I suppose its very much like the unemployment market. Very boring and no benefits. And people dont like the ones (generals) being in there cuz they lazy and useless... regardless of potential (after upgrades). Lol. XD
Still the idea, old as it is, has some merits. It might be an easy way to "expand the island" aka build space, without actually having to make the map bigger.... the space taken by 30 odd generals that are used can provide for a nice economy expansion...
It would mean a shift from current game workings true... but the game can/should evolve. Numbers of generals and specialists have increased A LOT since game conception... the idea of every general in usage taking up map-space needs to be revisited!