Before we complicated life with money, machines and missiles we did well with morals, manpower and meetings.
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The only problem that ever really seems to bother empire builders is bureaucracy. Before a new colony on the frontier could be founded, the Senate and Triumvirate would have to pass the plan. Factors influencing the High Lords decision would include, among others, the number of people needed to found the colony and whether this would result in any significant population shift. Another, more critical factor would be whether Tactical Defense could spare the ships or the manpower to patrol the area.