The way i see it, and how I like things to work out, is that 12 magi in 4 covenants in a new territory (like the unclaimed lands of Scandinavia) can decide to claim to be a new Tribunal. They can’t send a representative toGrand Tribunal before they are recognised by them. But they can send word to Grand Tribunal of their forming, and unless seriously disputed they should be recognised. So they can participate in the next gathering.