if the convoy is only worth 4, then spain really has very little reason to go navy
the convoy values for spain (and uk, and france) are increased to encourage those nations to go with some navy (or pay the price)
however, I couldn’t think of any way to reduce the income of spain, uk, and france without affecting the land-based play. I would have to reduce the value of too many territories in uk and france in order to keep the incomes at the same level they were previously to convoy increase
and if i just keep the increased value of the convoys without anything offsetting them, then suddenly spain is as rich as france, and france and uk are even more wealthy, which will interrupt the balance of the board quite a bit.
so the solution was, (at least for the single player side of things), to create a negative objective to easily balance things out
spain every turn gets -10 (no matter what [the objective is based on owning your capital])
france gets -6
and uk -4
(this is because I increased spain’s convoy by 10 points, france’s 3x convoys by 2 pts, and uk’s 2x convoys by 2pts)
i recommend if you don’t like the idea of having little nations and big nations, and would prefer all nations to basically start equal, then please try my 5-player version
the 5 player version has no negative objectives, and all nations start basically equal in PUs, incomes, and TUV.
http://www.axisandallies.org/forums/index.php?topic=27773.msg983333#msg983333