Nations that have nomadic governments should be completely barred from using the new development system. This includes Steppe nomads. This is for the simple reasons that those people didn't develop their lands and cities. On the other hand, they could do with a special capital bonus that they develop that is unique to them and represents the full power of their hoard/tribe. Once they settle and change their government, that bonus then transfers into regular development in their heartlands.
Regular tribal nations could use a similar system, but I think it would make more sense for their government type to simply apply a penalty to development costs, making them much more expensive. They're then far more inclined to grow wide rather then tall, as tribes historically tended to do.
Regular tribal nations could use a similar system, but I think it would make more sense for their government type to simply apply a penalty to development costs, making them much more expensive. They're then far more inclined to grow wide rather then tall, as tribes historically tended to do.
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