Allowing the player more choices to place their retainers would naturally spread out the distribution of the retainers.
Quite the opposite will occur.
In Aion, everyone crowded the steps to the AH.
In FFXI, everyone crowded the entrance to Jeuno at either Rolanberry or Sauromugue, later shifted to Upper Jeuno.

You can not avoid player clutter.
True. But one player contributing to clutter is better than one player + 2 retainer.