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They'd hawk their quotas to the highest bidders. Organizations would buy those spots from each other so they could get more slots.
Since these organizations were given autonomy on who to send and the Order didn't have a name list of their members, it was easy to sneak a non-member under the Order's nose.
However, in the next three months, the new rules for the quotas will be put into effect. All members in the quota system would have to serve their organizations for 10 years ...
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