The topmost instructions in (the vanilla) country.sii sounds to me like unit names are what's important and what's used as references, which is what I would have assumed anyway:
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# Warning: Even if the units are specified in more than one source file, they share the
# same namespace so suffixes or prefixes should be used to avoid conflicts.
@include "country/austria.sii"
...
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# Recommended country identifiers for currently unused countries. Using those indices
# is not required however it improves compatibility with future DLCs or with other
# mods utilizing indices from this table.
# **** EUROPE ****
# 14 Albania
# 15 Andorra
# 16 Belarus
...
Finally, just to make absolutely clear, this is the attribute in an actual country definition:
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country_data: country.data.austria
{
country_id: 1 // THIS IS THE ATTRIBUTE IN QUESTION
name: "@@austria@@"
country_code: "A"
pos: (14940, 0, 18780)
fuel_price: 1.35
lights_mandatory: false
driving_tired_offence: true
}