Garrisons

• When you must place or reinforce a Garrison but cannot (because you have run out of models, or would exceed 3 on a hex), the Empire gains 1 VP for each Garrison you cannot place or reinforce.
• If you are instructed to place a Garrison and there are no empty hexes, you may place it on a hex with a Legion.
• If all level 1 Garrisons are placed, use a level 2 or 3 Garrison on a hex with other Garrisons (up to 3 per hex).
• If you still cannot place or reinforce (e.g., all models are used and all hexes are full), award 1 VP to the Empire for each unplaceable Garrison.

Source: page 50

Skeletons

• If you must place a Skeleton and there are none in the reserve:
  • Choose a hex with 1 or 2 Skeletons on it, remove them and place 1 new Horde on that hex.
• If you must place a Skeleton and all Hordes have already been placed (so you cannot convert Skeletons to a Horde):
  • Chaos gains 1 VP instead.
• If you must place 2 Skeletons with other Skeletons, you may split them into different hexes.
• If there are no Skeletons on the map, place it on an empty hex.

Source: page 51

Summary

• Garrisons: If you cannot place or reinforce, the Empire gains 1 VP for each unplaceable Garrison.
• Skeletons: If you cannot place a Skeleton due to no models, convert 1 or 2 existing Skeletons into a Horde. If you cannot do this (no Hordes available), Chaos gains 1 VP for each unplaceable Skeleton.

This sequence is directly supported by the rules on pages 50 and 51.

Source: Core Rulebook (pp. 30, 34, 50, 51, 57)