[@Spiffy] Eos pretty much is 99.99% of her faction, as far as I'm aware, with how she remote powers/coordinates 99.99% of the machines that make the Machina run. There's not much need for bureaucracy when one person is 99.99% of your citizen base.

And the Heaven's strategy is "Whoever feels particularly zealous can go run in and die, and then we'll send one or two gods in to be an army in and of themselves." So, they don't particularly need any organization between Deva saying, "Go fight over there."