I'd say it's a combination of factors. For instance, I've noticed a lot of people looking for a team, but uninterested in starting their own. If I start a team, and especially once I get 2-3 other people to join, I have no issues filling it up. A lot also depends upon the level range you're looking for; Sub-22 is tough, since a good number of folks run DFB or AE tunnel farms until that point, and some mid-level folks find it a bit daunting to join a 40+ team running radio missions in PI, since those are often +3 or more, and you'd be whiffing a lot without better slotting...