As to how this might work, if its possible to build divisions at various strengths, such as fielding a division intentionally at 5% manpower, in exchange for reduced production time(you are after all skipping ALOT of manpower training), it now satisfies the ability to trade a division that essentially is all equipment, that once given is fleshed out using the recipients manpower, can absorb some losses in transit, and isn't entirely fielded by the constructing country.
This would also allow for additional divisions to be fielded in the face of low manpower, at the direct expense of combat capability, so, for example, a country in peace time could field alot of divisions, and not break the bank for manpower, as they could easily have the eqiupment handy(USSR and its obscenely large WW2 equipment stockpiles that it kept for a LONG time after......may still have, not sure), then just costs you manpower and some ic in reinforcement, and you have a fully manned division.