I understand you dislike the term, so allow me to phrase my argument without using it.
At its core, my position is that the capacities system appears to simplify existing mechanics and abstract them to the detriment of the simulation. Victoria 2 is a masterpiece largely in part because of the complexity of its world-simulation, and to decrease that complexity in favour of "bureaucracy tokens" which you can allocate at will serves to simplify what shouldn't be simplified.
Thank you. That helps clarify.
So on that mechanical discussion, considering abstraction...
Of the capacities, Bureaucracy and Influence seem okay to me? Neither seem to be spent, rather they seem to represent the power of the government to organise and manage internal and external affairs respectively. So in the DD example, Sweden's bureaucratic capacity is 'okay'... but presumably as its empire grew, its bureaucratic capacity would become stretched, and its taxation become inefficient as a result.
Influence to me seems similarly obvious, and not overly abstract.
However, authority is not so obvious to me... the examples seems to show high authority allowing the player to build more roads at once... which does seem rather abstracted. I don't have a problem with this... but I can understand how those who don't like abstract might not like it.
IIRC (which I might not), Vicky2 didn't have any of these measures of government efficiency. So adding them in actually making the
game more complex, even if each of these mechanics is relatively simply on their own.
I do wonder if your concern about the abstraction/simplicity of say, bureaucracy capacity would be resolved by simply labelling it as bureaucratic efficiency and making it a percentage? That way it would be more clear that it isn't 'spent', but instead is a limit on the throughput of action... and might(?) make it less abstract?
Personally, my biggest potential concern with capacities is that they seem to be primarily increased by building buildings. I'm assuming this is a directly response to people's concerns about not being able to influence in game resources, and also done to make the gain of capacity more tangible (less abstract). I'm somewhat concerned that this will make it a bit too 'gamey'. In my opinion, improving Bureaucratic capacity
should be done via investment in 'government administration' (in the abstract) rather than a literal 'government administration building'... but given how these forums behave, I can understand why the devs have chosen specific buildings.