IPAA Commencement Address(link is external)

Acknowledgements¹(link is external)

Good evening, everyone.

Let me begin by thanking Wally Bell for his incredibly warm and generous Welcome to Country.

My thanks, also, to Kate Driver, IPAA ACT Chief Executive Officer, and her team for organising this event …

… as well as President of IPAA ACT, Tony Cook, for the great work you're doing.

And I'd like to acknowledge my fellow Secretaries and thank them for being here this evening.

I'd particularly like to acknowledge Gordon de Brouwer, who will shortly conclude three years²(link is external) of leadership at the Australian Public Service Commission.

Gordon leaves the public service stronger and better prepared.

He has been a steward in the truest sense.

Gordon faced the considerable challenge of steering the public service through the aftermath of Robodebt, while also building the capability of the service to deliver for the Australian people.

His legacy is an APS that is more empathetic, more humane, and more attuned to people and their needs.

I wish him the very best and hope he and his husband Michael enjoy the adventures ahead of them.

I would also like to acknowledge Martin Hehir, who is retiring after a career spanning over three decades in the ACT and Commonwealth public service.

Martin's dedication to improving outcomes for Australians and strengthening the capability of the public service has been remarkable.

Everyone who has worked with him knows he is a generous mentor and leader who brings integrity and purpose to every role.

I wish Martin and his family all the best for the next chapter.

Part 1: Bondi and threats global and local

Today, I want to reflect on our changing and more dangerous world, and the threats to democratic institutions.

I'll then discuss how we prepare the APS for challenging times, and how our structures, attributes and capabilities can respond to rapid change.

Because change is happening - and we must change with it.

A few years ago, a Jewish friend gave me a book written by Holocaust survivor Eddie Jaku. The book is called 'The Happiest Man on Earth', and my friend encouraged me to read it.

I was busy and I put the book on shelf. I went back to read it after the events of Bondi and in preparing for this speech. Among the many insights provided by Eddie, this quote stuck with me:

"Hate is the beginning of a disease, like cancer. It may kill your enemy, but it will destroy you in the process too." ³(link is external)

Australia will never forget the victims of the deadliest terrorist attack on our soil that unfolded at Bondi just over six weeks ago.

We also won't forget those whose courage and kindness - in the darkest of moments - showed the very best of the Australian character.

We saw remarkable acts of compassion and bravery that day - from members of the public, to our police and emergency services.

These people were heroes.

In many cases, they put their own lives in danger to come to the aid of their fellow Australians.

In the weeks and months ahead, we will learn more about the circumstances surrounding this horrific attack on our Jewish Australian community.

As the Prime Minister said, we must face the painful truth 'that we could not protect your loved ones from this evil.' ⁴(link is external)

There will be a criminal investigation, a coronial investigation, and a Royal Commission.

Commonwealth and state agencies will also review their actions and performance.

For our Jewish brothers and sisters, this attack came amid a re-emergence of millennia-old antisemitic hatred.

Antisemitism festered in Australia before the tragic terrorist attack in Israel on 7 October 2023.

And the drawn-out conflict in Gaza has given it oxygen - and antisemites think they can use it as an excuse.

The Bondi attack was unprecedented in Australian history - yet, sadly, unsurprising.

Our national intelligence agencies warned us of this threat for some time.

In the decade to August 2024 - when the National Terrorism Threat Level was raised to 'Probable' - ASIO and its law enforcement partners successfully disrupted 24 attacks.

This reflects the efforts of various governments to prevent the threat from being realised.

We will now evaluate our actions - and whether we could have done better to prevent such a horror.

For my part, I will ask: What can the APS do to address the scourge of antisemitism?

Late last year, Alan Finkel's team at Monash University developed a framework for addressing antisemitism in Australian universities.

It recommends consistent definitions, improved reporting and accountability, and culturally informed practices to ensure Jewish students and staff can participate safely and fully in campus life.⁵(link is external)

One of the key recommendations is strengthening leadership capability and accountability to ensure consistent and trusted response for addressing antisemitism - one that genuinely protects the wellbeing of Jewish students and staff.

