IIRC, you need to check the scenario properties. Check the number of players allowed. I met the problem once or twice long ago. Can't exactly recall the fix.
I've never hit that problem before, but both the suggestions above sound viable to me, as well as checking World Sizes Tab in the Editor for Number Of Civs and Distance Between Civs values for whatever world size you are testing.
Vaguely remember a discussion years ago ... All those factors listed above + the % of water setting. No matter how big the map is, if there's not enough land - which is when the distance between civs value becomes important.
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