Seems a very arbitrary way to do it to be honest. You'd likely need to instate some kind of challenge system similar to what is going on with the official faction system.
It's been suggested to "make bases SRP", which is a slightly misused term for "have to be approved" which I'd say would be more in line with something sensible.
It´s not good idea. Your restriction is even worse than "one official faction per ID" because it´s "one PoB per multiple IDs". That is too restrictive.
For example IMG has mining bases in Omega and Tau. Makes sense inRP. But you want to force them to have only one. Why? Mining bases generally will be affected by this very strongly.
So bases as SRP or admin approved - why not. But your suggestion? No.
Also have you thought about the fact that some unlawful factions are hostile with others in the same house, this means that some factions are left without the choice to build a POB altogether.
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Of all the 80 bases, less than 10 % have an influence on the gaming experience of most players and there are about 5 bases that are annoying and in a spot so that more than a few people are affected.
Would be nice to hear from AD (who seems to know these things) how much strain PoBs themselves have on the server? If it is something significant then maybe a limit or change to their coding would be in order, same as ship hitbox format, NPCs spawning and fighting each other but not the case with tradelane weapons (something like 0.01% of server load).
Just remove them from the mod. Back to actual inRP contracts and no groups saying "no, don't have time to event/RP/whatever reason because we need to supply base" stuff..
*Tyler kicks back his feet and waits for the typical responses to flood in, mostly by the same people who themselves are too caught up with their base to notice RP dropped BIG time last year or so*