This part of the job is defined, the roles and responsibilities made clear. If these things are not done, then one is seen to have failed. The outer boundary defines the limits of discretion. In between lies the scope for initiative and for personal responsibility. W L. Gore, creator of the well-known Gore Tex fabric, whose company does its best to foster the learning habit, makes a nice distinction between the two boundaries.
Subsidiarity is self-fulfilling.
In traditional organizations, the space for initiative is limited. Many jobs are all core and no space. The water-line is set very high. Control is tight. There is no initiative without prior permission.