If that was the case for one or two sets, that would be fine. But, I seriously doubt it; without swarm enemies/trooper minifigs as main characers, there is going to be quite a lot of repeats of the toa minifigures. You're going to want villagers to free up the gaps. True, parents of, most-likely never going to buy a kid one-three sets from any given wave, but when you have a large majority of the population being midgets, and when at least 25% of them in, IDK around 3-6 sets per wave , the small amount of shrt-legged people add up.
And what if story comes into play? What if we have a villager added to the toa's team.
(like Dareth in ninjago)
We don't know what the story will bring. We don't know this because every single issue is maticulousy disected to the point where it's crazy. At this rate, I'd say it going to be at least a year before the "sets" (or concepts for them) actually come out.
Could you see a set that has more matoran than toa, though?
I'd say you could: a temple of some sort (like the airjitzu temple); a collector's item. Would you be happy if all the villagers/ regular townsfolk in that set had small legs? 'Cause I sure wouldn't.