To be honest I think instead of a retail policy LOR should have just threatened force if other nations didn't allow double hits in top ten, or even triple hits.
This would mean nations would have to choose between war and appeasement. It would be a completely new level of strategy, finding nations with the firepower to support/protect you from LOR and LOR would have the opportunity to provide their states with a big competitive edge if they didn't ask for too much and/or established a precedent of threats in exchange for multiple hits, the other nations wouldn't get
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