Back in the day the Merchant Navy faction that ran the Guldorand Flagship had probably 20+ sail builds to pull from across the Time Zone spectrum. It was a highly inclusive faction that even sailed with other navies and took near all walks of life. Despite this, getting just 6 people with a good enough sail score to do end game content and have a fighting chance against adversaries was a headache, especially with how swiftly ships tend to decay. (You need a minimum sail score of 80 on a ship, IMO to even have a fighting chance at most interesting/engaging content. You can have 20 people on board that ship, but if the sail score isn't 80 you're getting easily sunk by PvE w/o having to invest TONS of repair resources. This doesn't even touch the PvP aspect).
Think about scheduling a meeting with a large faction. This is that headache on steroids especially considering the constant stream of supplies you need to ensure are on board before heading out. (Repair, ammo, weapons, bombs, ect.) It was a thing that my character personally checked daily on the ship. We let other people bring the ship out too even w/o the leadership, but at times you come in from a really long voyage and just need to log off. So you then have to coordinate gathering all the items you need for a voyage to even do the sail PvE that's not the land dungeons b/c it was all used in the last voyage. This is especially true for ships that don't have hefty storage like the Guldorand Galleon does.
I don't think many ship owners have an issue with a lack of inclusivity, especially settlement ships. Not being inclusive is pretty much a death knell to your sailing of a larger vessel. It's just not feasible to run a sailing faction for an extended period of time without burnout due to:
A) Excessive Character Turnover
B) Managing Faction Time Zones
C) Lots of supplies logistics that are required for competency
D) Having to do this, at minimum, 3 times a week to keep the ship from going into a disrepair mode.
That's just my two cents. I do think settlements could do with a 3 man ship rental that's settlement citizen locked to help out and not pull from the non-settlement rentals when you just can't man the flagship. Additionally I think the decay timer needs slightly extended. Ultimately leading any faction is work and rewarding, but the pacing at which you need to run a large ship paired with the prerequisites to do it efficiently are a little odds with each other. I think to have a competent ship you need to put in the effort to RP and network, but ultimately I do think the bar for sailing competently is a little too high.