Officer Transfer Orders,without resources?Why not just reduce Officer population?
Pop is used to tune desired number on field. you want to get as much presence as possible as quickly as possible. Therefore, USF always open 3 rifles into officer(except specific docs). Getting a second officer is 5 units of mainline. COH is balanced for 3-4 units of mainline map control, so any more can be and is oppressive. Thats why the pop cost.
Because we cannot decouple the "free" officer and tech, back teching results in an unnecessary officer. Officer Transfer Orders is literally the smallest change for dealing with the unnecessary Officer.