Don't assume that Bethel operates as a single cohesive unit. Likely, in 2013 someone convinced the GB that all of these volunteer RBCs were totally incompetent and a single, central kh building organization was what was needed. (A power grab)
That was implemented but the guy that grabbed for the power likely did not have the resources to organize and implement it quickly.
Fast forward to 2015 and someone in Accounting puts a worst case cash forecast together that scares the shit out of the GB and starts the current downsizing campaign.
Theres no one looking at the big picture. Just power grabs and reactionary behavior.