The shield generator is a bit of a problem for me, and I don't think lowering its tier level alone would bring it into the realm of usefulness.
The shield generator (and the auxiliary government starbase upgrade) both are useful in one and only one situation: where you do not have the ability to stop the enemy from bombarding, and the enemy does not have the ability to destroy the tactical structures in the gravity well. The case of the novalith notwithstanding, this implies that you have a relatively thick static defense network somewhere in this gravity well, and the enemy fleet is clearly superior to your own. There's one very important subtext here: this planet is very important for some reason, because you've invested a lot of money in static defense.
The starbase offers a very permanent solution: the enemy can't claim the planet until the starbase is downed, and this means it's the attacker who must come and get the defender, not the other way around. A shield generator offers a very temporary solution: no matter how upgraded it is, the attacker will eventually break the planet. In other words, the defender must eventually come after the attacker. It does nothing but buy a little extra time which may or may not be enough to do something about the situation. In practice, if five minutes isn't enough time, ten minutes probably isn't either. Unless you're at a very special stage of the game (for instance, an ally recently knocked out an enemy and a bunch of dominos are about to fall) entrenched battles rarely turn so spontaneously. Chances are you need a permanent solution.
That's a big reason to pick a starbase over a shield generator, but there are two other reasons. The first is that if the enemy cannot take this planet in a reasonable amount of time, a common solution is just to bypass it and move on to the next planet. A starbase will greatly punish an enemy for doing this, perhaps giving you enough of an edge to beat them in a straight fight. A shield generator not so much. The second reason is that the enemy might just decide to rush your defenses and take out the shield generator. No one in their right mind would attempt to rush a starbase without a massive advantage, so a starbase is also much more difficult to counter.
A shield generator may be cheaper, but it's very hard to compare with a starbase for effect, and for this reason I think that simply tweaking its cost and position in the tech tree is insufficient. I believe the shield generator needs to be completely retooled so it does something that a starbase cannot offer. This is very similar to the issue of PJI's and starbases. Both have a role in punishing people who attempt to bypass, but in different ways. With a PJI, you get some extra time and an attack of opportunity before the enemy leaves. With a starbase, the enemy takes significant damage upon arrival in the next well. While their role is the same, the exact effects are different and this gives the PJI a very real role even when a starbase is already in play. A shield generator, on the other hand, is just a weak version of the starbase's effect.