Roberto Di Meglio
Re:Non Belligerents House Rule
There are also several "forward defense" strategies for the Free People which would become unfeasible with such a house rule (generally making them weaker).
There are several movement which you can consider doing out of the borders, e.g. from Osgiliath to North and South Ithilien, or from Lorien to Parth Celebrant, to create an advance garrison and force the Shadow to do battle earlier than he wants to.
These possibilities would be lost with the change in the way you handle that.
Moreover you could easily totally waste Free Peoples army dice rolled in the early part of the game and the game would be more static.
A slightly different (and less drastic) way could be to apply different effects to the political track, as it was on an earlier prototype.
So "Step 1" on the Political Track would work as you say, with no movement out of borders, on step 2 you would be allowed to move out of your borders but not attack (the normal "non belligerant" situation now), on step 3 you could attack within your own borders, and "at war" would work as it is now.