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There could also be a dose of not having rebalanced how cohesion is calculated to reflect the fact that envoys can no longer be assigned to federations.
Unfortunately, I'm not in a position to test this out myself right now. I don't believe you are missing any mechanic, though. The AI ought to be using a delegate to increase cohesion, and if that isn't happening then it's a problem.
Quick headmath shows that even if we had a delegate from each federation member (5 members) we'd still be losing cohesion unless I dropped the federation Centralization. It's possible this cohesion loss could be overcome with more members, but that seems a little wild. Something feels amiss here.
I wonder if the AI can have this same issue.