I don't think it is as simplistic as counting skills. Certain skills chew up a lot more of the potential pie than others. If there were two PGs who had all skills the same execpt for JS and SB and PG1 had JS4 and SB12 while PG2 had JS12 and SB4, PG2 could easily be capped while PG1 would be able to get a ton more training (hopefully in JS!).