Intent is bullocks, because you can't read minds. Intent is hearsay and propaganda. Intent cannot be proved.
From the Rules and Policies page:
Strategic secessions are prohibited. This means creating a new realm, through secession, in order to circumvent recruiting-in-capital-only restriction. Friendly secessions are okay.
Intent is everything. The rule says it is only a strategic succession if its purpose is to circumvent in-capital recruiting. It specifically states that.