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Adding some detail to my idea.
The cargo ships don't go by the standard ranking system of levels. They rank as only 4 different types.
Type one is the lowest, and is escorted by guard fleets of Sentinels, Corvettes, Bulwarks, etc, other ships of that level.
Type 2 is a little bigger, and is guarded by Marauders, Ironwalls, Centinels, etc.
Type 3 is the biggest, and is guarded by Man-O-War, Warlord, etc.
Type 4 is the Cargo Flagship, and has a mixed fleet of guard escort ships.
Each type is appropriate for the level of attackers and the plunder is also.
This way, someone with a regular frigate can still attack a cargo fleet, and get the appropriate loot. No sense having them attack a Cargo Flaghip that gives 12 Royals, when they can only carry 9 max.
If you already have some cargo plunder when you attack the Cargo ship, any royals the cargo ship gives up automatically replace any lesser plunder you may already be carrying.
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