I would agree with you, but isn't this the case for most everything else? Towns like Sandsete are inevitably going to have much higher building and excavation levels than a town like Euphoria or Astro that focuses mostly on PvP. It's also why they aren't capped at 50, but rather 100. Level 25 towns aren't supposed to be a common occurrence either, but rather an achievement. With the new Rivina updates, I would suggest you take a tile on there and convince other smaller towns with lower PvP levels to have some fun conquest with you. It's 10v10 which is still extremely doable without huge recruitment wars needed. With battlegrounds being readded, this should also help with town leveling.