It means that your chain of command is not corrrectly set up. All my JPA business went direct to CGS for a while, and I spent hours talking to my Admin Office in order to resolve it! I was posted to one unit, administered by another, and detached elsewhere when JPA started.
IIRC, your RAO will require the LSN (is it the PID these days) , your UIN and the JPA numbers for your 1RO and 2RO.
Unfortunately, even though CGS and I were on first name terms by the end (he called me "Litotes" and I called him "Sir"), he didn't volunteer to give my CR a boost before our relationship was severed!