Well, most factions units everywhere is a bit of a stretch on what I was trying to explain...

Now, I don't know intimately EB recruitment system but I also don't think that for most factions having an upgrade to lvl4 to lvl3 government would give huge changes in available roster (hidden resources aren still there as limit) in distant territories, would it?

What I didn't propose for sure was something that would make the other corner of the world available for lvl1 government but merely the possibility of a slight upgrade for players that have lots of money to spend...