I've been looking at it and I think I have a theory about it.
If you'll notice the whole rebel lands and sea area ownership declaration section has //s in front of the lines. This coding causes the computer to ignore these lines. //s (it varies for different languages) are very often used to make a comp ignore code that you might use later and also and more importantly for making notes for the coders.
The theory is that these sections were blocked off earlier in development and left in the code. ID_GOLDEN_KHANATE is probably an older name for Khazar. Programming changes might have made declaring ownership for rebel lands and seas redundant so that the coding could be more efficient.
The Swiss and Burgundian may also able to emerge though I've never personally had it happen. If so I think these things are hard coded. Maybe they are only for multiplayer but they are declared and fully treated for the singla player campaign. I'm not sure one way or the other.
I havn't done it myself but yea I think you can add resources. The startpos file is only part of the story so to speak. I think you must also add lines in a "loc" (language localization) folder and possibly in other places. Modding any of the loc files is no quick task but totally doable and straight forward.
Hopefully I've shed some light and someone else will come and explain in more detail for the resource adding.
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