Yes, I quite agree. In fact, Megacorp seems to go in the same way, and government features like: "Private military companies" that simply grants a bonus, but does not take advantage the opportunity to introduce new mechanics of mercenaries or volunteers.in my opinion, as things like Warrior Culture, Distinguished Admiralty, Shadow Council or Imperial Cult simply do nothing but add a stat bonus, when in reality, it really should change how your empire works. Warrior Culture should make peace undesirable and weaken your empire, Distinguished Admiralty should make it so that Admirals can retire and enter the (non-existent) political system to become Governors etc., Shadow Council should make illuminati type events where you influence your entire nation and its people occur, and Imperial Cult should have your species act like a cult, not unlike a Hive Mind
I think that this whole thing is quite untapped, and could be exploited in the future, if Paradox wanted to.