One means by which the state reinforces inequality is by imposing administrative burdens that loom larger for citizens with lower levels of human capital. Integrating insights from various disciplines, this article focuses on one aspect of human capital: cognitive resources. The authors outline a model that explains how burdens and cognitive resources, especially executive functioning, interrelate. The article then presents illustrative examples, highlighting three common life factors-scarcity, health problems, and age-related cognitive decline. These factors create a human capital catch-22, increasing people's likelihood of needing state assistance while simultaneously undermining the cognitive resources required to negotiate the burdens they encounter while seeking such assistance. The result is to reduce access to state benefits and increase inequality. The article concludes by calling for scholars of behavioral public administration and public administration more generally to incorporate more attention to human capital into their research.
Evidence for Practice• People's human capital influences how they engage with administrative processes. Groups with lower levels of human capital struggle more with administrative burdens; therefore, they are less likely to access public services. • A citizen-centered approach to public administration implies that policy makers and administrators take account of variation in human capital when making choices about policy design and implementation. • Cognitive resources, including executive functioning, are a form of human capital, which is key to citizens' ability to initiate and master state interactions. • Citizens experiencing scarcity, health problems, and cognitive decline face a catch-22: such common life factors make them more likely to need to engage with the state, but reduce their executive functioning, making them less able to deal with administrative burdens.