Erik,
still working on the setup for my multi faction game, and looking at the idea we discussed before on using the maximum population as the cap for slots available to all factions, well the slots run out pretty quickly.
Just looking at the way you seem to be addressing it, and the fact that the available slots are tied to populations rather than the size of the system bodies, I'm assuming that the slot limits more represent what the population can support rather than what the planet can support?
If so, I'm thinking I may just let each population have the orbital and ground slots their population gives them, however if and when populations merge due to diplomacy of gunboat diplomacy, the slot levels for the new population must adhere to the limits of the new population size, and excess facilities cannot be supported (ooh that might be a new rule that needs implementing, what happens to facilities higher than the pop can support? might come up due to population decreases as well as this)
so for example if the EU (pop 565, Core, ground: 6, orbital: 8; Research, Defence, Scanning, Intelligence, Orbital Shipyard) conquers Russia (pop 200, Small Core, ground: 4, orbital: 4; Research, Defence, Scanning, Orbital Shipyard) the resulting population would be still a core, so the EU would not have any additional slots, and would have to abandon 3 ground facility slots, though could keep the two shipyards)
I could see similar issues arising when an empire sets up a colony on someone elses colony (like the US in Steves current Aurora game)
what do you think?