Kong Gateway load balancer doesn't rebalance

Reading the Kong Gateway load balancing reference and it makes the statement

The targets will be automatically cleaned when there are 10x more inactive entries than active ones. Cleaning will involve rebuilding the balancer, and hence is more expensive than just adding a target entry.

If I understand that statement, then if I have 2 healthy targets and 25 unhealthy targets, the balancer should rebuild and remove the unhealthy targets?

I have the case where services restart and get a new IP address witch causes the the old target to go unhealthy and be replaced by a new target. After time, I end up with close to if not more than 100 unhealthy targets which causes kong to mark the upstream as unhealthy. Maybe I misunderstand the statement or have something misconfigured?