Yes it was Raab.
It worked better because the period of initial chaos and the big u-turn had already passed by then, there were still specific issues caused by the pandemic and earlier mismanagement and shit priorities, but it wasnt a giddy period. And because its a machine-like structure that really runs things, and evidence heard so far was that Raab liked the predictability of that machine, he liked to stick to whatever was planned for him each day, so everyone knew where they stood. Plus Johnson is lazy and changes his mind too often and cant chair meetings.