I feel like such game would be hard to balance, because everyone would want to be the boss. And even then, you'd need some very good ideas to provide compelling gameplay for both the commander and the commanded.
Actually it's kind of the opposite. No one wants to be the boss! So you either get a reluctant commander, a person who knows what they are doing and really want to command, or a person who doesn't and has to be brought up to speed through in-game voip while playing.
Honestly, NS and NS2 the commander was a fun position. You play to upgrade your units, grab resource nodes, and expand influence, while trying to direct non-compliant troops. (Really throws in a wrench to your RTS when you can't get your soldiers to do something you need). Another aspect is in the smaller team dynamic of NS, one or two good troopers can have an outsized effect on enabling the commanders gameplay.
Empire mod gets around this by having larger teams (15+ vs 15+) with vehicles, upgrades, weapon customization, tech trees, so it really plays like a war where you need to counter what the enemy brings to the field in terms of tech.
