I've seen engineers who were asked to move to EM role because they weren't strong technically to move up the ladder. They were able to move up multiple ladders

I've seen engineers who were asked to move to EM role because they weren't strong technically to move up the ladder. They were able to move up multiple ladders in the EM track using the same technique you mentioned above (empire building). With a bigger empire, they're allowed to take credit for high impact engg in their chain, and including the low performers simple for total headcount. It seems like a win-win situation honestly.