In line with this, I will work with our APS leaders to consider how we build and strengthen our capability.

Our challenge ahead is not only to defeat antisemitism - it's to defeat and diminish other forms of hateful prejudice, too.

And to do this while maintaining open values, and respect for debate and differences of opinion.

Dividing us is exactly what terrorism seeks to do.

As the Prime Minister has said:

"The spirit of national unity is vital to our national security." ⁶(link is external)

Democracy under threat

And it's vital now more than ever.

Because democracy itself is under pressure.

In September last year, the International Institute for Democracy and Electoral Assistance found more than half the world's democracies are in decline.⁷(link is external)

The Institute's Secretary-General warned the state of global democracy is more uncertain than it has been in our lifetimes.⁸(link is external)

This uncertainty has not arisen in a vacuum, it is closely intertwined with a range of other developments that should give us pause:

… the weakening of the rules-based international order as exemplified by Russia's illegal and immoral invasion of Ukraine …

… the spread of anti-immigration sentiment across the UK and Europe …⁹(link is external)

… and attacks on gender equality that threaten to erode global progress.¹⁰(link is external)

Australia is not immune from the impacts of these developments.

In his 2025 annual threat assessment, the Director-General of Security, Mike Burgess, said:

"Many of the foundations that have underpinned Australia's security, prosperity and democracy are being tested: social cohesion is eroding, trust in institutions is declining, intolerance is growing, even truth itself is being undermined by conspiracy, mis- and disinformation." ¹¹(link is external)

And yet, as much as we're battling these forces, here in Australia our democratic institutions remain strong and trusted.

As I will discuss later, trust in the APS has increased in the past year.¹²(link is external)

We know that trust provides government and institutions with the mandate to act in the interests of citizens and their nation.

But it is how we maintain this trust and respond to threats and shocks - both global and local - that will determine our future.

What strikes me most about the times we're living in is the pace of change.

We can cope with anything - but can we cope with everything?

And do we even have a choice?

As the playwright Bertolt Brecht - who fled Nazi Germany¹³(link is external) - once wryly observed:

"Because things are the way they are, things will not stay the way they are." ¹⁴(link is external)

Now, more than ever, we need to hold onto a long-term view of how we can shape Australia's future for the better - ensuring our collective choices strengthen our democracy.

This means protecting the integrity and independence of the institutions that Australians rely on every single day.

Around the world, we are watching anti-democratic leaders consolidate power by controlling information.

When data becomes political, it stops being trustworthy.

Without trusted information, choice - real choice - becomes an empty concept.

This is why the work of the Australian Bureau of Statistics remains so critical.

Accurate, independent data is essential - not just for managing the economy, but for ensuring transparency and accountability in government.

Likewise, the Reserve Bank's commitment to its mandate gives policy-makers and the broader economy a vital sense of stability.

And all of this sits atop one of the strongest, most trusted voting systems in the world, thanks to the Australian Electoral Commission.

To protect these institutions, we must continue to value transparency, honesty and reason.

We must keep a long-term focus in our policy design and decision-making.

Protecting these institutions is what will help us navigate the more frequent, overlapping shocks ahead - while also keeping an eye on the horizon.

Our success will come not from resisting change, but from embracing it.

For me, there is no choice. We can and will emerge stronger - because that is the story of the APS.

Part 2: The resilience of the APS

Turbulence, of course, is unavoidable.

Even so, thoughtful design makes turbulence manageable.

Planes are built with a structure that isn't rigid; materials flex to maintain forward momentum.

When I look at the APS - where we came from, how we are organised, and the institutions that have emerged and endured over time - I see something similar.

I see a service that is resilient and flexible enough for uncertain times.

Australia's historical prosperity has depended heavily on strong, adaptable institutions - including an independent, merit-based public service and robust federal arrangements.

Institutions that could adjust to changing sources of growth over time.

It is this flexibility - rather than any single policy - that has underpinned our long-term success.

We saw it after the two World Wars, when the Commonwealth progressively took on greater responsibility, leading to the post-war welfare state.

The period of global microeconomic reform from the 1980s drove restructuring in the public service and the broader machinery of government.

