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The Benelux map only has 5x7=35 cities, which is too few for 5 players. We should have played the Middle Europe map limited to 40 cities, but the house rule of starting phase 2 when phase 1 houses are ...

You have the rules wrong In a 5 player game, 7 cities are required to trigger step 2. I'm finding it difficult to find an online copy of the official rules for the original (non-"recharged") ...