In the mentioned regions it doesn't do any harm either. Some advanced buildings, like Aquaeducts, require a Level 2 government as a miminum, so it's always a good idea of building these where ever possible.
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Roleplay wise, Level 4 governments represent independant states that are not part of your Empire but kept as the (very) junior partners in an alliance. You should treat these as much distinctive from your other provinces as possible. For example:
- It can only be ruled by a spawned client ruler, a recruited general or (if you don't use the client ruler script and traits) by a family member that has been apointed king there (evidently not possible with the Romans) and passes the government to his son, while he cannot become faction leader or heir nor governer of any imperial province or commander of any imperial armies.
- The garrison can only be composed of troops that have been recruited in this province; and units that have been recruited there cannot be part of the permanent garrison of any imperial province.
- The army of this ally cannot be larger than what could be kept up by the income of this town. This army can be used with the factional army on campaign and the client ruler may accompany his forces as sub-commander of the main army. After the campaign these allied troops should return to their parent town.
- If he feels fit to do so, the client king might attack neighbouring Eleutheroi towns on his own (i.e. only using his forces). In case of a success, the conquered town recieves a level 4 government and is to be considered a part of the allied king's empire (= creating a subfaction)
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