Yeah, that’s a fair point – the naval bases wind up being too productive in places like Guam and the Philippines. The US had some ability to refit or finish ship hulls in its Pacific outposts, but not 40 ipc’s worth.
Maybe we could add one more rule to the mix: production is capped at 10 ipc per turn per territory per point of ipc value, or to 40 ipcs per territory per turn, whichever is smaller.
So, Hawaii’s air base could manufacture one fighter per turn (representing recovered or repaired planes), but not 3. The Phillipines could drop a cruiser and a destroyer at its naval base, but not a third ship, unless all three ships were ss/dd/transports.
Does that sound more balanced?