I don't know if CA will tackle this issue in Rome II, but in Shogun, the pirates were a real annoyance, especially since their behaviour was rather unrealistic :
1/ They kept coming whatever you did, as if there was some inexhaustible source of pirate ships somewhere in the world. And the faster you destroyed their fleets, the faster they came back with brand new ones.
2/ As long as the country was divided, the other factions handled the pirate fleets. But when you started to grow, you would be the only one to face the endless pirate attacks.
Now in the real world, what happens is the exact opposite. As we can see in Somalia (for instance), pirates flourish when a country is poor and the political power divided and weakened, which enable adventurous people to earn their lives through criminal behaviour.
Therefore, if pirates are to be included in Rome, they should be :
- land based, somehow. It is either a faction ("rebels" ?), either the consequence of having multiple factions sharing the same seas (and the more factions you have, the more pirates are spawn),
- boosted by poor economic development : when coastal provinces are poor and subject to unrest, pirates should be more common. When coastal provinces are prosperous and happy, pirates should be rare,
- responsive to repression : when you score a victory over a pirate fleet, pirates should appear less frequently. On the contrary, the more you let them roam free and attack your trades routes, the more they should grow.
And it is not just a matter of realism. It's a matter of fun. It's no fun to chase immortal pirate fleets, if what all your successes earn you is ... even more pirates coming.


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