The oughta-do manager recognizes a good out. The boss didn't say we HAD to do it. Without orders to do otherwise, they do everything just the way they have always done it. There's no room in their minds for questioning authority. The employee likely will, but that will also stop their creativeness and ideas that could improve the organization.
Empowerment is a privilege to be revoked at the least excuse.
If there is a better way to do something, they do everything in their power to get it adopted. They anticipate and exceed needs of top management, customers and employees. They empower front-line workers to solve problems without going through an endless chain of command. When the opportunity is exciting, can-do managers can often inspire their employees to move mountains. They don't get demoralized by others' negativism.