I just cannot understand the new baggage rules at all to be honest.
I think a partial solution to the perceived problems with mobile baggage would be to allow a baggage command that does not need a general, but has to baggage (O) only and behind TF if the list allows, this is then army baggage. All other baggage has to be mobile, i.e. (I) or (F) and attached to each generals command and is command baggage.