They are empty to allow ahistorical play.
If they start filled and you have the current rate of PP gain then nobody would change them and instead they would just cause coups all over the map
If they started filled and you had a much reduced PP gain then anybody who wanted to change them would be out of luck
By starting empty the player has to make decisions about where to focus their country whilst leaving room for ahistorical play.
Sid Meier once said that a game is a series of interesting choices.
(it's not like the people aren't in the game, you're free to choose them if you want)
It's not like this was the only solution to that problem. They could scale PP, change how coups work, etc. Maybe they could leave the minister system as it was and change how PP works in general (maybe shift who has more influence, so a shift towards industry minister helps his bonuses, etc.). Whatever your opinion about these solutions (that I randomly came up with off the top of my head and in no way represent actual proposals), they are in fact alternative solutions and thus prove my point that we don't have an "either/or" situation here.
It's not like it was a choice between "broken game" and "no cabinets." This is the only time I'm aware of that Paradox has done something like this, there are plenty of solutions other than wiping out every government in existence and acting as if it's a blank slate. Paradox's historical games have never been about blank slates.
As for the "series of interesting choices" bit, that fits with Sid's style of games. However, his games have no real setting. The setting is the framework in which those dilemmas and the choices therein must be plausible. It defines the kinds of choices and problems faced. A game setting involving the politics of aristocrats in Victorian England isn't going to have the same types of dilemmas and solutions ("choices") as a game where the player is a shark trying to eat fish.
HoI has a setting. Civilization games do not (other than being on earth). However, even those games are constrained by the laws of physics and the general setting of earth-like, habitable planets with resources and cultures similar to ours.
So you see that "choice" in and of itself is an irrelevant metric. It's choice within the framework of the setting that matters. HoI is a historical sandbox. This means that a player should have freedom given
1. Historical starting point. Paradox games have always been about history being exactly the same until the player takes over. Even in mods like Kaiserreich for Darkest Hour there is an established world that the player is stepping into.
2. Plausibility within the setting. You can't build aircraft carriers in CK2. The technology isn't there. You aren't recruiting phalanxes in HoI. The plausibility isn't there. The choices are limited within the historical context.
My issue is with the first point. Every historical Paradox game has respected the established history to the point the player takes over. Obviously there is a degree of abstraction but if the player can interact with an aspect of a nation in-game, that aspect is modeled as historically as possible within the bounds of the gameplay design. Here, on the other hand, we have an aspect of a nation (the cabinet) that is modeled within the game and allows player interaction with this aspect, and it is completely ahistorical. What is this supposed to represent, that on December 31, 1935 all the ministers I listed above were in office but at 11:59 the night before January 1, 1936 the ministers were all fired and Hitler is running the country single-handedly? It doesn't make sense.
And what is it with this blind allegiance to the "more choice is always better" paradigm? As Germany I'm going to be deciding between building heavy, light and medium tanks. I'm not going to be deciding between building heavy, light, and medium tanks or elephant riders or cyborg commandos. That's absurd, but it would increase choice. You see what the problem is here? Choice is only a relevant metric when applied within the setting.
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