We can only guess on what the base mean, I suspect it means 1 city 7 units 2 cities 10 units. In my current game that seem to be the case. Flavors of leader also affect this. That why some dont have any defenders in vanilla.
I increased them higher to see an effect and it worked. Right now I want my AI to defend better as they suck at attacking.
When they fix the tactical AI, I would lower these. I also lower maintenace ost to let the AI have more troops without being penalized, I really would like them to keep a decent defense and at the same time be able to attack.
As I mentioned before the changes I made greatly improves early game AI, as they are less likely to be mad(Want to declare war) at a civilization thats way off beacuse they have no units