Why don't Pirate Bases normally have population, despite having a large settlment on it?
Also, when they do have population and you upgrade Civilian Infrastructure, why doesn't the population increase?
Game mechanics.
before you occupy it, it's mostly empty because the pirates don't have a large civilian population
no inconsistency there
I imagine the Pirates don't keep a very large population on their base since their income is solely from successfully collected bounty - the more time they spend roaming about blowing up trade ships/structures or bombing planets, the more credits in their pocket.
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