"Trained incapacity" in public administration, a concept originating from
sociologist Thorstein Veblen and further developed by others like Robert
Merton, refers to a situation where the very skills, knowledge, and routines that
individuals and organizations develop through training and experience become
limitations or "blind spots" that hinder their ability to adapt to new situations,
solve novel problems, and respond effectively to change.1
Essentially, what was once a strength becomes a weakness. Public servants
become so ingrained in established procedures, rules, and ways of thinking
that they struggle to deviate, even when those approaches are no longer
appropriate or effective in a changed environment.2
Here's a breakdown of the key aspects of trained incapacity in public
administration:
● Over-Specialization: As public administration becomes increasingly
complex, individuals often specialize in narrow areas.3 While this can lead to
deep expertise in a specific domain, it can also result in a lack of broader
perspective and an inability to see issues from different angles or connect
them to other areas.
● Rigid Adherence to Rules and Procedures: Bureaucracies often rely
heavily on rules and standard operating procedures to ensure fairness,
consistency, and accountability.4 However, when these rules become ends
in themselves rather than means to an end, they can stifle flexibility,
innovation, and the ability to exercise professional judgment in unique
circumstances.
● Focus on Means Over Ends: Individuals may become so focused on
following the correct processes and procedures that they lose sight of the
ultimate goals and objectives of their work.5 This can lead to situations
where things are done "by the book" even if they don't achieve the desired
outcomes.
● Resistance to Change: When individuals and organizations are deeply
embedded in established routines, they can become resistant to new ideas,
technologies, or approaches.6 The comfort of familiarity and the investment
in existing skills can make it difficult to embrace change, even when it's
necessary for improvement or adaptation.
● Cognitive Rigidity: Years of operating within a specific framework can
shape the way public servants think and perceive problems. This can lead
to cognitive rigidity, making it difficult to consider alternative perspectives
or solutions that fall outside their established mental models.
● "Occupational Psychosis" or "Professional Deformation": Related
concepts suggest that the demands and routines of a particular profession
can lead to specific biases, preferences, and ways of thinking that may be
inappropriate or even detrimental in different contexts.7
Examples of Trained Incapacity in Public Administration:
● A seasoned budget analyst who is highly skilled in line-item budgeting
but struggles to adapt to a performance-based budgeting system that
requires a different way of thinking about resource allocation and program
evaluation.
● A long-serving civil engineer who is expert in traditional construction
methods but is resistant to adopting new, more sustainable building
technologies.
● A policy officer who is highly adept at drafting detailed regulations but
lacks the skills to engage effectively with stakeholders and build consensus
for policy implementation.
● An agency that has developed highly specific procedures for service
delivery that are efficient in routine situations but become cumbersome
and ineffective during emergencies or when dealing with unique client
needs.
Why is Trained Incapacity a Concern in Public Administration?
In a rapidly changing world with increasingly complex challenges, trained
incapacity can severely hinder the ability of public administration to be:
● Adaptive: Unable to adjust effectively to new circumstances and
demands.8
● Innovative: Lacking the creativity and flexibility to develop new solutions.9
● Responsive: Failing to meet the evolving needs of citizens and
stakeholders.10
● Efficient: Continuing to rely on outdated or ineffective processes.
Addressing trained incapacity requires fostering a culture of continuous
learning, encouraging critical thinking, promoting interdisciplinary
collaboration, and valuing adaptability and innovation within public sector
organizations. It involves recognizing that while training and experience are
crucial for building capacity, they must be complemented by a willingness to
learn, unlearn, and adapt in the face of evolving realities.
