I understand where you're coming from but,
I can give many examples of why that the amount of NPs are not determined by, "global fame" at all, especially for Rider Class. Astolfo has 3 NPs, and he's a literal who in my cultural sphere.
Also, it's very arguable that Gajah Mada is not quite, as you said, an extraordinary global legend, he definitely is. It's just a matter of our own cultural point of view.