And then there is the more recent example of the Black Summer bushfires in 2019, which led to the creation of the National Emergency Management Agency to improve whole-of-government communication and deployment of support and resources.

APS preparedness is an essential component in building a resilient Australia that can effectively navigate disruption and uncertainty.

What's worked before, however, won't necessarily work indefinitely.

We cannot assume that inherited structures will automatically keep functioning as our environment grows more uncertain.

What will sustain us through change is more than evolving our structures.

It's our people.

People who embody trust, curiosity, commitment and innovation.

I saw these attributes in action during our response to the tragedy at Bondi.

The commitment and professionalism shown by APS staff during this time reflected the best of our organisations.

The APS of 2026

Of course, protecting Australia's national security is just one part of a larger whole.

Sometimes when I hear other people speak about the APS, I'm reminded of the parable of the blind men and the elephant.¹⁵(link is external)

Each has a hand on a different part of the animal, and each is sure that theirs is the true perspective.

But with such a limited view, they can't see the full picture.

The APS is a dedicated workforce of 198,000 employees …¹⁶(link is external)

… working in 586 locations across the country …

… and with more than two-thirds serving operational functions.¹⁷(link is external)

About two-thirds of staff reside outside Canberra.

Our work is diverse and broad-ranging.

We're Services Australia, who processed more than 700 million claims last financial year.¹⁸(link is external)

And through myGov, we're assisting millions of Australians with everything from childcare subsidy to medical treatment.¹⁹(link is external)

We're the NDIS, helping 750,000 Australians with disabilities.²⁰(link is external)

And we're DVA, supporting 300,000 of our veterans.²¹(link is external)

From frontline services to policy development, what unites us is a focus on delivering each and every day for Australians.

And we can only do this if we have trust.

Trust of the Australian people in our systems and institutions. And trust in the Australian Public Service as a steward of our democracy.

The good news is that trust in public services has risen to 62 per cent - matching our previous peak.²²(link is external)

That's quite remarkable.

We have increased trust in a global landscape of falling trust.

So how have we done it?

Australians tell us it's better digital services, greater transparency, and improved service quality.²³(link is external)

We need to sustain this momentum - and a good starting place is reinforcing the attributes we expect of all staff.

Like the willingness to challenge.

There's a quote in a training manual from another part of the APS - the Civil Aviation Safety Authority.

It reads:

"The single biggest problem in communication is the illusion that it has taken place." ²⁴(link is external)

In air safety, history tells us it's vital that all staff feel empowered to speak up if they spot potential issues.

To foster a positive environment where staff are encouraged to be curious and voice ideas.

It's not just about risk.

When we're empowered to share ideas, and engaged in our work, innovation follows.

The APS's overall Employee Engagement Index rose to 75 in 2025 - the highest score since the measure was introduced in 2018.²⁵(link is external)

The latest APS Census found 83 per cent of our staff continually look for ways to improve.

More than half feel inspired to work in new and innovative ways, and say their agency supports the notion that 'failure' is a part of innovation.

That last statistic is up 10 points - meaning around 19,600 more public servants expressed a positive view on risk compared to the year before.

This attitude is important.

Going the extra mile to try something isn't a risk. It's mitigation against the biggest risk of all: attempting to stand still at a time when we've got to keep moving.

We can only meet change by being prepared to change ourselves.

From graduates to senior executives, I value one trait above all else: a willingness to ask questions.

Because our people are among the most knowledgeable, talented, and professional in Australia.

And when they're empowered to ask, 'what if?' - that's when they do their best work.

A workforce that represents the community we serve

Innovation also comes from lived experience - which is why we're best able to innovate for the community when we reflect the community.

Since the lifting of the Marriage Bar in 1966, there have been steady and lasting improvements in gender equality in the APS.²⁶(link is external)

Women today comprise just over 60 per cent of the APS workforce overall, and 55 per cent of the senior executive cohort.²⁷(link is external)

We set a goal to uplift First Nations representation in senior management. Our starting point was 54 senior executives who identified as First Nations, and we set a target of 100.²⁸(link is external)

On 30 June 2025, 111 First Nations leaders were serving in Senior Executive Service positions across the APS.

