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I'm really hoping when the expansion/DLC comes out, they will rework the nomads so that they can't grow as many cities or population, and really do have to rely on raiding on conquest. As of now, I can play as the Xiong Nu or even the Dingling, and never reach the Han south and STILL win a cultural victory....
As for OP - I think nothing wrong here. If those factions had many CVP encounters and/or mountains then it is really easy. In the end it is "historical sandbox" - everything can happen. Herders have their better moments but given their popularity they still are omitted in Multiplayer. Also herders have more cities but if they are sustained by flocks then they won't grow pass 2nd tier of settlement = they will have like half the population of farming city by the end game. So you push your advantage while you can. Look out for ninja Shu/Ba Cultural Victory. As they are pretty much isolated from most factions once they grow they can easily win and you might not even notice them.
Culture as Herders isn't a great strategy (given lack of bonuses or presence of penalties to Thought). You can just outgrow others city wise and build buildings granting Cultural Victory Points - true. But you are trading off so much turn income that's your military strenght will be heavily affected - making you a target.
From a historical perspective, states and kingdoms such as Qi, Yue, Qin, among others, were areas that were culturally diverse from Chinese "Identity". Before the people were known as Han Chinese, after the dynasty, it was Huaxia, in part referencing the early cultures and tribes along the Yellow River, culminating with the Xia, Shang, and Zhou dynastic identities. The North China Plain, along with the rest of China, did have to be conquered and sinicized from that central core. The Shang battled with the Dongyi, the area and peoples of which became the State of Qi later in the Zhou dynasty and Warring States. In vying for power and legitimacy among other states did the court fiefdoms adopt Sinicized traditions as their own and for their peoples. The frontiers of this cultural border divide did keep changing over time, as certain states became fully sinicized sooner than others. Yue, Wu, and Chu were "barbarian" areas to begin with too, whose legendary records were written to tie into Sinicized lineage. Ba and Shu were so geographically isolated that their own culture was much more uniquely diverse until they were conquered by QIn. And Qin itself was regarded less sinicized compared to the Central States, being further out on the fringes, with their own legendary origins muddled with both nomadic and settled periods for their culture.
Yet ingame, all we have for the most part is bi-cultural divide. Pretty much all the babarians use a similar troop model ladder (starting with tatoos and loinclothes), which either become more sinicized or more nomadic at the upper tiers. However other states that historically start out as barbaric, but later become sinicized are just presented as sinicized from the get-go (aka the cultures that aren't northern nomadic tribes, that became the states of Qi, Chu, Wu, Yue, Ba, and Shu). It'd be interesting if there were a bit more diversity in their model representation, but that could be challenging since surviving descriptions of those cultures from eras before did come from Chinese records rather than the cultures themselves. Even so, Chinese descriptions and records of foriegn peoples are as varied as the cardinal directions, almost literally... Dong (eastern) Yi, Bei (northern) Di, Xi (western) Rong, and Nan (southern) Man.
I'm not entirely happy with the way that cultural victory works, but think the herder / farmer balance is about right.
The intent of the cultural victory option was to provide a path to victory for players who prefer to play peacefully or defensive, and not control a huge empire. The victory point total is set such that you can achieve it with 6 to 8 strong cities. In practice though, large empires seem to acquire too many cultural VPs just as a natural result of conquest. One idea I had to fix that was to only count cultural VPs for buildings you constructed yourself, but I think it's be a little difficult to explain to players, and frustrating if you'd owned a cultured city for a long time. Perhaps a better approach might be to make the top tier buildings give more VPs.
I don't have a problem with factions that nominally start as hairy barbarians winning cultural victories. Northern China was ruled by barbarians dynasties at least as often as it was by native Chinese ones, and many of them became pretty sinocised themselves. In the Warring States scenario the Dong Hu people start with a mixture of farming and herding peoples. Historically the farming parts were mainly taken over by the Qin and Han dynasties, but events don't have to play out that way. It's not unreasonably to think that they could have occupied the northern territories and formed a highly civilized hybrid state. A thousand years later the Khitan Liao dynasty did exactly that in the same area.
A possible formula for the cultural victory points you get by building things might go something like this:
X (X/Y) = N
X (the number of palaces you own) multiplied by a fraction derived from X (the number of palaces you own) divided by Y (the number of cities that you own that COULD have palaces in them) equals N, the number of points you get for palaces.
So if you had three palaces and ten cities, the formula would look like 3 x 0.3 = 0.9.
If you had ten palaces and ten cities, that would come out to 10 x 1.0 = 10.
Grand palaces could count as 1.5 or 2 palaces or more, depending on how important you think they are.
Similarly, if you think the formula penalizes a player too much for not having a palace in every possible slot, you could make a regular palace worth more than 1.0 and reward someone for going crazy and building palaces all over the map.
Personally I like having my cities all look like they belong in my faction, so often i do end up razing a lot of herding settlements that expand into China, to rebuild my own. A conversion factor could alleviate that. Also all the current cultural buildings are of a Sinicized nature, being pavillions, palaces, and temples, so it seems a bit strange for herding factions to be building them for their own culture (unless they are sinicizing of course...). More variety in how Cultural Victory Points are achieved by attributing them to certain factions, religions, and / or cultures could make it more challenging and competitve between various cultures to achieve their own distinct cultural victory.
For reference, I'm deriving my idea from Rome: Total War's Barbarian Invasion religious culture system, used in many mods to model populace conversion to various religions or cultures.
In this game, they were much stronger than they were at that period.