One way to do it:
1.) Set the number of city states using the MapSizes config (MinCityStates + MaxCityStates + DefaultCityStates).
2.) a) Add starting positions for them on a map with the worldbuilder.
or b) Remove all unwanted minor civs from the tables.
or c) Try to use RulesetSupportedValues or MapUnSupportedValues. The last one won't work without fixing a bug in the base code. I also am not sure if that works with minor civs or only major leaders.
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