And now we turn our focus to a goal of 5 per cent First Nations representation across the entire APS, up from the 3.4 per cent recorded in June last year.²⁹(link is external)

Inclusion of people with disability is also growing, with 5.8 per cent reported as having a disability.³⁰(link is external)

In the 2025 APS Employee Census, 10.8 per cent of respondents considered themselves to be neurodivergent.³¹(link is external)

Over the past decade, the LGBTIQA+ community has felt safe to be more socially open about sexuality and gender, with the LGBTIQA+ share steadily rising, and is now at 9.5 per cent.³²(link is external)

Cultural and linguistic diversity is also a defining strength, with 26.8 per cent of APS employees identifying as CALD - though this comes with a responsibility to create pathways for similar CALD³³(link is external) representation in leadership roles.

It should go without saying that progress to ensure we reflect Australia isn't a laurel to rest on.

There is more work to do.

But I do take pride in knowing we're increasingly an employer where people of all backgrounds and identities can grow.

We serve the Australian people by creating opportunity for our staff.

And that's when we can drive innovative thinking.

Let me give you an example.

In late 2025, the Australian Government launched a pilot program - led by the Department of Finance in consultation with Treasury - allowing renters to use the national Digital ID system and the Consumer Data Right when applying for rental housing.³⁴(link is external)

This lets renters prove who they are without handing over sensitive documents like payslips or bank statements.³⁵(link is external)

The benefits are tangible: Australians who rent no longer spend days gathering personal documents, and their privacy is better protected.

By applying APS digital credentials at scale, the pilot leverages existing infrastructure to solve a common problem in a creative, risk-aware way.

That's what innovation in the public service looks like: testing ideas, measuring what works, and improving policy design.

We innovate so we can best meet the needs of the government, and the needs of all Australians.

We innovate so we can meet the challenges presented by change.

Conclusion

Yes, we face uncertain and challenging times.

We likely always will.

But our history tells me that when we can be flexible, governance and institutions can be powerful mechanisms.

Mechanisms to not only help Australia react to change …

… but to shape change for the better.

We meet this responsibility with a fit-for-purpose workforce of skilled and dedicated people.

People willing to ask questions, not just accept the same old answers.

People who represent Australia, and all Australians.

Today, I draw confidence from our history.

I take inspiration from our people.

And I face the future with this certainty: during uncertain times, we will always do our absolute best for Australia.

Thank you.

I'd now like to invite Rachel King, Assistant Director at the Attorney-General's Department, and Gordon de Brouwer, Commissioner of the Australian Public Service Commission, to join me on stage as we continue the conversation.

