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Which has nothing to do with meeting minimum staffing levels and the need for more hires if avoiding OT is your goal.
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Gives them the ability to say "We're doing more with less" while allowing all sorts of less than truthful claims.
They're getting the job done (arguably understaffed, and unsafely) with fewer Guards which deceivingly gives the illusion that they are saving money, doing a fine job. Perhaps it's better to pay overtime than hire enough to do the job....Budgets certainly aren't going down, (even though Departments scream and cry about having their Budgets misleadingly "cut" because when they don't receive as high of an increase as they want.
See we keep blaming those elected to represent us, Kings come and go, but the Bureaucrats they
really run things stay and so geos the status quo.