SOE actually lowered the requirments on Test Center Prime, when the server population dwindled... From what I recall, a tier 5 city required only 35 peeps. This might work better givin the current population of the OP.
Has anyone verified if the city specializations are in effect?
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Bada Bing Inc. Bloodfin/TCP (Jan. 04-Aug 09) <BHC>,<FTA>, <RaVeN>, <MOJO>, <EGO>.
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