That's as clear as mud to me :) From what I do understand, I think you may need to use multi-polygons in the relation to describe the boundaries, where a few of the inner polygons are not included in the larger boundary. There is a good help page on multi-polygons but I am unable to locate it now. [multi-polygons][1] [1]: http://wiki.openstreetmap.org/wiki/Relation:multipolygon

That's as clear as mud to me :) From what I do understand, I think you may need to use multi-polygons in the relation to describe the boundaries, where a few of the inner polygons are not included in the larger boundary. There is a good help page on multi-polygons but I am unable to locate it now.