Great stuff!
I was thinking, exactly on the lines of your points, that in order to make a culture-matters set, we need to strongly and continuously consider the strengths of each culture.
So I've prepared a little summary whereby each culture that I've put in the skeleton has keywords, themes, phases, card types or effects associated with it, in a 3 tier system.
1) indicates major strengths - should appear at all rarities for very good cost.
2) indicates good strength - should sometimes appear at common, but usually higher rarities, for a decent cost.
3) indicates minor strength - should appear at high rarities, but normally with a high cost.
This is obviously not hard and fast, just my initial thoughts. Any suggestions on it would be greatly appreciated, and I will update it as necessary. Just use it as some reference for now. As soon as I've spent the awful amount of time it takes to make a table in BBcode, I will post the embryonic design skeleton in a new thread.
(Couple of minor points: mill = discard from top of draw deck, bounce = return to hand, the words "follower" and "ally" are essentially interchangeable, I included the unloaded traitor keyword just in case it was any use, not because I particularly want to use it, twilight = the twilight keyword, not the tokens, and words surrounded by *asterisks* are either themes that I have moved from where they are in the current state of the game or have simply been added)![Dwarven [Dwarven]](https://lotrtcgdb.com/forums/Smileys/classic/dwarven.png)
1) fellowship draw, mountain, conditions, mill, pumps, recursion, damage, tales, *valiant*
2) underground, search, foresight, tokens, maneuver wounding, possessions
3) healing, choke, archery, pipeweed, regroup wounding, artifacts, maneuver/regroup draw
![Elven [Elven]](https://lotrtcgdb.com/forums/Smileys/classic/elven.png)
1) forest, sanctuary, events, direct wounding, adding threats for effects, shrinking minions, healing, stealth, tale, archery, foresight
2) river, artifacts, revealing, burden removal, liberating sites, *spells*, culture tokens, alliances, resistance, maneuver condition discard, maneuver draw
3) conditions, discard from hand, moving, choke, twilight, The Ring, cancel skirmishes, rangers
![Gandalf [Gandalf]](https://lotrtcgdb.com/forums/Smileys/classic/gandalf.png)
1) battleground, events, adding burdens for effect, pumping, shrinking, sites, flood the pool, spells, alliances, condition discard, resistance
2) dwelling, mountain, followers, revealing, threats, healing, discarding minions, search, pipeweed, culture tokens, skirmish/maneuver wounding
3) underground, fetch, bounce, tales, foresight, burden removal, moving
![Gollum [Gollum]](https://lotrtcgdb.com/forums/Smileys/classic/gollum.png)
1) marsh, events, skirmish wounding, burdens, threats, pumps, sites, moving, choke, search, stealth, *traitor*, Ring-bound, regroup actions, resistance, The Ring
2) revealing, fetch, recursion, healing, *ambush*, cancel skirmishes, cancel events/abilities
3) mountain, character discard, follower discard, twilight, possessions (for Shelob), Shadow/Free Peoples interaction
![Gondor [Gondor]](https://lotrtcgdb.com/forums/Smileys/classic/gondor.png)
1) battleground, possessions, maneuver wounding, healing, sites, regroup choke, defender, ranger/knight, culture tokens, fortifications
2) conditions, threat removal, cancel skirmishes, liberating, artifacts, damage, *valiant*, alliances, pumps, stealth
3) sanctuary, fetch, archery, tales, pipeweed, moving, Ring-bound/unbound
![Isengard [Isengard]](https://lotrtcgdb.com/forums/Smileys/classic/isengard.png)
1) battleground, events, condition discard, exerting, damage, search, spell, tracker, *besieger*, *traitor*, *engine*
2) conditions, revealing, mill, site control, bounce, archery, weather, foresight, The Ring, alliances, wound prevention
3) *dwelling*, discard, fierce, *pipeweed*, culture hate
![Evil Men [Men]](https://lotrtcgdb.com/forums/Smileys/classic/men.png)
1) plains, events, skirmish wounding, threats, *fetch*, ambush, archery, *search*, raider keywords, *traitor*, culture tokens
2) battleground, possessions, pumps, site control, fierce, stealth, possession discard, mounts
3) *sanctuary*, damage, *engines*, resistance, *follower discard*, alliances
![Orc [Orc]](https://lotrtcgdb.com/forums/Smileys/classic/orc.png)
1) underground, conditions, adding burdens, shrinking companions, recursion, flood pool, stealth, *besieger*, *engine*, swarm, condition discard
2) battleground, possessions, skirmish wounding, mill, damage, tracker, search, resistance
3) adding threats, sites, moving, archery, mounts
![Rohan [Rohan]](https://lotrtcgdb.com/forums/Smileys/classic/rohan.png)
1) plains, possessions, events, liberation, moving, valiant, villagers, culture tokens, possession discard
2) battleground, healing, bounce, defender, *knight*, fortification, alliances, fetching
3) followers, regroup draw, discard, sites, direct wounding
![Sauron [Sauron]](https://lotrtcgdb.com/forums/Smileys/classic/sauron.png)
1) *battleground*, conditions, discard from hand, direct wounding, burdens, mill, shrinking, site control, search, tracker, besieger, The Ring, *resistance*
2) *river*, events, shadow draw, fierce, *spells*, *traitor*, engine, swarm, condition discard
3) recursion, twilight, archery, revealing, assignment
![Shire [Shire]](https://lotrtcgdb.com/forums/Smileys/classic/shire.png)
1) dwelling, followers, removing burdens, cancel skirmishes, healing, stealth, pipeweed, *villagers*, Ring-bound, The Ring, resistance
2) forest, removing threats, fetch, choke, tales, *valiant*, culture tokens, alliances, events
3) recursion, sites, twilight, revealing, assignment
![Uruk-hai [Uruk]](https://lotrtcgdb.com/forums/Smileys/classic/uruk.png)
1) battleground, conditions, wounds, site control, healing, damage, *search*, *trackers*, assignment, wound prevention
2) shadow draw, adding threats, mill, pumps, fierce, *besieger*, resistance
3) possessions, *engines*, culture tokens, follower discard
![Wraith [Wraith]](https://lotrtcgdb.com/forums/Smileys/classic/wraith.png)
1) forest, conditions, burdens, sites, fierce, search, stealth, twilight, The Ring, resistance, follower discard
2) *marsh*, threats, recursion, healing, spell, Ring-bound, assignment, possession discard
3) artifacts, Shadow draw, *weather*, foresight