i noticed that sometimes the AI would just not create a settler. in my current gameplay inca is like 2/9 on a pretty much an empty continent. seems something is broken.
That's base game situation. I'm maxing settler creation. However in cases where an AI player has to create tons of defense to not die, their priorities are on surviving versus settling. This happens often in the new continent where there are only a couple AIs, and many aggressive Independent powers.
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