Modifiers could be printed directly onto the board. They would be treated as "free" infantry units, but would be only effective when someone was attacking the territory and only if the owner had at least that many combat-rated ground units (i.e., units with an attack value in addition to a defense value) acting in defense of the territory.
Hits would be deducted from the "free" infantry units first and only then would true defending units take casualties.
Terriain modifiers never get depleted -- the next time the territory is attacked, the same modifiers could potentially apply.
They could also eliminate the ability of units to blitz. Mountains and jungles are terrible for tanks! This could be phrased quite simply as something like, "Any territory with a terrain modifier of X or higher stops movement of all attacking ground units that enter the territory."
This would take terrain into account without adding extra units to the board. The rules complexity added would be minimal compared to the historic realism gained.
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