The game appears to create L1 nearby your own town,often using the same spot to create higher levels as when needed and often doing the same at another spot iin the vicinity.  

Or use the watchtower.

I have tried the Watch Tower but it's range is limited to 30 KM.  I have searched the entire map in K904 and had a complete list of two of all levels.  Those do not appear to change, but the lower levels (ie 2-20) are extreamly hard to find.  It took me a search of almost the entire map to find one level 3 and one level 13.  As of right now on my list I am missing 2,3,5,13,16, and 17.  If I see them I note them for my Clan members to request.

BTW, ANYONE in 904 is welcome to ask me for a location. Our Clan (He1p) is there to HELP.

if you use the watchtower to search for a specific paladin lvl and see none just close the watchtower and reopen it sometimes it takes couple times of searching for the level paladin that you want but it will show up in range of your town.

I had the impression that as one level is completed the next level is generated nearby  i.e. 9 - 12km, .... and use the tower to find them. (which is more or less what xyz suggested).

I think what shows up is the next level you need ... not whatever level you want ... if you want a lower level you have to try to find one that someone else has generated (at least that is how I am understanding it)

You can generate the level you need by using Navigator. Choose the Paladins' Cohorts and the level you require. Then you have to close your Navigator and wait about a minute. The needed level of Paladins will be spawned, and you will see it in the Navigator 😎