Here is what is wrong.
In DOAE 2.0, the agility levels have been modified from the original game. Every chapter, the 5 tigers + Zhuge Liang and Pang Tong gain, yes *gain* agility every chapter. There are 8 chapters in the game. Believe it or not, in Shu, officers have the highest agility bump, and it actually decreases in Wu, then bumps up again in Wei, but it is still LOWER than Chapter 6 levels which is Shu. As the talented people over @ lordyuanshu.com/forums have been hacking DOAE, we stumbled upon these interesting things about DOAE
If an officers agility EXCEEDS 255, it resets to 0 and beings counting up again. In DOAE 2.0, Zhang Fei starts off with 180 agility and I believe after testing this myself, the HIGHEST an agility-leveling officer can have is 122 -> 254 agility in chapter 6 which is the highest agility bump in the game, obviously showing the officers advantage in Shu. if you give a tiger officer 180 agility in chapter 1, they will "wrap around" back to 0 and have like 50 agility in chapter 6. Make sense? In DOAE 2.0, all the "Tigers" except Zhao Yun and Zhuge Liang/ Pang Tong are like this. Essentially, DOAE 2.0 is bugged by giving the 5 tiger officers over 122 agility and TOO high agility levels that reset in the latter chapters as well, therefore, that is why your officers always wind up going last. It was probably a simple mistake of testing that when James programmed it, he was only looking @ Chapter 8 agility values, not realizing that 6 is actually higher than 8.
In the Rise of Lu Bu Mod I stumbled upon all this and managed this fix. In Rise of Ieyasu and some other DOAE mods we use Agility not just for determining turn order, but also to allow BONUS attacks!