No, that's not the root cause. The root cause seems to be a combination of cascading events that causes a deathspiral: https://cdn.substack.com/image/fetch/f_auto,q_auto:good,fl_p...
"ships bring more containers than they take with them" is a symptom, not a cause. Mandating "ships to take an amount of empties" doesn't really fix the problem because shipping companies already want the ships to fill with empties, but can't because of other factors (see chart). Forcing ships to fill ships with even more empties presumably also makes things worse, by causing ships to occupy dock space.