This is simply logical, however, I believe it may be necessary to inform some people of a simple fact about this game.
During Empire mode, on the map you will notice that there are lines connecting the varying provinces. As I'm sure you know, these lines inform you of which province can attack another. If there is no direct line between the two, then it is not possible to attack this area from the area you wish to attack it from.
This is where the command "station" comes in. You station you best generals (or whoever you want to power up) in a province which has a clear line of attack. However, if you have only one clear line of attack, then you cannot select any reinforcements to aid you during the level and so you can only have a maximum of 3 officers and 3 lieutennants.
If, however, you have two provinces which you can attack the area from, then you can select up to 4 officers and 4 lieutennants, from any of the areas to attack. This allows the battle to go easier.
The same principle applies when defending an area, if you have only one area, then you can only have a minimum number of generals defending it. However, if you have two areas of your empires touching each other, then you can draw reinforcements from these areas to help defend it easier.
This means that, even if you do not have the maximum number of generals in each area (6), then you can still have a full army if you have stationed them correctly. For example, two officers and two lieutennants in one area, touching an area with two other officers and 2 other lieutennants, if attacked could draw 4 generals and 4 lieutennants and so still have a maximum army force.
By this rationality, we can see that if an area is surrounded by your forces, then the outskirts of your empire need not have any generals in them, unless they are liable to attack from other provinces or you wish to draw specific generals to defend a specific area. However, later on, on harder level settings, the enemy may be able to cause uprisings in your areas and so make officers under your control seek independance. But I do not know if this is the case as of yet.
Added by: Mortanius Jul 30th 2006, ID#22434