If you use lots of high kingdoms to make an empire they dont always go de jure though, on forming cyrodiil's empire as the republic of IC, cyrodiil, skyrim, valenwood and elsewyr only cyrodiil and skyrim went de jure so maybe its only the two you need specifically not the others that make up the number
I havent looked at the files though it could just be my game was mucking up as ive messed with it alot.
I havent looked at the files though it could just be my game was mucking up as ive messed with it alot.