Are the doffs prisoners perhaps? They do have a sepcial limitation.
And Colonists too. Max 20 each before they fill Overflow.
"You don't want to patrol!? You don't want to escort!? You don't want to defend the Federation's Starbases!? Then why are you flying my Starships!? If you were a Klingon you'd be killed on the spot, but lucky for you.....you WERE in Starfleet. Let's see how New Zealand Penal Colony suits you." Adm A. Necheyev.
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And Colonists too. Max 20 each before they fill Overflow.