I think that the congress could be something like the G8 summit i.e big nations get toghether and divy up the world. For example, America, Spain and Persia are the top three civs. They meet and Persia, who recently warred with Japan, says "let's give Japan's colony, New York, to Germany." America, Japan's ally, votes no. Spain, Germany's most hated foe, also votes no. Measure fails. Your probably are saying, "how's this like the G8?" In the G8, a bunch of powerful countries get toghether and decide economic policy. If they say that Kenya's beef has mad cow disease, they then ban the importing of Kenya's beef until Kenya shows it has improved. Kenya, unless its in the G8, has no say whatsoeveer. It could refuse to carry out more checks, but then it probably loses it's main market. Maybe in the World Congress, one or two other small nations are invited to even things out. However if you're not invited and the biggest nations vote to hand over one of your territories, you can refuse, but risk the wrath of the greatest nations. Also, you could abstain, and then your spot is given to either the next most powerful nation or another random nation. Also, would it be possible to add client states? I had something else I wanted to say, but i'll just say it later.