In the context of a campaign, where you can't have a unit until you've upgraded the buildings enough to produce it, maintenance cost of units, matters, etc, I'd say Milan. Their Genoese crossbow militias are easily mass-produced from minor cities and can be maintained for as much as peasant archers -- and that's when they're not stationed in cities.
In the context of a custom battle, where units are simply bought on a given budget, I'd say Russia.




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