What is the total amount from NO’s the axis can have, and what is the total Allies can have? I think it should be the same at 40 (15+15+10)? If it is the same then the potential is there for each side to be able to have what the other side could, 40 = 40. If you do not use NO’s then 0 = 0. Mathmatically that is equal or balanced. I know that certain sides start with more or can easily achieve more but I guess you could consider it balanced if both sides could attain the same amount as the other. Also it is possible while one side has a NO the other side can not, so it would be an unbalance there. I hope I make sense, it is early!
(I’m at work so I don’t have the rulebook infront of me so my whole post is shot if one side can have more than the other LOL)