Considering the time it would take to organize and deploy all of your forces -- not to mention the effect it would have on the citizens of your faction, I'm not sure it's as problematic as you make it out to be.

Using all of your tokens is akin to a very large chunk of your population taking up arms, if not most of it, and something like that would only be done in desperate measures.

Replenishing your tokens gradually, rather than once a year, would make more sense however so I'll give you that.