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Posted by Tagaziel

J.E. Sawyer finally caved in and provided some expanded background on the Legion and what New Vegas would've included, if given a few more months of development time:

The additional Legion locations would have had more traveling non-Legion residents of Legion territories. The Fort and Cottonwood Cove made sense as heavy military outposts where the vast majority of the population consisted of soldiers and slaves. The other locations would have had more "civilians". It's not accurate to think of them as citizens of the Legion (the Legion is purely military), but as non-tribal people who live in areas under Legion control.

While Caesar intentionally enslaves NCR and Mojave residents in the war zone, most of the enslavement that happens in the east happens to tribals. As Raul indicates, there are non-tribal communities that came under Legion control a long time ago. The additional locations would have shown what life is like for those people.

The general tone would have been what you would expect from life under a stable military dictatorship facing no internal resistance: the majority of people enjoy safe and productive lives (more than they had prior to the Legion's arrival) but have no freedoms, rights, or say in what happens in their communities. Water and power flow consistently, food is adequate, travel is safe, and occasionally someone steps afoul of a legionary and gets his or her head cut off. If the Legion tells someone to do something, they only ask once -- even if that means an entire community has to pick up and move fifty miles away. Corruption within the Legion is rare and Caesar deals with it harshly (even by Legion standards).

In short, residents of Legion territories aren't really citizens and they aren't slaves, but they're also not free. People who keep their mouths shut, go about their business, and nod at the rare requests the Legion makes of them -- they can live very well. Many of them don't care at all that they don't have a say in what happens around them (mostly because they felt they never had a say in it before the Legion came, anyway).
He also clarifies why there is no post-endgame play in the game:
We always wanted to support post-Hoover play. A few milestones prior to being content complete, it was obvious that we weren't going to be able to support it to the extent that it deserved (robust reactivity to the choices the player made). Because we didn't have time to do it correctly, I made the decision to cut it.
Link: J.E. Sawyer's Interrogation Website