I don't think that has to be a huge problem? RTW is turnbased (and thus EB1 is as well), so you don't have to have Homeland / Expansion markers that are perfect.
Give All territories Homeland resource, so that everyone can build level 1 governments everywhere. Since the human player can apply his mind, it is relatively easy to come up with the rule that governments constructed by human players should be appropriate (i.e. as they are currently set for single-player campaigns), and thus that the Romans can't build lvl 1 Government in Greece.
Or am I missing something here?
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