Pahlava is a unique faction compared to other nomadic faction in EB because her has Reform Parthian Government that can be build in Pahlavahome. After the government have been built, advance public building such as Music Hall, Zurkhaneh, Caravan Post, paved road etc can be build. Then Pahlava can transform from nomadic lifestyle into developed lifestyle.
But that only limited to the Pahlavahome regions, around Iran and Mesoptamia... In Steppe and other regions outside Pahlavahome, Pahlava cannot upgrade the cities because cannot build Reform Parthian Government.
However, Pahlava can take advantages of other faction government building. In my Hayasdan campaign, I have seen Pahlava built fotress wall, paved road and Zurkhaneh in Khiva. It was using former government building of Baktria, type III one. Khiva have been conquered by Baktia, Baktia built type III, Pahlava conquered back, then start upgrading the city.
So, I try Pahlava, conquered Steppe cities, give it to Baktria, Hayasdan or Pontos, wait them to build their government, then conquered it back. Don't destroy their government and voila!! many public buildings are able to build and paved road ran through Steppe.
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