Most likely all provinces at the start will be controlled by indepent factions just as in Empire and Napoleon. I guess they will decide later when the campaign is playable what minor factions will become playable and get some more love.
I'm guessing it will be like TWS2 as well, with every province controlled by a faction. I was just guessing that it's unlikely that they will place too many major factions close together. And by major, I mean playable.
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