References

1. Thank you to everyone who contributed to the preparation of this speech, including John Ratchford, Michael Romei, Andrew Walter, Karla Rayner and Maddie Sharp. Return to footnote 1↩(link is external)
2. Gordon was appointed as the Australian Public Service Commissioner(link is external) commencing 11 May 2023.Return to footnote 2↩(link is external)
3. The Happiest Man on Earth, Eddie Jaku. Page 187.Return to footnote 3↩(link is external)
4. Light will win - a gathering of unity and remembrance | Prime Minister of Australia(link is external). "I am deeply and profoundly sorry that we could not protect your loved ones from this evil."Return to footnote 4↩(link is external)
5. Antisemitism at Australian Universities MIRRA-Report(link is external). Key recommendations (p 5) Embed clear, practical definitions of antisemitism into policy, training and decision-making. Strengthen leadership capability and accountability to ensure consistent and trusted responses. Expand education and training for staff and students, including navigating difficult, identity-sensitive conversations. Improve reporting, safety and inclusion across physical and digital campus environmentsReturn to footnote 5↩(link is external)
6. Light will triumph over darkness in Australia | Prime Minister of Australia(link is external)Return to footnote 6↩(link is external)
7. The Global State of Democracy 2025: Democracy on the Move(link is external) (Page 13)Return to footnote 7↩(link is external)
8. The Global State of Democracy 2025: Democracy on the Move(link is external)Return to footnote 8↩(link is external)
9. British government announces its largest asylum policy overhaul in modern times - ABC News(link is external). "Anti-immigration sentiment has been growing in the UK, with protests taking place this summer outside hotels sheltering asylum seekers with state funding. Such sentiment has also spread across the European Union since more than 1 million people - mostly Syrian refugees - arrived via the Mediterranean in 2015-16, straining infrastructure in some countries.Return to footnote 9↩(link is external)
10. Gender equality in 2025: Gains, gaps, and the USD 342 trillion choice | UN Women - Headquarters(link is external). poverty, hunger, war, climate disasters, and backlash against feminism are eroding progress and could obliterate the gains made by a generation.Return to footnote 10↩(link is external)
11. Director-General's Annual Threat Assessment 2025 | ASIO(link is external)Return to footnote 11↩(link is external)
12. Trust in Australian public service 2025 Annual Report(link is external) (Page 2)Return to footnote 12↩(link is external)
13. Bertolt Brecht - Exiled German-speaking intellectuals in Southern California - Research Guides at University of Southern California(link is external)Return to footnote 13↩(link is external)
14. Dictionary of contemporary quotations : Eisel, Deborah Davis : Free Download, Borrow, and Streaming : Internet Archive(link is external). "Because things are the way they are, things will not stay the way they are."Return to footnote 14↩(link is external)
15. 1.3: The Parable of Blind Men and an Elephant - Engineering LibreTexts(link is external)Return to footnote 15↩(link is external)
16. APS workforce | Australian Public Service Commission(link is external)Return to footnote 16↩(link is external)
17. APS workforce | Australian Public Service Commission(link is external)Return to footnote 17↩(link is external)
18. Services Australia annual report 2024-25(link is external)Return to footnote 18↩(link is external)
19. Government response to the myGov User Audit Report, October 2023(link is external). "...approximately 26 million active accounts, 3.3 million app users and more than 782,000 sign ins per day".Return to footnote 19↩(link is external)
20. The NDIS in each state | NDIS(link is external) NDIS statistics as of 30 September 2025 - 751,446 people in Australia benefiting from the NDISReturn to footnote 20↩(link is external)
21. Statistics about the veteran population | Department of Veterans' Affairs(link is external). DVA Treatment Population Statistics, June 2025(link is external) TREATMENT POPULATION STATISTICS Jun-25 299,121Return to footnote 21↩(link is external)
22. Trust in Australian public services: 2025 Annual Report | Australian Public Service Commission(link is external)Return to footnote 22↩(link is external)
23. APS Commissioner message | Australian Public Service Commission(link is external)Return to footnote 23↩(link is external)
24. Safety behaviours: human-factors for pilots 4th edition, Resource booklet 4 Communication(link is external) [p.3]Return to footnote 24↩(link is external)
25. Employee engagement | Australian Public Service Commission(link is external)Return to footnote 25↩(link is external)
26. Australian Public Service gender equality strategy 2021-26 | Australian Public Service Commission(link is external)Return to footnote 26↩(link is external)
27. APS Employment Data 30 June 2025 | Australian Public Service Commission(link is external)Return to footnote 27↩(link is external)
28. First Nations leadership reaches historic APS milestone | Ministers' media centre(link is external)Return to footnote 28↩(link is external)
29. SES100 | Australian Public Service Commission(link is external)Return to footnote 29↩(link is external)
30. Diversity in the APS workforce | Australian Public Service Commission(link is external)Return to footnote 30↩(link is external)
31. Diversity in the APS workforce | Australian Public Service Commission(link is external)Return to footnote 31↩(link is external)
32. Diversity in the APS workforce | Australian Public Service Commission(link is external)Return to footnote 32↩(link is external)
33. Diversity in the APS workforce | Australian Public Service Commission(link is external)Return to footnote 33↩(link is external)
34. Digital ID and CDR: Protecting renters' personal information | Department of Finance(link is external)Return to footnote 34↩(link is external)
35. Protecting renters and making applications easier | Media Release | Senator the Hon Katy Gallagher, Minister for Finance | Finance Ministers(link is external)Return to footnote 35↩(link is external)