i think, that a points system like milkacow proposed, would be the best way.
as you may know from this thread:
http://www.coh2.org/topic/25522/how-to-farm-war-spoils
im not a friend of having to play a huge amount of time to get the bulletins and commanders you want.
a pointsystem would mean, that you could get the 3 or 4 bulletins you want in a short time and minimize the disadvantage you get by having no good bulletins (yes, you have a disadvantage. many say, that bulletins are bad, but when buffing grenadiers or conscripts, it can actually have quite an impact)

this was 3 conscripts vs 3 conscripts, one side with, the other one without bulletins.
on the side with bulletins 4 of 18 conscripts survived, on the other side none...