Simple custom map scenario suggestion

As far as i know when you are making a scenario you can only make one nation the sole controller of a country.

I would like the ability to make anyone the controller of any of the cities.

Also i would like to make it possible that certain cities in a country can be neutral as well.

The reason for this is to not unbalance the map by making cities independent countries which causes capitals to become less and less important.

a good example would be my current Roman map I am making, in a second Punic war setting.

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