Would an intelligence Sea Lord encourage departmental empire-building?

Would expanding the Admiralty encourage officers to build personal departmental empires?

That incentive is weak because officers usually want to return to command afloat and spend only two or three years in their Admiralty posts.

Admiralty officers generally prefer commanding ships and fleets to remaining in administrative posts. A posting of two or three years gives them limited time to build a larger department. Making the intelligence chief a Fifth Sea Lord would raise that officer's standing while preserving the existing relationship with the First Sea Lord. In this interpretation, an ambitious naval officer is more interested in a larger ship or fleet command than a larger office.