36 a. Doctrine – the foundation of any required capability. b. Means of warfare – emphasizing Order of Battle and Inventory. c. Infrastructure. d. Human Resource Development. e. Organization of the IDF. f. Training and exercise – the basis for skills and capabilities. Utilizing Resources 8. The IDF constantly operates with limited resources, which becomes more severe during emergency and war. This situation is dealt with by: utilizing resources via multi-year planning, inter-organizational and international collaboration to develop multi-functional means of warfare.19 Critical Mass 9. The force buildup shall be carried out while creating or maintaining critical mass of capabilities. Beside the importance of achieving a qualitative and technological advantage, the number of means that can be activated is also important. This affects the quality and flexibility of action. Mass together with flexibility is a way of dealing with uncertainty relating to future challenges on the battlefield. Fundamental Prioritizing of Force Buildup 10. In general, the force buildup shall focus on a war scenario and shall be adapted to emergency and routine situations as needed. Designated capabilities for non-war scenarios shall be peaceful and routine civilian life. 11. The force buildup process presented in this chapter is aimed at a concrete scenario of combat against a sub-state enemy. At the same time, technological infrastructure must be developed, to provide a response to strategic changes in the arena, which, if they occur, will require re-prioritization of capabilities. 19 Appropriate for a variety of uses by various operators.