So far I have found that every single game (5 or so) that I have played, I have been able to enact one of the first two World Congress proposals despite not being the host and not having the Forbidden Palace i.e. only having 1 delegate. Have I just been lucky? Does anyone know how the second proposer gets determined, when all civs are equal with 1 delegate? I can't believe it's programmed so that the player always gets to choose in this situation as this would make it fairly pointless to try and be the host other than for the extra 1 delegate (unless you knew someone had built the FP). I had believed it to be the civ with the greatest culture, but that doesn't seem to add up either as I'm quite well behind in my latest game and still got to choose a proposal.