Weapons maybe but gear can't be due to the fact that it is the main selling point of dlc they would be shotting themselves in the foot if they made it so you can reach 32 without crotas end
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Armor should be able to get to 32 with a lot of work. Enough time has to be invested to compensate for the time needed to get Crotas gear maxed.
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But if it was possible without raiding there would be no point in raiding
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There would be for the weapons..Or if people want the gear for the perks or for the way it looks.
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That a significant decrease in motivation say i didn't have dlc so i can just run VOG and match all dlc buyers making dlc pointless and a loss of money for the developers
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The means of the upgrade could be unlocked with the purchase of dlc
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While this solution would work to put it in simple businesses terms its extra work it would be a new mechanic that not worth doing it won't net any profit really.