I was thinking of conceding that point, but the problem is I am sure a Seneschal can manage to expend the budget on non civil war requirements BEFORE drafting, so that drafting becomes impossible. As I recall, some late stage buildings are very expensive in M2TW and if push comes to shove, the Seneschal could even give away money to foreign factions to make sure the cupboard is bare.
If you are worred about the drafting being unfair to non-participants, then we could just let them draft too, so everyone benefits equally. Bear in mind that TC wanted neutrals not to get any prioritisation at all. Personally, I could live with everyone being able to draft - if your neighbours are raising armies to attack each other, even a neutral might want a precautionary draft. I read that a large proportion of English counties - a third? - in the ECW, raised troops explicitly to keep the warring sides out of their lands (to avoid pillage etc). The war was actually a minority affair between King and Parliament - most people did not want to take sides.
I think we still need some disbandment or other penalty to drafting, so we don't see phony wars called just to allow nobles to get some more precious troops.
So we could have:
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ECON's PROPOSAL (revised):
1) Each turn of civil war, players can prioritise recruitment of (draft) one unit for every settlement they own or have conquered during the war, replacing their normal prioritizations until the next Council session (normally 10 turns).
2) Drafts take precedence over ALL other monetary expenditures in the game and are done by the GM when implementing combatants' move orders.
3) When the civil war is over, each player must give orders to the GM to disband one full strength unit for every unit drafted during the war (the GM will umpire any unit transfer exploits designed to evade disbandment).
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