We could simplify the concept we currently have indeed. OFs are one obligation too much in a space shooter game, for me at least.
Every ID should be taken care of by one capable player and his 2ic and that's all. They would have rights and duties, like knowing their members, providing order, rankings, trainings, RP school and make their fellas do things good for a game. Like professors in school. They would be supported by GMs in case they can't solve some issue alone. Some professors would be more popular and/or efficient, ofc.
What OFs could offer us more than that, beats me. Every game is about people.