People who don't join a pack usually have a reason. They don't like the hierarchy or the idea of taking orders. Maybe they don't like specific laws, or just don't trust the people in the pack. They're typically not the kind of people you want to round up to form a whole new pack. You might be able to convince some to join a pack for various reasons, but that's a whole lot of wooing and coaxing.
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valloic,