Our OLBs are a liability and weakness, in my opinion, so an upgrade could be made by just bringing in average players (not necessarily top players) at Sam and Will. The Bills are getting good production (relative to Kelsay) from Dwan Edwards, Akin Ayodele, and Andra Davis and none of those guys were superstar free agents.
It's a rather sad state of affairs that the Bills have so many holes that the contention is that certain positions shouldn't or can't really be addressed and improved, not to mention rather defeatist; but, you may be on to what they are thinking, sad to say.
In football terms, if they are serious about running the 3-4 defense, then having versatile, athletic OLBs is one of the key aspects of running that defense at an elite level. So, I guess I can't really see the point of just slapping a band-aid on it and calling it fine, assuming that the front office is actually trying to build a great team.