Your talking For SFC2 correct? If so open the file highlighting in pic. Use wordpad and uncheck always use this to open file before you open it.
Then see the numbers in the file below. 0=neutral. 1000 is total war. Mine are all set to 750 so they all fight each other but quite not as agressive.
You have to change these for each race. So this allows for settin up alliances as well. Also note that for the Feds shown here, the feds must be set to 0 so they are always on the same side. So on for the other races.
The pic will disappear soon as I have a 10 pic limit.
[PoliticalTension/StartingTensions/Federation]
Federation=0
Klingon=750
Romulan=750
Lyran=750
Hydran=750
Gorn=750
ISC=750
Mirak=750
Orion=750
OrionOrion=750
OrionKorgath=750
OrionPrime=750
OrionTigerHeart=750
OrionBeastRaiders=750
OrionSyndicate=750
OrionWyldeFire=750
OrionCamboro=750
Monster=750