if you could read you'd probably remember the plot point thats existed for 20 years about how they constantly try to make Garp an admiral and beg him to take the job but he turns them down
If you could read you would know that at no point was Old Garp tried to be turned into an Admiral as all positions were filled with the C3 who have reached their prime. There's no point in promoting a marine that's inferior to another. The Navy is ranked by strength
 
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