People know what budgets are. Nintendo had a budget for the Wii U. Sony had a budget for the PS3. Microsoft had a budget for Windows Phone. None of these products were a commercial success when each company were operating in a well-established area of business in which they had a tremendous amount of experience. Budgets don't mean jack, other than you are aware of your costs. Budgets are estimates - never more so than when you are doing something new for which there is no actual data on which to make budget predictions.
If all the third party publishers start demanding more compensation for their products inclusion in the subscription and Microsoft stick to their budgets, there will be less variety in GamePass. Microsoft have no control over this.
Microsoft has no control over what publishers may demand. But there is no competing service for Xbox titles (outside of EA games). And MS does know exactly how much revenue any game has experienced on the Xbox overall or over a specific time period.
All MS has to offer game devs is more than they would make if they weren't a part of the service with enough of a premium to encourage their participation. Some may demand more in return, but MS has 1000s of games to choose from. I'm sure most devs are reasonable.
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