Who decides if there are more leaders?

The organization’s owner or top leader decides if they need more leaders or not, sometimes the easiest way to keep everything under control in an organization is to divide everything in small groups and have a leader for each group, that way each leader has less to control and less followers to lead, optimizing the productivity of the group. In case we are referring to a community and not an organization then I think it is the people of the community that decide if they need more leaders or not to represent their interests and voice their opinions and needs.