Oh hello there, to answer your question, yeah I think this idea can surely be done, has certain debuff depending on player's settlement count is doable, making it difficulty depended is not that hard either.
Although the "spawning new city-state or civilizations" is a little too advanced, even the Civ6 modding community now, 8 years later, can hardly do that.
If you want, you can provide detailed instructions on the debuff number and restrictions to me, I will see to it to make it a mod if I get some free time.
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Although the "spawning new city-state or civilizations" is a little too advanced, even the Civ6 modding community now, 8 years later, can hardly do that.