I had much the same thing. Two float planes just flying by like nothing happening. They went past me three times. I even fired the AA at them to get their attention.....nothing... I posted a thread just like this. Still no answer. I said, well screw it, don't want to deal with the darn planes every two seconds anyway. Right after that, wham, they came alive and started bombing.
I do not know what triggers the buggers to wake up. Maybe your speed or proximity. Maybe a trigger on certain year or month. I do know that when a task force is near they appear frequently and bomb. Other than that they seem to be on a milk run.
Now that they are awake and I'm sure will start attacking you, I was able to work with damage control and figure out more deeply how it functions. Damage control is not so bad. I'm still working with it.
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“You're painfully alive in a drugged and dying culture.”
― Richard Yates, Revolutionary Road
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