Can't we just have an algorithm when there is a raid that looks at the fleets of each player, takes the average fleet size (perhaps based on max{most-ships-on-a-planet, most-ships-in-an-'official'-fleet}) and divides it by two, then that's the maximum amount of pirates per raid. Might need a bit of adjusting due to starbases etc but, hey, the pirates Shouldn't be a serious threat (certainly not the dominant force in the galaxy as they seem to be atm), they should simply be a nuisance.
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