well they are filled with NPCs its just designed so they can be easily replaced with PCs.
Break down of Senate Votes
Mexico- 2 (1 filled here)
Territories of South America- 1
Persia- 2 (1 filled here)
Territories of Central Africa- 1
These are all the senate seats, we have quite a few players going but they're just in different fields, diplomats and soldiers are most prominent right now.