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Perhaps the author meant how to upload the mod to the Steam Workshop. I also faced this problem. I realize that you may not know how to solve my problem, but maybe someone will tell me. I am working on a mod that will add Ukrainian localization to Cities: Skyline. But I don't understand how to add it to the Workshop if it is only one file in the Cities_Skylines\Files\Locale folder. Are mods added to the Workshop only through the content manager? But if so, how do you add a localization file that is not a script or asset to the Workshop?
Update. I found a Thai localization and they have a git. I understand what I need to do now, but is there really no easier option?