Once upon a time the government had a vast scrap yard in the middle of a desert. Congress said someone could steal from it at night. So they created a night watchman's position (GS-4 level) and hired a person for the job.
Then Congress said, "How does the watchman do his job without instruction?" So they created a planning position and hired two people--one person to write the instructions (GS-12 level) and one person to do time studies (GS-11 level).
Then Congress said, "How will we know the night watchman is doing the tasks correctly?" So they created a Q. C. position and hired two people--one to do the studies (GS-9 level) and one to write the reports (GS-11 level).
Then Congress said, "How are these people going to get paid?" So they created a timekeeper position (GS-9 level) and a payroll officer (GS-11 level).
Then Congress said, "Who will be accountable for all of these people?" So they created administrative positions and hired three people, an Administrative Officer (GM-13 level), an Assistant Administrative Officer (GS-12 level), and a Legal Secretary (GS-8 level).
Then Congress said, "We have had this command in operation for one year, and we are $18,000,000 over budget. We must cutback overall costs."
So they laid off the night watchman.