Ivan, what about powers not in play (Portugal in 2-4 players, Austria and Savoy in 3 players)?
The initial troops of those powers in 2-4 players game, are deployed as per the setup rules.
Then, those troops count as allied troops for all purposes while they're on the map.
There are two cards that Recruit troops for Portugal and Savoy. The player playing those cards decide where to put them, following the Recruitment rules.
Hope this answers.