Yes, there needs to be some balance. I think last year conditions were similar to a perfect storm keeping the small arms out.
Due to the overzealous black powder rules, those that didn't meet the req'ts (due to the difficulty of applying flashguards to arms available for that era) had no choice but to sit or find a slot on a cannon or the ships. If it weren't for the new option to sail last year, there would have been many more sitting out. Also the appeal to sail as a new option drew others with small arms that did meet req'ts.
That, combined with the large number of cannons and crew required, leaves few pirates on the field. although it is good there were so many cannons, as there would have been more sitting out.
Not sure what the solution will be, given the current black powder rules. Possibly limit the numbers on the ships, cannons or both... or reserve those slots for folks who can't meet the black powder req'ts.
Or, maybe its best to just accept that there it is a duel between ship and shore with artillery from the fort and small arms from the ships.
As I fly in, Its difficult to bring clothes, gear, sleeping arrangements and a small arm, so am lucky to be able to borrow one. I have little interest in working the cannons as I do that in Civil war events the rest of the year and am looking to do something different, In all likelyhood i could be sitting out this year also.
mP