Who's gonna control their action? An ai? CCnet 2: electric boogaloo?

There are co mayors for a reason

This is an absolutely ridiculous suggestion, and for obvious reasons will not be implemented.

If a person makes a town, they are the mayor of that town, until its either given to someone else, or the town is deleted.

You can not use an npc to hold pointless towns for a nation leader to control, and would ruin the server as a whole, with one person controlling many towns - which directly goes against the core features of towny - one person owning one town.