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Yes, i guess that is true i dont know any facts, but i think they acted like the old sailors that were allowed to do that with an official letter from the King or Queen
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Privateers, carrying Letters of Marque. Legalized piracy, in other words.
I don't know why the DD or Armed Trawler couldn't be changed to a flak sub, seems like a simple swap out. As for a pack, I'm sure that could be added in the Harbor Traffic mod, but how would you script it so that it only occurs when you sail out? Some sort of trigger would have to happen to cause the group to spawn.