I think it's more likely that there are some sort of eras like in MTW. Each era still has 21 factions, but different ones. After all, the reason why the number of factions is fixed is most likely because the amount of memory given to faction related stuff is fixed. But what you throw into that memory is flexible.If they do this again for BI, then they must add factions to make their own factions. So maybe we won't be able to add our own factions, but at least we might have some extra faction slots to play around with.
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