So I'm creating a mod that spawns miniatures of NPC's from most of the major factions out of Skyrim's DLCs that the player can set up to have massive battles between miniatures. (based on two other toy soldier mods that I really liked, but that aren't updated anymore)

Anyways, when I spawn like over 40 or so NPCs in total, even if their combat style is set to attack anything in sight, there will start to be NPC's that just don't do anything. They just stand there until one of the enemies hit them personally and then only the NPC that was hit will enter combat. This makes it a little annoying if I try to do larger battles with my mod as the side that spawns first almost always wins because their NPCs are actually entering combat like they're supposed to.

I was wondering if this is to be expected because Skyrim's combat AI is limited to a maximum number of NPCs that it can control or if I can change something with either papyrus scripts or the creation kit to give activated combat AI to a larger number of NPC's (or maybe even giving it to an even number of NPC's from both sides instead of just the ones that are spawned first)

I've tried looking up how the combat AI works but I can't find anything to help me specifically and this is my first mod, so I'm still learning a lot. If anyone knows how to change the AI data or where I can learn more about how to change it myself, I'd be extremely grateful!