Should Cougaar built-in services be implemented as plugins?

[Ming Fang]

Hi,

I'm just beginning to explore Cougaar by reading the Architecture and  
Developer guide.
I like the concept of the blackboard and plugins.
However I was curious as to why many of the built-in "services" are  
not themselves plugins.
Instead there exist a huge service framework with things like binders  
etc.
IMHO, the blackboard and plugins concept is great and can be used for  
implementing all the services.
In fact things like Binders for security won't be needed in that case.
I'm sure there was a good reason for this design, I'm just wondering  
what that reason was.

Thanks,
--ming