At the moment we're basically seeing one nation steadily move across the server and I see nothing that will change this state of affairs.
They should be rewarded for this in some way as they've done a good job of getting clans working together etc... It takes a lot of effort on their part and they deserve some recognition for this.
I suggest that we allow a nation to "win" and when they do it triggers a map wipe and a free forged paper. All players that started the wipe in the winning nation or who use the "conquered forged papers" get a "map win redeemable" reward for winning. Their most played ship as a redeemable, or a little badge next to their name that states they were a victor in a previous wipe, who knows. Could be a selection of rewards which they choose one of. When I say wipe I don't mean an XP wipe, just a building/money/crafting XP wipe, not XP that determines crew size. Then again, people might be willing to pick the side that isn't winning if there's a full wipe on the horizon
I propose that the restrictions on attacking certain ports (capitals etc) is removed and that it be made possible that the nations be completely destroyed. In order to prevent a mass exodus of players those in that nation should be given a choice of one of two types of forged paper, "conquered forged papers" and "rushed forged papers". This would be necessary so that "the wipe reward" is not given to those who choose the easy route. You could create "rushed forged papers" (moving to other nation) and "conquered forged papers" (moving to conquering nation).
Conquered forged papers are given to those who decide to join the side of the nation that destroyed them. Additionally, they will continue automatically to have access to all port bonuses as part of the vanquished nation. If the player chooses the conquered forged papers then they will not be give "the wipe reward". Those that use the normal forged papers DLC to move to the number one nation on the Conquest Competition Leaderboard should not gain "the wipe reward". Those who join the conquering nation should be allowed to keep their flags but show up as part of the new nation. Russian player flying Spanish flag for instance. Those that decide to not join the conquering nation use the "rushed forged papers" that allows them to join any other nation except one that has been conquered. By moving to another nation they can still gain "the wipe reward" if there is a miraculous turnaround but they lose the ability to fly their former nation's flag.
In order to encourage those in the winning nation from splitting up, a free one off forged paper like in days of old and a prohibition that the same nation cannot again win "the wipe reward" consecutively.
I think it would be a nice way to bring closure, and bring more people back if there's another wipe of some kind. Devs can keep rolling out updates so after every wipe, something will be slightly different.