This would be to prevent overuse of it by the AI. It's not rare that I see the HRE full of several level-3 trade centers by like 1600, and I think it should be more realistic.
Upgrading to level 2 could require 15 dev, and upgrading to level 3 could require 30 dev.
Upgrading to level 2 could require 15 dev, and upgrading to level 3 could require 30 dev.
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