That doesn´t really make sense:
1- Suzaku is from area 11, but he´s number 7.
2- That doesn´t fit with the Emperor´s views on inequality. Subduing people completely is what his ideas are all about, so having knights from each country sounds silly to me. If it were having a knight rule over an area, though, that would make more sense, but I don´t know what area is area 7 and why Suzaku would rule over it...