[Herode]

I don't know these nations but I guess the commander thing is an element in balancing the weaknesses and strength of a nation. Hence, I would not modify this before the game. LA Ulm is not the only nation with this kind of constraints. Look at EA Yomi : its demon leaders have a very low leadership for standard troops, you have to recruit commanders for standard and commanders for demons / undeads. Not even talking about the magical troops. That's part of the flavour of the nation, part of its balance also. I guess the same thing happens to Ulm.