It is too early for such questions.
To think about such things, you need to start from designing the overall goals of each culture. Once you know what they are, and what kind of cards are needed to achieve them, you can start thinking about card choices.
Other issue is that cultures vary in size. Dunland is a good example as it is the smallest. There are 51
cards in the whole game. Only one competitive deck type, which uses more or less 11 of those cards regularly and maybe another 10 as occasional additions. So in fact this is a culture of around 20 cards. Reprinting 5 means reprinting 25%.
On the other hand we have
culture. It's 138 cards, at least 4 competitive decks (Southron archery, mounted Southrons, 2 burden Easterlings, Corsairs) plus
Under Foot swarm which is half Raider, half Moria; plus the
Southron Archer/heavy site control combo. Around 60 playable cards, so 5 is less than 10%.
I think a starting point should be defining cultures and viable deck types we aim for. Once we do this, we can move to details. I did a brief start to this - a list of decktypes possible in current LotR with short descriptions. I think once we have decktypes we want to support (of course I don't claim that my list is complete, I just stopped at nice number of 30 decks for each side) we can concentrate on making them balanced against each other by changing some cards. And finetune it by sitepath.
BTW, I still think we can safely do way more reprints. Decks that are strong enough can be based entirely on reprints. There will still be really lots of work to get the remaining ones up to a decent level of competitiveness (the most diverse formats currently existing have a bit more than 10 viable sides, getting over 30 will make a game with lots of replayability, but will require lots of testing).
The (incomplete) list of LotR decktypes. Some of those decks have some features in common, maybe even some people would not call them different, just two versions of the same deck. This is a starting point, final descriptions (before we start thinking about cards) should be in way more detail.
Free PeoplesElven Archery - aims to kill most minions during archery phase. Key cards:
The Splendor of Their Banners,
Elven Bow,
Double Shot,
Greenleaf.
Elven Telepathy - uses top card of the deck as a resource. Key cards:
Gandalf MoW,
Cirdan,
Forearmed,
Nenya RoA.
Rivendell Allies - uses support from Rivendell to make companions stronger and healthy. Key cards:
Shoulder to Shoulder,
Elrond HtGg,
Lady UndomielLorien Allies - can bring allies to fight. Key cards:
Horn of Boromir, Lorien Allies,
Boromir DoMTLast Alliance - versatile deck that is decent against any shadow. Key cards:
Aragorn RotN with Anduril,
Greenleaf, Last Alliance of Elves and Men
Ranger Choke - little twilight, some archery, some strength. Key cards:
Aragorn's Bow,
Greenleaf,
Arwen FeM,
Gondor BowmenKnights - uses fortifications to take down minions. Key cards: 6th and 4th Level,
Gondor BowNoble Leaders - using many artifacts and main Gondor characters. Key cards: Elendil with Narsil,
Sapling of the White Tree,
Denethor LoMTRing-bound Rangers - making minions roaming and getting bonuses when they are. Key cards:
Ranger's Bow,
Faramir CoG,
Arrows Thick in the AirGondor Wraiths - immune to wounds and enduring. Key cards:
Swept Away,
Stronger and More Terrible,
Aragorn Driven by NeedGondor and Gandalf - a bit similar to
Noble Leaders, but using
SFTS to set up and with less focus on Gondor. Key cards:
Gandalf LoM,
Saved From the Fire, Aragorn, Faramir
Help in Doubt and Need - a deck using strong Gondor and Rohan companions who help each other in skirmish. Key cards:
Help in Doubt and Need, Red Arrow
Merry's Sword - a deck running a 9 companions fellowship and using
Merry's Sword to defend when Ulaire Enquea is played or to exert any other minions that are a problem. Key cards: Merry with Sword,
Eowyn LoIValiant Rohan - a deck using suboptimal but valiant Rohan companions, which gives access to
Let Us Be SwiftBeatdown Rohan - four very strong Rohan companions. Key cards:
Eomer TMoR with all his equipment,
SimbelmyneEdoras Allies - a deck using Rohan allies to help companions. Key cards: allies, Well-stored.
Rohandalf - uses Gandalf to do what Rohan can't do. Key cards: same as Rohan, additionally
Deep in Thought,
Out of the High AirsSFTF Ents - rapid setup and strong companions. Key cards:
Gandalf LoM,
Saved From the Fire,
Radagast,
Treebeard KotW, Barliman Butterbur
Hobbit Hospital - lots of healing thanks to allies from Shire, this deck survives anything and is ready to repeat next turn. Key cards: Farmer Maggot, Rosie, stealth cards,
Frodo OBHDauntless Hunter - choke and quite decent companions. Key cards:
Legolas DH,
Sam GEW,
A Promise,
A Talent for not Being Seen,
Narrow EscapeMerry, Pippin and Ents - high strength companions and some tricks. Key cards:
Everyone Knows,
Escape,
Ent DraughtBouncing Hobbits - discarding Merry and Pippin to avoid skirmishes and replay them. Key cards:
Knocked on the Head,
Merry LG, Pippin W-fR
Hobbits and Aragorn - power to survive and clear the table in regroup. Key cards:
Shadowplay,
Aragorn Wingfoot,
Sam GEW,
Narrow EscapeFrodo, Sam and Smeagol - discarding Smeagol to make hobbits stronger. Key cards:
Frodo Master of the Precious,
Sam Nice Sensible HobbitDwarven Beatdown Choke - strong companions and little twilight. Key cards:
Durin III,
Blood Runs Chill,
Smeagol AHDwarven Stacking - strong drawing and bonuses from having cards staced on conditions. Key cards:
Gimli FA,
Sindri, Slacked Thirsts
Rainbow Wounding - a deck with very many subtypes, depending on cultures chosen as it's impossible to fit all. Key cards:
Eowyn LoI,
Greenleaf,
Smeagol AH,
Shadowplay,
Aragorn ET,
Aragorn's Bow,
Great Day, Great HourRainbow Beatdown - a deck with many companions, choosing who to play depending on the opponent. Key cards:
Gandalf LotC,
RefugePipeweed - Gandalf, Hobbits and Aragorn smoking to be stronger and healthy. Key cards: pipes and weed,
Servant of the Secret Fire.
