Who decides if there are more leaders?

At an organisational level, it is usually the board of directors who decide whether the organisation needs more leaders through mutual agreement. However, in any other real life situation, for instance a society which is led by charismatic leaders, the situations and context often matters when it comes to the rise of new leaders. It can be in terms of reforms or conflict resolutions that new leaders rise into dominance in such situation to direct followers to a better place and position by their definition. However, one thing that stays common most often in both these situations is the need for reform at an organisational level or a societal level to address the status quo or to challenge it.