My math is correct. Check a recent game like
Game 7871873 and you can see that green, playing first, had 18 regions.
There are 52 regions on the map, with 3 starting positions each containing 3 regions, leaving 43 regions in a pool for random distribution. So with two players, two of the three positions are handed out to the players, and the regions in the remaining position are returned to the pool, leaving 46 regions to be divided by three (one third to each player, and the remainder left neutral).
As far as 3 player games go, look for example at
Game 7833975. Each of the three players gets one starting position of three regions, then the pool of 43 is split three ways, for 14 more regions each (17 in total each), with one region left neutral.
Now that danryan's game,
Game 7857092, has completed, we can see that Leehar did in fact drop Lyalia and the Islands. With the Islands bonus only requiring 3 out of 5 regions, and one of them, Dalmus, being a part of the starting positions used to prevent the drop of the Chunjaris-Theraland road bonus, we now have a high probability of a player dropping it, as I outlined above.
In order to have 4-player games start with 11 regions each, presuming no changes to the current scheme of 3x3 starting regions, the total number of regions in the pool would have to be between 44 and 47 inclusive. This would require 6 to 9 regions designated to start neutral.
In order to have 2- and 3-player games start with 14 regions, presuming no changes to the current scheme of 3x3 starting regions, the total number of regions in the pool would have to be between 33 and 35 inclusive (yielding 11 regions to add to the 3 regions in a starting position). This would require 8 to 10 regions designated to start neutral.
So, choosing 8 or 9 neutrals would give the starts that mattattam proposes.
An entirely different approach to our problems might be to simply make all the cities start as neutral 2's. No one can drop a road bonus, or any other bonus, apart from the Islands. Divide the non-city islands with a set of starting positions, and the drops should be much more fair.