Can you explain where you learned this information? Was there an explanation post I missed somewhere? Did you just deduce it by processing a lot of scattered information to come up with what you determined to be the most rational conclusion?
It was inferred by processing scattered information, yes.
When we try to push through a deal that contains
things we want but that the Council sees insufficient or negative political benefit from doing, guess what kind of push-back we get? The Council tries to
add things that have political benefit for them. 100 points of graft favors to the Pacifists! Get that auxiliary yard going to appease the spacefaring culture that elects the Development! Of course that is not 100% of the process, because the Council is not a political robot and they understand that some thing are just plain important and also that if THE Admiral asks for something she's not just waving her hands in a panic.
That's not to say the Council doesn't listen to the head of Starfleet. When Sousa goes in and says "hey, we need this thing" I don't think we've ever seen a point where the Council didn't listen. Even when we were trying to romance the Yrillians, the Council was like "uh, if you say so", even if they didn't really see the geopolitical benefits that Sousa was aiming for. So yeah, if Sousa tells them that non-standard training between services is a problem, the faction we approach will sigh and try to get it done for us, because Sousa said so. Of course, I would question if non-standard training
is actually a problem, because it looks to me like a problem made up to solve a
different problem.
Regardless, the Council will also look for ways to add enough benefit in their eyes to make the deal worth sacrificing for. And because this is such a potentially thorny issue with member fleets, we could easily rack up a large expense that would make the deal not worth it. It deals with delicate areas of autonomy of the member fleets, with the very nature of their right to existence given that they're predicated on having different roles to Starfleet, and with Starfleet's pressure on the fleets both to contribute ships and support in taking Starfleet duties. And all of that is tied up in the autonomy and right to self-governance of each race despite being part of the Federation as a whole. Which in turn will mean councilors will split not just across party lines but along racial ones, according to what plays best to get them elected. Basically, you're potentially sticking the Admiral's hand into a beehive of nationalist issues that even the Pacifists with their Infinite Diversity in Infinite Combinations have a horse in backing. It's one of those areas where both the Hawks and Pacifists could be united against it, if the chips are placed badly.
To bring it back to where I'm pulling my inferences from, though:
Well, the major point to keep in mind is that in terms of these deals with the Council:
The people you are bargaining do have specific philosophies that I consider when evaluating any proposal (these are the straight up ideological concerns).
A specific strength on the council - I attempt to map your path to 23 as best I can.
Has specific worlds in their parties.
In this case, the Development faction had broader intentions, so that's what they wanted from the deal. The Mercantilists were perfectly fine with all of this, so they asked for nothing. The expansionists were on board, though not with any great enthusiasm. The Hawks had zero intention of allowing Yrillians directly into the tradelanes. The Pacifists had few strong feelings either way, so you would have to pork-barrel for them specifically to convince them to come along.
In the event you stuck with a purely ship-purchasing approach, the Mercantilists would have been reluctant, because they'd rather that sort of long-term purchase stay within the Federation to give industry things to do, the Pacifists would have still been totally ambivalent, the Development faction would be a little more mollified on the idea that you were shirking your logistics shipbuilding, the Expansionists would be ambivalent, and the Hawks would be ambivalent. The costs would be relatively low, but so would the rewards.
In the event you stuck with a pure diplomatic outreach approach, you'd face modest opposition from the Development faction, support from the Pacifists, modest interest from the Expansionists, ambivalence from the Mecantilists, and the Hawks would be a toss-up, probably come down to how you worded it. You'd need to pork-barrel the Mercantilists to get it through.
From this, I see that we are looking at
ideological concerns with each proposal, not material ones. We can ask for more officers in many ways; the Council can't be as concerned as we are about the
crew problem, because they aren't Starfleet. It's not their job to track and manage starship crews. If the member fleets have been agitating for more crew in MWCO and planning multiple recruitment drives then crew would become a political issue for the Council. If the Council has been telling us that we're building more ships than we can crew, then it would be a political issue for the Council. That hasn't happened yet. The material concern hasn't become a political issue that's on the Council's radar.
For example, we could have approached the Hawks for additional resources for Starfleet Medical and Starfleet Post-Service Care, with the intent of reducing X casualties a year or returning X otherwise retired officers to service each year. And then we might have a Hawks/Pacifist unholy coalition backing the vote with others reluctantly falling in line because casualties are a
big and
political hot potato right now and everyone will fall all over themselves to Support Are Troops.
Starfleet material concerns that overlap with faction ideological concerns that overlap with political current affairs are the ideal combination for a deal.
Does that help in unpacking what I am saying? I don't really want to go through with dredging every Sousa Snakepit
and all the contextual factors that have affected each, it would basically be a retrospective on half the quest, but I hope that explains the reasoning.