I was actually just running an English campaign for a while to test a few things, and happen to have hit cap on my merchants, because I was trying to get one of my cities a Merchant's Guild as quickly as possible. As it turns out, upgrading the trade buildings (dock or market series) had no effect whatsoever on my max merchant limit - it got to 4 as soon as each of my 4 towns had the base building that says it allows you to build merchants, and never moved from there (I was avoiding taking new settlements, so never got any more 1st level merchant buildings). So it seems that for merchants at least, you get 1 for each city that has the 1st level building that lets you build them, and none from anything else that I've seen. Perhaps other agent types will be the same.
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