"This could lead to scores of officers retiring early in their mid forties and allow dozens of desk jobs to be cut........." which suggests they exist now to provide a home for mid-ranking, middle aged officers..................
Part of the problem is of course one of nomenclature - when you say "Admiral" 99% of the population think of Nelson, personally directing the action, or maybe sitting in a bunker moving wooden warship models on a map of the N Atlantic to trap the "Bismark". Most of the sainted 42 are really Senior Managers and should have titles that reflect this - then you could be "Captain and VP Electronics" .