Board Thread:Lore Discussion/@comment-3539474-20130910213054/@comment-10207438-20131008041100

they don't need a card to force themselves into the other provinces, the WGC forces the Empire to permit it, they have no say unless they want to wage war again.

the reason I say they most likely have more soldiers in the other provinces is because they don't have to worry about losing said soldiers in the war, and at the same time they can whittle down the numbers of Stormcloaks AND Legionairres without trying too hard.