Yeah that’s how federations work. Basically just councils all the way down. Granted the Horde’s is apparently extremely simplistic and sort of dysfunctional (lol at the Desolate Council just being six dweebs declaring themselves to be in charge) but I attribute that to Blizzard writers having the political knowledge of people who sometimes watch CNN and nothing else.
you want to talk about some nonsense? Take a look at the Alliance, which is literally just an alliance of fully independent states, where the leadership of one of the states has absolute dictatorial authority over the others.