I believe the reason the family only had 3 capos is because the vrews the capos ran were like a family in itself. Tessio's crew was so big and on such a long leesh that those not "in the know" though ue had his own family seperate from the Corleones.
If the Corleones were able to muster enough soldiers to match all the other families, then many more than 3 capos would have been necessary to manage all that personnel.
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