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It sounds like you don't have a control loop running.

The controller_manager paradigm has two components, the control loop itself, which reads data and sends commands to the actuators, and which has loadable controllers through a service, and the controller_manager, which calls that service to load and unload controllers.

In your case, it sounds like your control loop isn't running. It's hard to say more without knowing what kind of robot you're trying to control and which nodes are already running.