I observed lots of time similar problem.
I have modded my game in order to have the default entities + 4 more and removed the subterrenan entity entirely as it has always be useless in all my games due to them doing nothing anyways.
And i observed that despite in my worldgen i have civ 40 , i have
[MAX_STARTING_CIV_NUMBER:4]
(only kobold is left as [MAX_STARTING_CIV_NUMBER:1] )
That in my worldgen
[WORLD_GEN]
[WORLD_GEN]
[TITLE:TESTSMALLER]
[DIM:33:33]
[EMBARK_POINTS:1504]
[END_YEAR:1050]
[BEAST_END_YEAR:130:80]
[REVEAL_ALL_HISTORY:1]
[CULL_HISTORICAL_FIGURES:0]
[ELEVATION:1:400:102:102]
[RAINFALL:0:100:51:51]
[TEMPERATURE:25:75:51:51]
[DRAINAGE:0:100:51:51]
[VOLCANISM:0:100:51:51]
[SAVAGERY:0:10:51:51]
[ELEVATION_FREQUENCY:1:1:1:1:1:1]
[RAIN_FREQUENCY:1:1:1:1:1:1]
[DRAINAGE_FREQUENCY:1:1:1:1:1:1]
[TEMPERATURE_FREQUENCY:1:1:1:1:1:1]
[SAVAGERY_FREQUENCY:1:1:1:1:1:1]
[VOLCANISM_FREQUENCY:1:1:1:1:1:1]
[POLE:NORTH_OR_SOUTH]
[MINERAL_SCARCITY:2500]
[MEGABEAST_CAP:2]
[SEMIMEGABEAST_CAP:3]
[TITAN_NUMBER:5]
[TITAN_ATTACK_TRIGGER:80:0:100000]
[DEMON_NUMBER:20]
[NIGHT_TROLL_NUMBER:10]
[BOGEYMAN_NUMBER:0]
[VAMPIRE_NUMBER:10]
[WEREBEAST_NUMBER:10]
[SECRET_NUMBER:20]
[REGIONAL_INTERACTION_NUMBER:20]
[DISTURBANCE_INTERACTION_NUMBER:20]
[EVIL_CLOUD_NUMBER:10]
[EVIL_RAIN_NUMBER:10]
[GENERATE_DIVINE_MATERIALS:1]
[GOOD_SQ_COUNTS:1:16:0]
[EVIL_SQ_COUNTS:1:16:0]
[PEAK_NUMBER_MIN:0]
[PARTIAL_OCEAN_EDGE_MIN:0]
[COMPLETE_OCEAN_EDGE_MIN:0]
[VOLCANO_MIN:0]
[REGION_COUNTS:SWAMP:0:0:0]
[REGION_COUNTS:DESERT:0:0:0]
[REGION_COUNTS:FOREST:0:0:0]
[REGION_COUNTS:MOUNTAINS:0:0:0]
[REGION_COUNTS:OCEAN:0:0:0]
[REGION_COUNTS:GLACIER:0:0:0]
[REGION_COUNTS:TUNDRA:0:0:0]
[REGION_COUNTS:GRASSLAND:0:0:0]
[REGION_COUNTS:HILLS:0:0:0]
[EROSION_CYCLE_COUNT:250]
[RIVER_MINS:3:3]
[PERIODICALLY_ERODE_EXTREMES:1]
[OROGRAPHIC_PRECIPITATION:1]
[SUBREGION_MAX:2750]
[CAVERN_LAYER_COUNT:3]
[CAVERN_LAYER_OPENNESS_MIN:80]
[CAVERN_LAYER_OPENNESS_MAX:100]
[CAVERN_LAYER_PASSAGE_DENSITY_MIN:0]
[CAVERN_LAYER_PASSAGE_DENSITY_MAX:100]
[CAVERN_LAYER_WATER_MIN:0]
[CAVERN_LAYER_WATER_MAX:100]
[HAVE_BOTTOM_LAYER_1:1]
[HAVE_BOTTOM_LAYER_2:1]
[LEVELS_ABOVE_GROUND:15]
[LEVELS_ABOVE_LAYER_1:5]
[LEVELS_ABOVE_LAYER_2:1]
[LEVELS_ABOVE_LAYER_3:1]
[LEVELS_ABOVE_LAYER_4:1]
[LEVELS_ABOVE_LAYER_5:2]
[LEVELS_AT_BOTTOM:1]
[CAVE_MIN_SIZE:5]
[CAVE_MAX_SIZE:25]
[MOUNTAIN_CAVE_MIN:2]
[NON_MOUNTAIN_CAVE_MIN:3]
[ALL_CAVES_VISIBLE:1]
[SHOW_EMBARK_TUNNEL:2]
[TOTAL_CIV_NUMBER:40]
[TOTAL_CIV_POPULATION:15000]
[SITE_CAP:68]
[PLAYABLE_CIVILIZATION_REQUIRED:1]
[ELEVATION_RANGES:10:0:0]
[RAIN_RANGES:0:0:0]
[DRAINAGE_RANGES:0:0:0]
[SAVAGERY_RANGES:0:0:0]
[VOLCANISM_RANGES:0:0:0]
despite the TOTAL_CIV_NUMBER:40 , nearly everytime the game will put only 25 of my main entities civs , while i want 32, meaning there are several entities that will have less than 4 civs (and goblins often get only 1)
Very annoying that while there are max=... settings for the civs, we don't have a min=....