholder interests, political realities, and cultural norms. Because of that, a successful transformation requires more than just a checklist or enthusiasm—it requires structure.
The GRIFFOX Layered Cake Model is a step-by-step, purpose-built public sector change framework designed to guide leaders and organizations through sustainable transformation. It is named “Layered Cake” not only for its visual metaphor, but because change, like baking, must be built from the bottom up—deliberate, measured, and solid before the next layer can be added.
Each layer in the model supports the next. Skipping one jeopardizes stability. This structure ensures progress is real, measurable, and long-lasting. Let’s explore the model in detail, from its base to its goal—so that you can understand how to lead change with clarity and confidence.
FOUNDATION: Experience & Readiness
Every change journey begins by examining where you’re starting. In the foundation layer, the focus is on understanding the environment, evaluating readiness, and recognizing the lived experience of the team and organization.
This layer is diagnostic in nature. It asks:
- Why is the change being considered? What’s triggering it?
- What systems, structures, or historical challenges already exist?
- Who will be impacted—and who needs to be involved from the beginning?
- How ready is the organization to absorb and lead through this change?
A successful public sector change framework doesn’t assume readiness. It surfaces both overt and hidden resistance, identifies champions, and clarifies the constraints that shape what’s possible. Starting here prevents misalignment later.
FRAMEWORK: Diagnostics & Capabilities
Once the foundation is solid, the next layer establishes the framework for change. This is where a shift moves from concept to strategy. Organizations must evaluate whether they have the capacity, knowledge, sponsorship, and tools to support the desired transformation.
Key components of this layer include:
- A clearly articulated change plan aligned with organizational priorities
- A review of current capabilities and gaps
- Identification of ownership and accountability
- Assessment of whether leaders are truly sponsoring the change—or simply observing it
- Tactical preparations for what individuals and teams need to succeed
Without a robust diagnostic process, no public sector change framework can account for the unique operational and cultural realities inside public institutions. A weak structure here results in costly course corrections later.
IMPLEMENTATION: Execution, Steering & Communication
With the framework in place, implementation becomes possible. But execution is not the same as momentum. The implementation layer focuses on aligning action with strategy and providing mechanisms to adjust in real time.
Execution within a public sector change framework requires more than action—it demands monitoring, dialogue, and the flexibility to adjust.
Key questions:
- Are actions being taken as planned—and are they working?
- Are there feedback loops in place for adjustment?
- Is there active communication flowing in both directions?
- Are the steering efforts visible and grounded in data?
Public sector projects often face scope creep, political shifts, and staff turnover. Without implementation safeguards, even the best frameworks stall. This layer requires discipline: actions must remain aligned with strategy, while communication ensures people stay engaged and informed.
REFLECTION: Deliverables & Sustainability
After implementation, it’s time to reflect. This layer assesses what’s working, what’s been delivered, and—most critically—what will continue beyond the initial push.
This is where sustainability is built.
Reflection means asking:
- Have the planned deliverables been achieved?
- Has the change reached the people it was intended to reach?
- Do teams understand and own the new way of working?
- Are there institutional mechanisms in place to maintain it?
Embedding sustainability mechanisms is what elevates a public sector change framework from project-based activity to lasting impact. This layer ensures the transformation is not only effective but embedded. Without it, success is temporary.
GOAL: Stability & Celebration
At the very top of the cake lies the goal—the intended outcome of the transformation. This is not just a box to check or a milestone to reach. It is the full realization of a journey that began with understanding the need for change and preparation.
This final layer is where:
- Strategic goals are reviewed and confirmed
- Wins are documented and celebrated
- Institutional learning is formalized
- Stakeholders can reflect on how far they’ve come
The goal isn’t just success—it’s sustainable success. And the only way to achieve it is by building every layer before it. The cherry on top only holds when the cake beneath is fully baked and stable. And that’s exactly what a reliable public sector change framework should deliver.
Why This Framework Works
The strength of the GRIFFOX Layered Cake Model lies in its simplicity and structure. It guides leaders from abstract intentions to concrete results. Each layer addresses the most common failure points of public sector change—assumed readiness, unclear accountability, isolated actions, and unsustained progress.
By following this sequence and resisting the urge to skip ahead, organizations increase their odds of real, lasting transformation.
It is not just a tool—it is a mindset shift. And it represents the kind of public sector change framework that agencies and leadership teams can trust.
We’ve seen this model applied across a wide range of public contexts—from reorganizing health departments to implementing new digital case management systems. In each case, what made the difference wasn’t just having a plan—it was having a public sector change framework that could adapt to feedback, honor cultural norms, and guide people through uncertainty with structure and transparency.
A Final Observation: Reading GRIFFOX from Top to Bottom
There’s one last insight to share. The name GRIFFOX Consulting isn’t just a brand—it reflects the structure of this model itself. If you read each layer from top to bottom, it forms the acronym:
- G – Goal
- R – Reflection
- I – Implementation
- F – Framework
- FO – Foundation
- X – (Organizational) eXperience & Readiness
It’s a deliberate structure, and one we’ve used across workshops, departments, and strategic sessions to help teams understand that sustainable change is layered, not linear. Every letter matters. Every phase counts.
Frequently Asked Questions
Why is it called the Layered Cake Model?
Because meaningful change must be built step by step. Just like a cake, each layer in a change effort depends on the stability and completeness of the layer beneath it. You can’t rush a layer or skip it entirely—doing so risks collapse. This metaphor has helped many public teams visualize the process in a more intuitive, relatable way.
How is this different from other models like Kotter or ADKAR?
This model complements them but is uniquely grounded in the realities of public institutions. The GRIFFOX Layered Cake Model doesn’t just describe what change looks like—it provides a public sector change framework tailored to environments with overlapping mandates, regulatory constraints, and cross-agency complexity. It’s visual, practical, and designed for how government really works.
Who is this public sector change framework designed for?
The GRIFFOX Layered Cake Model is ideal for public sector leaders managing transformation—whether it’s implementing a new digital system, navigating policy reform, restructuring teams, or coordinating cross-agency efforts. It works at the city, county, state, and federal levels, and adapts to both small departments and large systems. If your initiative requires clarity, structure, and buy-in across multiple teams, this framework provides the scaffolding to guide the process.
Ready to Lead Sustainable Change?
If your agency, department, or institution is preparing for transformation—or is in the middle of one—let’s connect. The GRIFFOX Layered Cake Model is not just theory. It’s a proven, practical public sector change framework built from years of experience and adapted for your context.
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