It really wasnt meant to be "played" in the first place, frankly.
To
@Rubbernuke 's point, when players started playing the BGS as the political, group vs group territorial layer, FD realised they had a problem. So they introduced OG Powerplay as that mechanic. Groups supporting factions everywhere were excited... and it flopped, because it failed to capture what made the BGS enjoyable; the dynamism and freedom of activity that created situations, which was instead boiled down to rinse-and-repeat singular activities for singular objectives.
FD never anticipated players would get passionate about the minor factions. They were
meant to get passionate about the Superpowers (i.e the Empire, Federation, Alliance and independents), and the minor factions were meant to just go by unnoticed[1]. When PMFs were introduced too, it wasn't intended as a flag for player groups to rally around.. it was just to let players add a bit of flair to the universe... not dissimilar to player- submitted galnet articles and CGs. In a similar vein, they too became vectors players tried to use to control the narrative and the shape of the galaxy.... and so FD shut those down.
The BGS was always meant to be "the living, breathing background that responds to player touch in a realistic way"... and the first video about the BGS said as much... words to the effect of "if players are deliberately doing things to shape the BGS, we've done the BGS wrong.. it's actually a foreground sim at that point".
The BGS has never been balanced because it doesn't need to balanced... it just needs to react, and that's always been the case. Balancing the BGS is like asking someone to balance the weather, or complaining that a dice roll doesn't return a six every six rolls, It's meant to be dynamic and unstable, because that instability was meant to create opportunity. A war was meant to create opportunities for bonds where they may not have existed by default... famine would create a state where shipping food for profit was worthwhile, or medicines to an outbreak... things that were short- lived and brought opportunity to your door.
But after PP1, FD made the strange move of embracing that player- controlled idea more... they formalised the pmf process with rules, added squadrons with pledging... but still never balanced the BGS.
This also grated with the idea of factions. They're meant to be NPCs. Influence of 20% in a system of 1000 meant literally 200 people supported that faction. But instead, these changes continued the idea that players controlled them, and to could see that in the registration process; three fields... group name, faction name and squadron name... all are three very different things, but many players made all three the same, ignorant to the nuance of them. That's not players fault... that's on FD for failing to manage expectations.
Then things got worse. States stagnated as PMFs homogenised the galaxy and controlled the bgs, the economy became unbalanced[2] as subsequent changes fended off the next FOTM thing poorly. The system is still unbalanced like its meant to be, but the underlying systems FD used have been overengineered to be complexity for complexity's sake.
Gold is a hot trading commodity. Oh look, there's a famine... we could trade food? No, gold pays better. Outbreak? No, gold. It's entirely homogenised. Things like Robigo, HGE farming, insert your FOTM mechanic here... they're all completely unbalanced
and fixed in time. They never change except when FD wills it... and that's where its all gone wrong for the BGS.
FD shouldn't control it. Players shouldn't govern it. It should be unstable in a time- bound manner, with PP having sweeping impact to large swaths of the galaxy, with local faction states creating pockets of, sometimes unreasonably so, time- bound lucrative gameplay for those who can identify the right conditions.
That creates a dynamic and interesting universe... and a necessary part of that is relinquishing the BGS back to what it should be; the malleable background that isn't at the forefront of players minds. I may be somewhat unimpressed with PP2, but if it's destabilised the bgs through activity, this is only a good thing.
[1] the problem being, Superpowers were virtually unrepresented; everything you did was for the factions.
[2] it's funny... everyone now complains about balance issues in PP2 like they're something new. They aren't... it's been like this, and I've been arguing for economic balance forever... "But Jmanis! FD can't make money off a balance pass! We need ship interiors and base building!"... Odyssey, The Thargoid War and now PP2 have all been plagued by balance issues... and none of them are new... it's just FD's wanton neglect for its core mechanics that get put under the spotlight as every new release is built on a foundation of trash.