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That's why authority is probably his best first policy because it shores up his lack of early bonuses with strong early production and lots of cities, and then allows for his UB to be even more effective due to the greater production output on empire. Progress is great too because it synergises so well with his production ramp up from his UB, and lets him stay on top of every infrastructure upgrade easily, thereby having lots of spare production to put towards troops and envoys.