** High Priority **
I like the retreat tactic for an army, but they should have to retreat to the hex they came from. An army should not be able to move into Minas Tirith and retreat into the Gondorian countryside! If they are in the pop center they were recruited in they should disband back to the pop center and join the malitia or disperse into the country side, with the better armored/weaponed troops going to the malitia. Retreat should cancel any further movement by the army.
To ease the congestion at the capital, where an agent company can cripple a nation by killing all of the characters and stealing everything not nailed down, All capital orders should be able to be done at any Major Town/City, there could be exceptions to this like tax rate changes, and nation relations. Naming characters should be able to be done at any MT or City.
Stealing gold from PC's - A while back GSI explained that the reason agents could steal more from a camp than it produced in gold was an organization like the FDIC. (For you folks not from the US, that is the Federal Depositors Insurance Corp.) This is what allows you to go to a Camp and buy 10,000 steel from the caravans. The withdrawal from the camp is guaranteed by the nation. So when the James Gang comes riding into town and robs the bank it is the nation that loses not the widows and orphans that have their life saving in the bank.
Another idea I had was allowing an army order to capture enemy theives/emissaries at their nation's PC's. This would add some realism to the game as far as the army acting to protect their pop center from foreign agents. Or maybe if the enemy character is recognized barring them from entering the PC.
Steve Prindeville