Let's wildly assume that the average settlement is defended by 8 units, and that the average upkeep per unit is 500. Which is probably on the conservative side, especially since cavalry units are quite expensive in upkeep. No Eleutheroi city in EB comes even close in terms of making 4000 Mnai / turn. The only way they could do that is second tier mines, in a minerally rich province. As far as I know, no settlement starts with those mines.
Add in all the rebel stacks, scripted defenders, pirates, etc., and it is obvious that the Eleutheroi are crippled in debt from the get-go. In order for them to develop, you would need to give them copious amounts of money, to the tune of 100 000 Mnai for every 20 settlements they own. At the start of the game that would be more than 600 000 Mnai / turn. I think someone actually experimented with giving them about 3000 Mnai / turn for every settlement they owned. That massively reduced expansion in Eleutheroi lands. Doing so would only require some minor changes to the script.
Back on topic:
I am not too worried about this particular issue in EB2. I am sure the first version won't have it solved - it is a matter of testing and tweaking. A blunt method such as "add_money" may work in general, but that may conflict with historical reality, and AI practice.
For EB, there were the AI faction progress threads, which also helped in identifying issues that lead / have led to unwanted AI behavior, such as the formation of Grey Death / Yellow Fever, factions expanding to unwanted areas (Hayasdan to the steppes, Pahlava up north, rather than to the south; Sweboz saying hello to the Romans in 250 BC). It is all in finding the right balance, and that requires serious testing.
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