As appealing as the idea of standardised bags are, they're this way for a reason.
Infantry Sections are builders because Sappers are a T1 unit and Sections are cover dependent. You'd effectively make the whole faction map dependent if you took their bags away.
Volksgrenadiers build bags because Sturmpioneers are already an overloaded unit: making them the bag builder too might be overkill.
Conscripts build their own bags because they're hybrid utility units, and if Engineers built the bags it'd be a net buff to the Penal build.
USF would be even more powerful if Riflemen built their own bags. I could perhaps see an argument for Grens to build bags instead of Pios.
The best balancing measure for bags I can think of is to replace all nondoctrinal sandbags with the Conscript variant. That'd prevent you from building bags behind things as easily, making building cover a risk if the enemy then takes your position.
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