This may be a more radical variant than people are looking for but how
about:
FP side play with the standard 10 nations but lose Noldo and Woodmen (ie 8
nations)
DS side play with the normal nations plus Rhudaur and Easterlings less LR,
CL, QA and BS (8 nations)
Harad, Corsairs, Duns, LR, CL, BS, QA, Woodmen and Noldo dont play
Morannon, Durthang, Barad Ungol and Baradur all start as cities
Effect would be a more armies game with less agent activity, less ability to
hunt the best artefacts straight away. DS have real military chances in the
NW and slightly improved chances in Rhovannian, FP have much stronger chance
in the Ithil pass.
My main concern would be whether the NG / SG rush through the Ithil pass
would be stoppable without the CL agents and the CL and BS troops
Cheers
Mike