Russia can attack, and the Axis aren't given any free weapon developments. Players register with the GM as a team of one or two people, submitting a secret bid for the privilege of playing the Allies. This bid is a number from 0 to 10. Once all the bids are received, the GM then ranks them in order from highest to lowest. The top half are the Allied teams, the bottom the Axis teams.
Pairs are highest to highest, and on down.
B Now, this is just an assignment technique, as good as any, and perhaps better than most. However, where the numbers come in is with economic aid to the Axis players, which they can spend in any way they wish. This is income not represented on the board which cannot be taken away from the Axis players, except through loss of their capital as normal. At the start of the game, Germany receives 35 IPCs, and Japan receives 28. It's a wonderful system because it has feedback built into it.