Our top team is exactly that, super active players who are all experienced at the game.
The next tier down are good guys, but not as experienced or active as IC, as you could imagine because of that they also have a lower SS.
It keeps going down the chain in this fashion, each one of our legions has a specific goal/task. Our IA team is mostly focussed on PVP.
I like the idea of an empire, but it needs to be managed correctly, its not about a power trip, or having the most people, its just a group of friends, i know bunchloads of our people in all of our subs, and we all help each other out across the legions.
We are still pushing the top team to be better though, we wont stop and rest on our laurels simply because we have a big team, we wont stop trying until the game gets cancelled!
As for the pvp/planets issue, we have 3 subs, and 2 bp ally's, it can be annoying, but its a lot better than what i had at my previous team, where we had bp allies, long term soft naps and sister legions. As long as we see "imminent" or one of our bp ally's names we dont hit it.
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Whats better to have? A legion that remains number one for years? or a main legion that is generally in the top 15 with several sub-legions.
As for that question, you need your best people in the top team, whether that makes them 15th, or 5th, you need the best of the best that your legion group has in the top team, my thoughts on it anyway.