From memory, cannot test right now:
It may be WAD, but it is a bloody silly D for the following reasons. The way it is implemented is that you cannot build in a province with 0.00 income, which for all practical purposes (there are a few exceptional cases) means that it only happens when your demesne efficiency is 0 (10 provinces over max).
....Except for one slight detail. A lot of buildings give +1 income, and as their boost is deliberately
not affected by efficiency, if even one of those buildings exist in a province, you can build anyway. Especially, you can build a Royal Post and work your way up from there.
Thus the rule that prevents building in 0 income provinces makes the silly and arbitrary distinction that at high inefficiency you can build just about everything so long as the province already has e.g. a brewery, whereas if it has none of the +1 buildings (no matter how well developed it is otherwise), it can build nothing.
The rule should be changed to one of the following:
- No building if the base income is 0.0 (i.e. brewery's &etc don't give a second chance)
- Always possible to build - but more province improvements should have income build limitations than have currently (Grand Palace, War Academy, Naval Shipyard)