Killer Smeagol - Boromir, Merry, Smeagol fellowship using
tricks. Key cards:
Smeagol Slinker,
Not Listening,
Don't Follow the Lights,
The Shire Countryside.
ShadowNinja Gollum - wounding madness. Key cards:
They Stole It,
Promise Keeping,
Captured by the Ring,
Desert Lord,
Shelob Her LadyshipBig Shelob - using orcs to feed the spider. Key cards:
Web,
Larder,
Shelob Eater of LightDunland Site Control - taking two sites to kill with Elders. Key cards:
Freca,
Dunlending Elder,
Hides,
Ready to Fall,
Over the IsenSouthron Archery - lots of archery and lots of threats. Key cards:
War Towers,
Desert Lord,
Seasoned Leader,
Rallying CallMounted Southrons - strong and fierce minions. Key cards:
Desert Lord,
Mumak Chieftain,
High Vantage,
Field of the Fallen,
Seasoned Leader2 Burden Easterlings - getting to two burders and reaching high stregnth. Key cards:
Easterling Captain,
Small Hope,
Easterling PolearmCorsairs - stealing everything from the fellowship and loading ships to attack stronger. Key cards:
Black Sails of Umbar,
Castamir,
Corsair MarauderUnder Foot Swarm - taking initiative to reconcile multiple times during shadow phase. Key cards:
Corsair War Galley,
Under Foot,
Goblin RunnerSouthron Archer Shootout - strong site control engine aiming to fire 20+ archery at site 9. Key cards:
Southron Archer,
Ships of Great DraughtBig Moria - using strong Moria minions. Key cards: Cave Troll,
Host of Moria,
Moria AxeThe Balrog - single but very deadly minion. Key cards: Balrog, his support,
Goblin RunnerMoria Swarm - aiming at playing 15-20 minions together. Key cards:
Goblin Swarms,
Goblin Armory,
Goblin ScimitarMoria and Isengard Swarm - less swarm but better wounding protection. Key cards:
Isengard Shaman,
Isengard Warrior,
The Palantir of OrthancIsen Orcs Regroup Wounding - making minions survive to regroup and discarding them to hurt companions. Key cards:
Trapped and Alone, GBHB
Warg Riders - using Wargs to build big minions that can hurt the fellowship. Key cards: wargs,
Wolves of IsengardUruk Beatdown - strong Uruk minions. Key cards: Lurtz,
Lurtz's Battle CryBattleground Uruks - stronger when on battleground, also looking to gain initiative. Key cards:
Uruk Vanguard,
Suffered Much Loss,
FerocityUruk Trackers - fierce uruks. Key cards:
Weary,
Worry, Mauhur, Ugluk,
VengeanceUruk Resistance Lowering - [Uruk-hai] cards introduced into
. Key cards:
Our Foes are Weak,
Uruk ZealotUruk Archery - deck preparing big archery turn. Key cards:
Ranged Commander,
Weapons of IsengardUruk Machines - building a big kill turn with berserkers. Key cards:
Berserk Slayer,
Devilry of OrthancUruk Site Control - controlling sites to make minions cheaper and stronger, extra bonus when controlling battlegrounds. Key cards:
Attack on Helm's Deep,
Down to the Last Child,
Pillage of Rohan.
Sauron Wounding - trying to kill off wounds even when losing skirmishes. Key cards:
Orc Bowmen,
Under the Watching Eye,
Hate.
Roaming Sauron - getting their own minions roaming and stronger because of this. Key cards: all "Advance" minions,
Rank and File,
Orc BannerBesiegers - controlling sites to play a lot of strong minions. Key cards: Grond,
Great Hill Troll,
Siege TroopThreat Sauron - using threats to pump minions high. Key cards:
Fires Raged Unchecked,
Mordor Guard,
Mordor Veteran,
Orc OfficerNazgul Beatdown - striking early, with strong and fierce minions. Key cards:
Cantea FtW,
Morgul Gates,
Attea KoDG, Witch King
Morgul KingMorcs - Nazgul and Orcs combination. Key cards:
Morgul Brute,
Morgul Destroyer,
Gollum DaD,
Lemenya Assailing MinionTwilight Nazgul - direct attack on the ring-bearer, trying to force him to put the ring on. Key cards: Witch King
Lord of the Nazgul,
Fell Beast,
It Wants to be Found,
Resistance Becomes Unbearable,
Wraith-worldEnquea TotO Corruption - adding a lot of burdens. Key cards:
Enquea TotO,
Between Nazgul and Prey,
The Ring is Mine