You're going to be dealing with more balance changes if you lessen the cost of Industrial.
Look at what shipments Brits get.
8 vils in fort. Estates, 20 vils from manors. 2 factories which allow them to get THE BEST artillery in the game. Yeomen, which gives them guard longbows which decimate everything.
What do the vils do? Push the Brit's econ over the edge, simply rocket (lol) him into Industrial. With that kind of econ, I don't think resource cards are needed to go to Industrial (do Brits get 1k coin?)
Once he's in Industrial, he still has an easy time, because he's been making longbows continually, the best light infantry in the game. Coupled with a fort and some decent outposts, the Brit gets into Industrial safely, sends 3 rockets(best age 4 artillery shipment of ANY civ), and begins the offensive. He gets estates, begins pumping longbows and supplementing a batch of dragoons every now and then, and gets 2 factories out to get MORE rockets.
His economy? His economy is GOOD, fueled with 8 vil shipment instead of resources in fort, estates, 2 factories pumping units freeing up resources for other things, manors that give him a free vil every 2 minutes, and continual vil production from one or even two, hell, 3, TCs.
Damn.
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A few get more interesting in Fortress. But the entire complement of units at one's disposal, and some of the most fun units (heavy artillery) only become available in Industrial.
Complement? You must be kidding me, I nearly always see one or two-unit spams by the top 4 civs in any strat.
Germans? WW.(and free uhlans. POSSIBLY falcs, definitely HC.)
Ports? Dragoons.(with HC and *gasp*some cassadores.)
Brits? Longbows.(occasional dragoon, rockets.)
French? Cuirs. (usual artillery culprit, possibly skirms?)
These one or two unit combinations cover all counters in age 4, there's no reason to use your "full complement" unless your civ is in the bottom 4 for Industrial, IE Ottos, Dutch, Russians, and Spanish.
I am Rumour Kontrol.