I am often stunned by the pap that comes out of headquarters and organizations full of smart people that would receive a failing grade at any reputable staff college. Your example is what happens when staff products wend their way through all the organizational, institutional, and cultural hoops between concept and approval.

I would bet my next paycheck that what you proposed as an endstate is very close to what was submitted by some bright young staffer. It was then massaged by several levels of bureaucrats until what emerged was the inoffensive yet spectacularly useless product in the final document.

I shudder to think senior leaders actually signed off on this.