Rules of War

Other than Althea, there were only about ten soldiers below the level cap who accompanied her to Bright. 

She wasn't being stingy, but there was a limitation on how much external help a territory could get—and the precise amount was something they didn't know yet. Not even the aborigines knew and she was not going to risk her own resources when she could help it. 

Besides, attacking low-leveled individuals during wars, especially within the walls, was not only punishable by experience or gold... there was a small possibility of losing life, too.

She would not risk her people for that. 

Still, to maximize their trip, she took the soldiers that could fight back during wars, for the most part anyway. 

In Garan's group it was only Luis, who was level 14. However, she did bring those above, though they'd be staying outside as reinforcement. This included Mao, who had just upgraded to 19, Rowan who was not far past the limit, and her husband.