It takes away from the purpose of territory in the first place if anyone can make a town on it with or without permission (even if there was a tax).
This was one of my first thoughts too. Unfortunately, compared to the amount of land we can claim Loka is very small. A large amount of player will look at a full world map and get discouraged very quickly if there is very little way for them to establish a town.
So in general I'd say you have to either give them the ability to claim some land inside of current territory or massively decrease the amount of territory towns can claim. I thought the limit was 25 but apparently its even higher. It should be at 10 if you really want to allow more towns to pop up.