It also feels bizarre that you have to micromanage all these people, and personally plant seeds and decide where people sleep - you're their leader, not their mother! You're supplying these people with security and tons of resources, why can't they kick in and help out with building up the city? Settlements lack that Bethesda game feel of exploration and progression, and so there's not much incentive to actually use the system.
One of the biggest problems with Fallout 4, is just how disconnected the Settlement system feels from the rest of the game. This functionality is provided through Patreon.