Since 'modding' is shorthand for 'modifying' and you have to modify the files in a way they are not intended to be then it is
technically modding, even if it isn't paticularly difficult
The terminology doesn't really matter though, my point is still that as far as I know only 12 factions are playable and the others will not be unlocked by beating them.
If anyone has any other info then it would be great if they can share it, with a source if possible.
By the way GSC, I checked on that site you posted the link for and their info says the same thing, about 40 factions unplayable.
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