2. If there are not enough soldiers for someone to take, everyone puts back 2 and loses 3VP for each one they can't return. Does this rule apply at other times players need to lose soldiers (Expedition, Border Defense, and Centralization in an edge case)?
This was also a discussion in my first game. You might say they don't score the card at all. Or they only pay what they have (but that does seem a bit too soft).