Discovery is an evolving storyline, but there are two points that stop it from evolving freely. First one is written storyline for a certain version of the mod. Second is the mixture of faction traits written in the lore. Players can't just rule their faction in the way, more beneficial for it without taking into consideration the prehistory.
And again, let me remind you that the goal is achieving some kind of balance not inside a single Dublin (while it remains a hellhole anyway), but in Bretonia in general and currently with only two domestic unlawfuls, one of which on practice protects miners more often then pirates them and tends to maintain a ceasefire with their natural enemies instead of fighting, it eventually causes bad experience for players on different sides, which by-turn leads to disbalanced fights and general dissapointment.
Lore-wise, Bretonia has enough power to counter all the Mollys attempts to reach independence and political power to limit possibilities of Molly-IMG cooperaton - and deter Kusari fleet in Leeds; rules-wise if you lost in Dublin, you can go to Leeds and defend the motherland there.
Because of too many sides there at once, Gaians, Mollys, Corsairs, Outcasts, IMG, BHG, Bretonians as well as Hogosha, KPT, independent pirates, mercentaries, freelancers, vigilantes and Indians will shoot each other in various combinations and nothing will protect Dublin from weird situations anyway, especially if you will take into consideration frequent visits of SCRA and Keepers and even an Order ship, looking for a nomad or two.