Building a scenario in which one power is supposed to be influencing the game immensely yet where it cannot be on the map (Say, one or both of the superpowers in a regional cold war scenario) is usually a cumbersome affair. The solutions are usually half-hearted to say the least- usually it involves either using the macro language (in which case it's not a civ at all), or placing a single city with lots of NONE-supported units around it (which feels, well, stupid). What I suggest is that one can define off-map civilisations, setting parameters such as total production capacity, wealth, number of cities, distance and direction from current map, and all the usual diplomatic settings. If it's a civ the player cannot play as, it can stop there. The civ will act as a "distant home" for that civs units on screen, it can be dealt with diplomatically in all the usual ways (Say, paying a lot of money and giving techs and units to Israel, for example) except of course city exchange, but cannot be played as or defeated (the scenario goals would be set up so that this is not necessary).
Now, if we want Off-Map powers that the player can play as, we are faced with more difficult problems...
Now, if we want Off-Map powers that the player can play as, we are faced with more difficult problems...
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