I understand that the problem is that there are many (all?) on the Consuls within the double General/Admiral category, and this gives the roman side an advantage because of the activation.
The exploits of the roman navy vs Carthage were not because their commanders were always "active", this is gamey or buggy.
But because a conjunction of factors, in the game can be represented by abilities of the commanders, ships, troops, resources...
For example, just load the -219 scenario, both Consuls (L. Aemilius Paullus and M. Livius Salinator) have the double category, and why? It is true they defeated the Illyrians, but in land battles.
They were Consuls a second time in different years of the second punic war, and again participated in land battles.
So why are they Admirals, because they commanded a fleet to arrive to Illyria?
Anyway the game is as is, unless a modder appears
![Siffle :siffle:](./images/smilies/siffle.gif)