Because people keep framing this as shell FCs taking up wards of housing depriving individual players of housing, when that ~30% number includes both legit FCs and shell FCs.
The persistent ward housing system is bad with coping with increasing player populations as this freeze demonstrates.
Even in a free for all situation like this, not every individual player who wants a house, is gonna get a house. Especially not on a high pop server.
Adding new wards is kicking the can down the road.
A more feasible solution would be to ask SE to improve upon apartments. Let us upgrade them for gil to penthouses/condos with balconies for gardening/workshop access.