In a sense you're right. But that (prioritizing PO in the early game) is true just for the two (three) big factions: the two Romes and Sassanids. The two Romes are in a mess to begin with so that needs to be cleaned up before anything else can be done. Sassanids: don't know, have not tried them yet, but I figure must have similar starting issues scaled down a bit from the Roman situation.
All the factions that start small can go pretty much in any direction they wish. Then there's Huns who don't care about PO or integrity.
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