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Traditionally caused by there being no available vignettes (I think the game will look through all applicable vignettes, eliminate any which another player is already using, and if the result is 0, assume 'too many players' - even if it started with 0). In this case though, Newcastle aka BR07 has various Zones with the "vignette_type" key set, and I doubt it had other players taking lots of missions at the time. @Wildkins?