Hal thinks creativity goes beyond the established norms and conventions. She also thinks one needs to have a positive way of working in an agency in order to not become stifled or suppressed. If you are positive, then you can find creative ways to expand in your role. Bureaucracies don't want people to be creative. They have a mission and want to function with that mission in mind only.
Creative people tend to have to learn how to work invisibly in such organizations.
The problem is, we walk around asleep, not conscious of what we are doing with our bodies, or our being. If one would become aware of the bureaucratic boredom, then there is the possibility that the creative genius might pop out. Creativity takes time, patience, perserverance and practice. It takes strong will to work with creativity and to be able to express it artistically. All your great artists of the fine arts - Painters, Musicians, Dancers, etc. had to overcome great odds to bring forth many of their creative ventures into form.