I don't really understand.. We've gathered that 90% of the community want more freedom with their ability to RP and yet, the administration team decides that they're going to restrict it further. Player A as three characters, 2 legal, 1 illegal. With the support and financial incentive illegal RP is given; which character are they going to drop?
The issue with official faction activity isn't that there are too many characters in too many factions that don't do anything; the issue is simple. Because there's nothing to fucking do. FBI have barely anything to do, Aperture have nothing to do. Illegal gangs have nothing to do without risking a 12hr prison sentence (and getting no reward when they pull it off.) Hitmen have nothing to do.
There are so many more issues that need addressing, limiting the amount of character slots would make official factions LESS active. If I had a character in BGD and hitmen and FBI; I'd pick Hitmen and BGD, not because illegal RP is more fun but because FBI from what I've head and seen is fucking boring. The issue isn't faction administration or faction leadership either. It's merely the incentive for actually being in an official faction that lacks enough power to suade my mind.
In both administration and development, there should be far more valuable, dramatic and important changes you should be making. I honestly don't think this one was very thought out.