That would be measured by the prescribed policies/causes. Depending on the intent of the simulation (training or otherwise), the player can define them upon joining, or the game gods can define them (or a mix of both). The player would then be free to shape his faction however he thinks is most effective for fulfilling the cause(s).You might want to include some succes criteria and/or goals for each faction. Are they all after "control of population" or are they after something different? Maybe they're after 'removal of another faction' or 'control of a certain area' or 'resource'.
EDIT: Over the next couple of days, I'm going to start learning PHP. A basic COIN simulator will be an interesting project down the road.
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