I have always been under the impression that the 'Rebel Faction' was not meant to be taken as a monolith, but rather as a necessary evil in that not every settlement can be represented as an independent faction. I never think as I'm playing that the rebel city I'm attacking in italy is the same political unit as the rebel city I'm attacking in the crimea- it's just a part of the game engine that we have to live with. The alternative I suppose would be to have all the factions start with loads of cities and immediately have to go to war with each other in order to expand. The 'Rebel' cities just give you some manoevering room, game-play wise. I've never thought that it's meant to represent a single unified faction.
By 'dubious' I meant that it just seems as if we're stretching a bit to insert a faction where there wasn't really one, just for the sake of game-play and balance. That's fine I guess, I was just trying to comment that maybe it's not necessary to have the full 21 factions- maybe the balance is fine as it is, even without the Yuezhi.
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