Is the "40% Slaves" modifier from Slavers Guilds empire wide or per planet?

Pretty much the question title. I tried counting slaves in my empire and was only 2/3 of the way through my colonies when I got over 40%, but on many of them, I have more slaves than specialists. Is the civic bugged?

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Is the "40% Slaves" modifier from Slavers Guilds empire wide or per planet?

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