I don't have a strong view about what changes could be made, besides final word should be said by Shadowood only. So I just humbly share my thoughts.
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Eleven is a good number, Captains plus ten. But I think that a smaller squadron could be interesting as well. For example six, Captain plus five people.
This would stress more the "could the teammates really work together in synchrony as if they were a Guild?" part of the fun.
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Maybe the teams could be made by only people from certain Nations? Nations and friendly Nations?
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This would help increasing the number of players involved, but I guess it would lead to hard times for the Captains. Maybe there could be a rule like: half the team must be "new" players (new = never drafted before).
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![Posing ^^](./images/smilies/poze.gif)
Maybe Captains could be allowed to draft people only among those flying a certain flag (which flag? Could be the flag of a friendly Nation to Captain's Nation, maybe?)
Or dratfed players may be allowed to kindly say "no, I'm honored but I'd prefer to stay out/be drafted in another team".
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![Posing 2 :PP](./images/smilies/pp.gif)
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Not yet drafted players could maybe be allowed to sponsor themselves? Like: pick me and I'll give my team 1 shiny gold coin each
![Gold Coins :gc:](./images/smilies/goldcoins.gif)
![Laugh :D](./images/smilies/laugh.gif)
I'm not sure about what changes. I'm just posting to share.