If a region has no Specialty Good, a specialty Workbench can still be used to craft normal Trade Packs. Besides regular Trade Paks you can - naturally - craft on a Specialty Workbench only the local Specialty Goods.
To find public Specialty Workbenches, open the map, click in the menu on the left on "Infrastructure" and select the icon for the Specialty Workbench. One needs 60 Labor Points to craft a pack..
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