There are two choices to fix the 12 terrs issue:
1. Get rid of all the starting positions, and let the drop be completely random. In a 1v1 game this means that each player starts with 11 terrs, and the seeded teams would not have an extra man. For larger-player games it will increase the odds of somebody holding a group from the start (although no bonuses can be dropped).
2. Add more territories to the starting positions. While drafting the map I put together some groupings to dish out every country; in a 1v1 each player would then start with 16 terrs. I don't recall how this would effect larger-player games.
On balance, I guess I'd prefer option 1