I agree with you. I think there are users who don't want the witnesses earning, and are innovative enough to have great ideas to benefit the chain. The problem is that the chain doesn't have a process to spot these people, recognize them and empower them to bring the change we need. Also the witness position never changes too much, so probably that's why.
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Not saying a bad thing but it is the nature of DPoS system plus other past things based on Steemit stakes :-)