I had the PFC being the civilian government of the Third German Army/XI Corps cantonment area while also assembling/arming/training a military force. In my campaigns, I had one of the goals of the NATO summer offensive being to cover the withdrawal of the Germans to Jutland (which is where they show up without explanation in "Going Home"), and their positions in the line were taken by PFC units. Thus, the PFC was a free national government, with an army, controlling Polish territory, and could lay claim to having "expelled" the Germans, which is something the Pact government could never claim. In my games, that ends up being the reason for the enthusiasm for the PFC, and why Polish units begin to defect (also, the Third German Army/XI Corps cantonment areas have a reputation for security and food production, so they're attractive areas to settle).
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