2-2-2, not 4-1-1

Perhaps the thing I don’t understand the most about the new resource overhaul is how (in balanced scenarios) rural resource producing provinces can have a 4-1-1 resource distribution, not an even 2-2-2. This just seems like common sense, is it not? Why on earth would they think it would be a better idea to NOT divide the provinces evenly and allow each resource to be produced in an even number of provinces?