[Legbreaker]

Reorganising units requires resources too, lots and lots of resources, especially fuel.

In the chaos of the second half of 1997, while NATO are being pushed back on all fronts, the resource of "time" isn't available (the reality of no more reinforcements from home also hasn't hit yet either). US units particularly were in disarray being down to approximately 1/4 of their prewar strength (half that of other NATO nations). This massive loss of manpower certainly equates to an almost complete lost of unit structure which makes it extremely difficult for a commander to even begin to work out what he's got let alone send orders through the shattered command structure.

In 1998 combat is still raging, although in the first half both sides are still reeling from the nukes, and focusing more on surviving the next few days and being prepared for the next enemy onslaught (which didn't come until June 98). Digging in and holding on to the scraps of organisation left while scrounging for diminishing supplies was likely the priority. Note that in this period, fuel, food and the other necessities of life would be limited - the supply chain had been nuked to obliteration and using alcohol as fuel was likely still a pipe dream.

Later 1998 as mentioned brought a Pact offensive into southern Germany against which NATO flung anything and everything available (burning up carefully hoarded supplies of fuel and ammo). The following counter-offensive to drive back the PACT units would have pretty much exhausted the supplies. At the end of the year, there's no supplies left (namely fuel) for reallocation of heavy equipment and the manpower basically puts down roots where they ceased fighting.

1999 is a year of rebuilding the expended stockpiles. It's also a time where the full realisation that help from home isn't coming really bites. A commander at any level isn't going to assist the various Theatre, Army even Divisional and Brigade commanders by handing over what they have managed to hang onto for so long without a fight. This isn't to say reorganisation wouldn't occur, just that there would have to be a lot of negotiations and politics would play a big role ("I'll hand over my last M60 tank if you give me 25 TOW missiles and an M-901A1 in return").

What it all boils down to though is fuel and communications. Without fuel, it's impossible to shift anything. Without effective communications and command structure, it's impossible to organise...