Dan Magaha of Firaxis wrote a scenario describing his game where he was trying to fend off the Romans buy rushing a city to build Immortals.
According to his detailed account, it was specific to a city. He further indicated that the city in which he implemented forced labour constantly went into revolt after he successfully defended against the Roman invasion.
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Of the Holy Roman Empire, this was once said:
"It is neither holy or roman, nor is it an empire."
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