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Government directs the services on what their missions are, regarding fulfilling the government's strategic policies.  The services advise government what they need so they can fulfil the missions assigned to them, the government decides they will provide what is required.  The common factor is government makes the decisions and controls the purse strings, government also has other priorities and obligations as well as the need to be re-elected by an electorate that is more concerned about other issues.


Short-termism is a problem, so for all the carry-on about "minimum viable capability" these days, it has long been the case that government funds somewhere below the minimum size, numbers and capability required, with little or no thought to through life capability and costs.  It is all a problem for future governments.


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