I'm not saying higher ranked players cannot propose any laws.
On the contrary, Consuls & praetors also had the power to propose laws.
The point is that only people with a current OFFICE, should be able to make laws. Not just any senator with a high rank :) They can motion for a law to be made, but when it comes to actually voting the law at the congressional meeting, it should come from someone in office (thus removing the 'seconding' rule)
This can be reached by making a distinction between ranks and offices :)
Let's say we make the following offices electable:
consuls (alrdy voteable)
Praetors (new)
Tribuni plebis (alrdy voteable)
The amount of offices for the last 2 that can be available should be based on players currently active.
This results in only the above offices being able to propose laws.
The other current ranks do still matter of course, in the way that your rank determines how heavy your vote counts when it comes to elections.
The idea to reach here is that we have: senators in office making laws <=> senators leading armies/provinces only voting.
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