OPINION
DUGGAN, Justice.
This appeal tests the legality of the City of Houston's creation by ordinance and staffing of nine positions in the City of Houston Police Department ("HPD") as part of its "civilianization" program. Houston, Tx., Ordinances 82-1165 (July 27, 1982), 84-1290 (August 21, 1984), 85-568 (April 23, 1985), and 86-1278 (July 23, 1986).
Appellants, the City of Houston, Mayor Kathryn J. Whitmire, Chief of Police Lee P. Brown, and...
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