Shoulders call the shots for his area, he's not the overall chief of CVLs. It's obvious that CVLs have many blocks in the entire city , so it would of been more than 12 if he called the shots for the entire branch.
Their still are details such as earnings from each block, membership count, and side activities. The fact that there is a hierarchy in place reflects management activity. Your looking at 12 blocks as small but your not looking at quality market.