Eventually, I decided to count from the other end. Considering the last two to be the Controller/Action and that makes more sense to me. So, I name the controllers, "DeptnameRolenameController" and it will have, among other things, some methods called "Toolname". The real use for the department is to name a DIV that will serve as a canvas for it's controllers and to change the toolbar that is displayed.
My current problem is that I can't figure out how to communicate to my controllers. The current structure is that the navigation controller receives a navigation click. It figures out what controller and action needs activation. Presently, I issue a 'navigationClick' event. All of my appropriate controllers listen for it, check the path that is sent with it and do what comes naturally, ie, ignore it or act on it. This has the advantage that I can have non-navigation things pay attention to the event, logging comes to mind.
The downside is that I've had some trouble making sure that all events get processed in the right order when there are several listeners. It also seems a little wasteful to have all controllers listening. I'd like to be able to simply address the controller.action() but I can't.
I fully believe that I am missing something fundamental but have not been able to figure it out. I have tried everything I can think of. Fortunately, publish/subscribe works.