Seems like you could just set a hard cap like you do now with spies so you could only have like 1 or 2 per settlement
If they were going to be available anywhere, it would be in Allied Governments, not factional ones, I'd say.
It began on seven hills - an EB 1.1 Romani AAR with historical house-rules (now ceased) Heirs to Lysimachos - an EB 1.1 Epeiros-as-Pergamon AAR with semi-historical houserules (now ceased) Philetairos' Gift - a second EB 1.1 Epeiros-as-Pergamon AAR
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