I got it. (Read Vogel's notes in the manual.)
In his previous games you led Adventurers on a Mysterious Quest. Here you are a Civic Policy Enforcer who leads a party of henchmen to Manage a Problematic Province. There is little sense of mystery; the problems you are to be invested in mainly concern which agents you back when trying to get a grip on the situation and which face you show to the people; both of these seem to lead to some consequences. So respecing makes sense: in 'reality' you take different, variously skilled people to different places.
Vogel has not made the same game for the nth time: this is actual innovation
Whether it's for the better, I'm not sure. I didn't really want a sim game.