That just sounds to me like 25 out of the 40+ are transformable.
I mean NH3 had 40+ characters (42) but if you counted all the transformations, it would reach like 50+ characters, so it had like ~12transformable ones.

NH5 had even more transformable ones.
UNS already had 25 playable chars, 35 with supports, and 42 in total with transformations and alts.

Having only 25 characters playable in UNS2 and the rest as support would thus be pretty terrible.