First I doubt I will write this so I am posting it here as an idea up for grabs.
This is a Sailor Moon and Naruto crossover/fusion. the idea is that this takes sometime before crystal tokyo is formed, but after modern times. specifically it takes place just after a major disaster that crashed much of the population of the world. Many places like Japan survived, but Tokyo itself was a write off. Given the nature of what happened it was worried that the world was not ready for a singular rular, even japan was not in condition for one. The Senshi went their seperate ways to build a power base to help.
It was later discovered that a new threat was comming and that they would need help to fight it off, so they looked into it and came to the conclusion that the best way would be to have each of the small nations they salvaged (each Senshi ended up taking a small area and helping to rebuild civilization) build a military, but such a thing would worry the general population, so they decided to make it more business like and make it look less like a military, more like regulated mercanaries.
Thus the Hidden villages were formed. Not all Senshi would agreed and som didn't, Setsuna, random ruler of Sound, as she was rarely present opted not to take the extra work. This let Orochimaru to take over and form his village without the other senshi making the connection themselves.
Here is a breakdown of who is what ruler:
Land of Fire(Leaf): Rei
Land of Wind(Sand): Haruka
Land of Sound(Sound): Setsuna
Land of Rock(Rock): Hotaru
Land of Water(Mist): Michiru (I choice Michiru as given the nature of the village it matches her and Haruka's ends justify the means methods.)
Land of Lightning(Clouds): Makoto
Land of Waterfall(Waterfall): Ami
Land of the Moon(Moon): Minako (Her reason for her choice of location and name is to be a decoy)
Usagi and Mamoru either do not have villages/countries or are not major players at the time.
In Naruto universe this would take place as the Senshi start moving against Akatsuki directly.





