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Make pirate towns...

 - uncapturable (like Free towns)

 - unable to be entered by any nation

 - few in number, but spread across the whole map (has to be done in locations that cannot be blocked easily by nationals all the time, or there has to be the option to sail under false flag and avoid a blockade this way.)

 

Make pirates unable to capture towns.

Make them able to enter Free towns however (for selling loot).

 

Maybe pirates could enter national towns under false flag under some conditions. Nothing specific in my mind here yet.

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