But the general idea at the time was for a language to have its own state, and all these countries (except Denmark and Sweden) had just broken free and become independent for that reason, so what will make a difference from OTL? It would be a very different scenario if Denmark or Sweden had come out of the Napoleonic wars as encompassing the entire Nordic/Baltic area, and the government just has to hold on to its existing possessions. Here we have to persuade seven entities to join and prepare for an (at the time) implausible attack by an enemy (or two) yet to be created. I usually defend these unions, but getting real-life historical politicians and their supporters to actually do something like that seems so hard. There were people working for such back then, so it is not ASB, although it requires some premonition or ambition.