The Dutch fleet's abundance of admirals

Which historical fleet was the most top-heavy with senior officers?

The Dutch fleet in the age of sail was especially top-heavy because separate provincial admiralties each sent senior officers with their own small contingents.

The Dutch Republic did not field one centrally administered navy in the modern sense. Its separate admiralties contributed squadrons and often sent their own senior commanders, so even a two-ship contribution might include more than one flag officer. The result was a fleet unusually rich in admirals because political and institutional representation traveled with the ships.