The mentality I see promoted is to think less about city builder style optimization and more about the building of a community. To this end, bundling multiple perks into 3 distinct banners is naturally going to mean many villages pick a banner for only part of their benefit. Even on hard, a village does not need to be maximally efficient to survive, so there is room to focus on the character of your village at the potential expense of mechanical bonuses.
Still, I think the banners potential to contribute to a villages identity could be improved. I’ve posted similar ideas about this in a your last related thread.