They respond not by the ratio of total friendly numbers to enemy numbers, but by local friendly numbers to local enemy numbers?
In other words, something like 20 Rook planes attacking 5 Knights in the vicinity of their airfield radar ange = 5/20 = 1/4th of perks one would normally get?
If I understand it correctly, the perk multiplier was added in to balance out country numbers. But honestly, from what I've seen after its implementation, all it does is limit a few plane types and reduce the perks earned a little bit - which none of it IMO is enough to pursuade people to change sides, except perhaps a few righteous or fun-loving veterans.
So...
If that be it, why not just make it a straight-up risk to reward ratio tool instead?
* Fly at roughly even numbers as the enemy and survive and land kills - you get normal perks.
* Fly at superior horde numbers and you'll get very little, or almost no perks.
* Fly against odds and survive and you get mucho perks.
Sound good to anyone?
This won't effect the country numbers, but I'll bet it'll at least have some kind of small effect on evening out the numbers on the fronts, instead of encourage the massive forming of hordes only to avoid enemy hordes and go for undefended places again and again.
If we may go a step further, perhaps the ENY limiter itself can be made active locally. With some kind of standard to measuring the 'vicinity' of hostile and friendly bases, if there are more significantly superior number of friendly pilots in that area, than the enemies, then the ENY limiter kicks into action..... so forming a too big horde to hit too small enemy numbers would be a bad bad thing... but this idea would probably be open for debate.
