This is public sector. They knew the pay grade when they got hired (stating the pay range has been a requirement ever since the web page was launched) and it can't be changed without an act of the legislature.

With new grads, we can't hold 'em at all. For people who came in with 5+ years of experience, the average tenure here is 15 years. (Seriously, I've got 200 hours of "manager makes sure you use it" vacation, sabbatical accrual, an honest to goodness funded pension, and one of the better health insurance policies).