Management is about the manipulation of people towards some end. In theory the end is the good of the organization, but every successful Manager recognizes the tradeoff between the organization's interest, and his own (eg the furtherment of his career).
So the successful Manager does not make decisions which favor is his organization, but decisions which favor himself. No manager ever got promoted for saying 'the current system is working smoothly and productively - that's why I'm not making any changes'. However proper the assessment might be, that manager would be regarded is ineffectual and weak.
So the Manager who is faced with his worst fear (a smoothly running and productive system) must make change. He must upset the flow, create crisis, and then be seen to managing the crisis. 'Change Management' and 'Crisis Control' are the kinds of things the successful Manager has written on his resume.
This is yet another reason for the inefficiencies of bureacracies. Especially government.
See