As I see it, the Foreign Legion exists in Freedom less as an 'emergency unit' or as an option to play a victory that runs counter to the ideology.
Now, just to be clear, the Foreign Legion gains a combat bonus in Foreign Lands, correct? Not Enemy Lands? So the FL gets the bonus in an ally's territory, correct? If so then the purpose of the Foreign Legion/Volunteer Army policy exists as a means to actively defend an ally, as well as a spearhead of sorts to lessen the threat of other rival civilizations.
Now, just to be clear, the Foreign Legion gains a combat bonus in Foreign Lands, correct? Not Enemy Lands? So the FL gets the bonus in an ally's territory, correct? If so then the purpose of the Foreign Legion/Volunteer Army policy exists as a means to actively defend an ally, as well as a spearhead of sorts to lessen the threat of other rival civilizations.