Thirty years ago, Clarkln was a small city (about 70,000 residents) that served as an outer suburb to a large metropolitan city. The municipalit) of Clarkin treated its employees like family and gave them a great deal of autonomy in their work. Everyone in the organization (including the two labor unions representing employees) implicitly agreed that the leaders and supervisors of the organization should rise through the ranks on the basis of their experience. Few people were ever hired from the outside into middle or senior positions. The rule of employment at Clarkin was to learn the job skills, maintain a reasonably good work record, and wait your turn for promotion. Clarkin grew rapidly over the past three decades. As the population grew, so did the municipality's workforce to keep pace with the increasing demand for municipal services. This meant that employees were promoted fairly quickly and were almost assured guaranteed employment. In fact, until recently, Clarkin had never laid off any employee. The organization's culture could be described as one of entitlement and comfort. Neither the elected city councilors nor the city manager bothered the departmental managers about their work. There were few cost controls because the rapid growth placed more emphasis on keeping up with the population expansion. The public became somewhat more critical of the city's poor service, including road construction at inconvenient times and the apparent lack of respect some employees showed toward taxpayers. During these expansion years, Clarkin put most of its money into "outside" (also called "hard") municipal services. These included road building, utility construction and maintenance, fire and police protection, recreational facilities, and land use control. This emphasis occurred because an expanding population demanded more of these services and most of Clarkin 's senior people came from the outside services group. For