You don’t need to create force build lists to deal with the “out-activate to win” armies. A very simple change would nullify that “tactic” and still keep the game simple.
At the start of each turn each player counts their units on the board, including any in/on transports. If one player has fewer units than the other, they add to their unit cards enough face-down unit cards or “pass cards” to even the difference. (If the Axis has 7 units and the Allies have 5, the allied player will place 2 face-down unit cards with the rest of his unit cards. 7-5=2) Pass cards may be activated instead of a normal unit with the following exceptions:
- You may not activate a pass card as your first activation
- You may not activate two pass cards in a row
A squad with a hero and/or commissar attached only counts as one unit when counting units at the start of the turn, since they must be activated together. If a player with one or more un-activated pass cards separate a hero from a squad the hero replaces one of the un-activated pass cards. (If the Allied player has used one of his pass cards and then separates Rhino from the Hammers, Rhino will replace the last unused pass card.)
Units are counted at the start of each turn, so as units are destroyed, the number of pass cards, and even the person receiving them may change. (The Allies have a very successful turn and manage to eliminate 3 enemy units without losing any themselves. At the start of the new turn the Axis are down to 4 units, and the Allies now have 6 since Rhino detached from the Hammers. This turn the Axis will receive 2 pass cards. 6-4=2)