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
For years Yoncucks said why won't the Navy send an Admiral to each Yonkou territory if they're as strong as them. Turns out, a retired and washed 80 year old Vice Admiral is enough to do the job
An ex Admiral literally has to step in to end the onslaught.
There's absolutely no timeline implied in this panels lmao. Sengoku was talking about the Rocks incident after which the Navy tried promoting Garp and we know for a fact that they did it during the Shiki fight as well but there's absolutely no confirmation that when Akainu, Aokiji and Kizaru reached their prime the Navy has tried even once to promote Garp.
He was simply surpassed as he got gradually weaker and that's that.
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