Why do ONLY 10 TEAMS PLAY in CONMEBOL when they can play more?

Who decides where each team should play?
19 teams in South America and only 10 belong to CONMEBOL?
Something very curious happens in the American continent, because as we know it has two soccer confederations, they have different tournaments and the gap in soccer level is enormous; the countries despite being so similar in the way they function, their societies and even the economic level in the world; in a very strange way they handle football in a very different way.
The South Americans have focused everything on soccer, developing it in a spectacular way, they have a massive generation of soccer players, they have been in charge of filling the world with players from their lands.
Because of what high-calibre teams have become, we can see their power when we realize that 99% of their members play outside their country and currently few have established themselves in their native league, most of them came out very little at European lands, so their mentality and level are really very different from what they could have achieved in their country.
For its part, in North America it has been very different, because soccer, despite being the most popular sport in most of its countries, has never been consolidated, as it has done in South American lands, for the same reason it is not seen in the same way. form.
In fact, soccer is seen as a big business, rather than as a developer of local athletes, for this reason, they prefer to be great consumers of the South American market, promoting the creation of new talents in southern lands, without instead There is no such development in this area and they leave many possible talents without an opportunity.
But what about the teams that are geographically positioned in one place, but play in a confederation that would not correspond to them.
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