Agree with Iraq - we will go back to having them have 2 infantry.
With Romania, it is a little tougher. . . Each Romanian infantry unit represents at least 2 divisions (maybe even 3). So - a 1939 start should really only have them begin with maybe 6 infantry units (for 11-12 divisions). But to get to 28 in 1940, they would need to build 8 more units which is not really possible. So, I would say that we should assume the 11 divisions is pre-war 1939 and the Romanian At-war total in September 1939 is somewhere between 11 divisions and 28 divisions (between 6 units and 14 units). So I think starting them with 8 is not too bad.
If we start them at 8 units (16 divisions) and they build 1 a turn starting in Autumn 1940 with no losses, by Autumn of 1941 they should have 12 units (or 24 divisions). This falls short of the 1941 - 43 level.
If we start them at 8 and let them build 2 a turn they could get to 16 units (or 32 divisions) by Autumn 1941. Assuming an average of 4 divisions annihilated by the Russians every turn, Romanian production could keep pace with attrition through 1941-43.
So - I think I would be ok changing it to 2 max builds for Romanian infantry. . .I think we had it at that threshold at one point. ..
Mark