If we have the civs go with a huge map it should be 12 civs, 24 citystates. I agree that the penguins and Crandor are stretches, and one of my concerns going in is that, if placed in the actual map, would the civs be balanced.
So we have a base 9 (Misthalin, Asgarnia, Kandarin, Fremennik, Tirannwn, Morytania, Kharidian, Karamja and Feldip), two more potential ones (penguins and Crandor)
From the 9, we could split the Kharidians up into the Al Kharid controlled area and the Pharoah/Menaphos. I personally want to raise the Tree Gnomes out of citystate status and into a civ. My only problem with the Zarosian is that its kinda hard to place, but otherwise its good. That would make 12 civs.
We can do any combination of the potential civs with the 9 definitive civs to get to 12, but we have to decide which 3 are going to be the final 3.
As a final note, I'm going to restart the civ map, looking at my old one that I published I need to rework it to be more specific