Raids on civilian ships and settlements along the borders of the Klingon Empire and Gorn Hegemony rise dramatically and Starfleet identifies at least eight places near the borders where the Nausicaans are constructing bases hidden in asteroid belts or nebulae.

Starfleet Command does not consider these bases to be a major threat, but the Federation Transport Union, which represents a large number of civilian freighter captains, is demanding that Starfleet increase its patrols in the border regions and offer additional protections for civilian shipping traffic.

This puts Starfleet in a position of having to balance the need for defense with the Federation's deteriorating relationship with the Klingon Empire.

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