You should elaborate, sounds interesting.
@Pterodactyl pointed out earlier in the thread that we don't know 100% that Mileena was a poor ruler, since we don't know what the people thought of her.
Happy to. You guys started covering some of it. So for me, I've played through the game of course, and read
Mortal Kombat X Volume 1 (Issues 1 to 4) of the comics.
My thinking last night, which of course is not definitive, is that Mileena was a better ruler than Kotal Khan. Here's why:
We don't know a huge lot about Mileena's rule during its hey-day, but we do know she opposed an alliance with Earthrealm over the NetherRealm crisis. As far as I know, nothing else was given as her being a mad or bad Empress or anything, and this was Kotal's primary reason to dethrone her.
But let's look at this: At the time, EarthRealm was being invaded (or had already been invaded) by NetherRealm. Outworld had not. Shinnok would have targeted Outworld and all realms, but Outworld was not in immediate danger. Outworld and EarthRealm don't play nice together. They don't. Years later when Kotal came to EarthRealm asking for assistance in putting Mileena down, Sonya had him, D'Vorah, and Erron Black in chains. Clearly, an alliance with Earth Realm wasn't practical, and Mileena knew this.
Had Mileena sent Tarkatans to Earthrealm's aid unannounced, that would have been seen as an act of aggression and problems would ensue. Instead, we see she had the loyalty of the Tarkatan's, but it also turned out Edenians. At least Tanya, and Rain was feigning loyalty but he was helping for, what, over a decade? While we don't know if the Edenian aid was there during her rule, the ground work was obviously there since they sided with her and the Tarkatans, the race that helped conquer their realm, in the rebellion.
Mileena also kept most of her councilors at a distance. This seems to have been Kotal, Reptile, and D'Vorah. Yet she kept Baraka and Ermac close, as they were loyal, and this made sense. Kotal obviously betrayed her, Reptile betrayed her, and D'Vorah was an agent for Shinnok. She didn't know that part, but she obviously didn't trust her. Baraka was truly loyal, and Ermac was her father's creation and was loyal up to that point.
Kotal Khan trusted and was long-term duped by D'Vorah, and he also faulted Mileena for being a creation, yet happily accepts Ermac, who is also a creation.
Of course we know Mileena was duped by Reiko, and being duped by Rain, but her progress still seemed more sound.
So basically, as Emperor, Kotal Khan couldn't contain the one he dethroned for over a decade, was duped by a close ally who was in league with one of the greatest threats to the Realms, tried to make alliances that were doomed from the start, let a group of Special Forces kids mess up a bit of order in Outworld, accused EarthRealm of doing a scrub job of guarding the amulet, then lost it himself in a fraction of the time, and then hostilely invaded another Realm and was implied defeated and sent back to Outworld.
Mileena, as Empress and then a rebel, generally made progress with allies who were loyal to her (Tarkatens), forged alliances with those who you'd think would oppose her (Edenia), mistrusted many who proved distrustful to Outworld, (D'Vorah, EarthRealm), and executed a very successful gorilla campaign against a usurper. She also had the Red Dragon working with her for a time, and clearly Goro and the Shokan liked and respected her more than Kotal Khan.
Mileena was younger, of course, and we do see her make youthful mistakes (too much trust in Reiko for love, etc.), mistakes that cost her, but she was clearly learning and maturing. Kotal Khan is far older, and while I don't consider him a bad guy and I truly do believe he cares and wants to do what's best for his people, he's just never been good at it.
He caused the death of all the Myens on Earth by being blindly arrogant, and now as the Emperor of Outworld, he's made so many mistakes based on honour and a set of ideals that severally cost him and caused so many issues for both Outworld and elsewhere. He's the most mortal and fallible ruler Outworld has had yet.
So basically, while both have flaws, Mileena's natural mistrust and viciousness aided her better in what is a harsher Realm by default. I think she was actually the better ruler, and is also the legitimate air since Shao Khan did acknowledge her. She was no Shao Khan, but then no one ever was. Which is why Shao was the true Emperor of Outworld for over a thousand years and was able to usurp the Dragon King.
Sorry for any spelling mistakes or if anything is disjointed. I'm at work and wrote this in pieces over the last hour, being interrupted several times.