This is getting to be a bit stupid now for how long this has been left broken.
For those at zos who get a bit confused: 3 bars is MORE than 2, so you can say that 2 bars is LOWER than 3 bars. So when it comes to calculating low pop bonus, it should not go to the 3 bar faction but maybe the 2 bar faction. It shouldn't go to the 3 bar faction, because 3 is MORE than 2. If a follow up is needed, I can make an example using apples.