Why so few Infiltrators?

[Qyasogk]

I really liked the idea of the Infiltrator as Spymaster by utilizing AGENTS.

The infiltrator has to personally RECRUIT agents in the region he wants them to operate in. This agent has to be PAID for his services. Maybe the agent has a speciality, I.e. snooping on diplomatic documents, reporting granary levels, etc.

Assassination attempts could still be possible, but it's done via an agent. If the agent is caught, the infiltrator loses access to the agent, with maybe a rescue attempt being possible.

There could also be the option for the job being too important to leave to an agent, he's got to do it himself. But if he gets caught, then it's his ass.

Agents can be trained, have skills/experience, etc. Maybe adventurers can even be recruited as agents?