There is a video of soldiers returning from Afghanistan irritated about having to pay out of pocket for bags they thought were allowed under the government contract with Delta Airlines.
At the time, Delta’s understanding of the contract was First or Business class could carry four bags. Economy class could carry three.
Because of this, Delta will now allow First or Business class to carry five bag while Economy class can carry four.
With the next round of returning deployments there will be another Youtube video about soldiers having to pay for their fifth bags. If the bag allowance is the same for everyone, then it will be less confusing. Changing the number higher does not help. Making it simpler helps.