That's not a criteria that Civ7 has right now to include people as leaders in the game. We have lots of in-game leaders that never ruled a nation per se, but are still included in the game, which is something that's positive, in some cases, and would allow for Henry Morgan or Drake to have been included in the game.
Also, at least Drake and Morgan acted on behalf of a recognised government at the time. Morgan was the colonial governor of Jamaica and Drake was an MP of England. Meanwhile, the Pirate Republic was never a recognised government.
Yeah, people don't need to have led anything to be included. Any of them could have worked, but Blackbeard feels like a stronger character. Also for some reason he seems more timeless, too, and so I think fits better in the civ 7 leader ecosystem.



