How come in Napoleon, Russia get 11 workers to begin with?

[Bill the great]

I mean Russia are supposed to be a nation behind so how some in this scenario they get give 11 workers when no one else is given more than 5.

???

 

[thetrooper]

They have the largest landmass, can´t think of anything else.

 

[rbis4rbb]

This should have gone in the Napolean thread. Anyways, I think just the sheer amount of cities and territory is a factor.

 

[The Last Conformist]

It's not like the amounts of starting units are supposed to be equal, is it?