The 'rebels' seem to collect in some regions when there is no compitition. Like pirates in the Baltic or huge stack in isolated ignored areas.
In my 080 Roman campaign I had to fight a huge war to take the 'rebel' towns in Bosphoria. My Crimean War of one legion against 5 or 6 stacks of mostly horse archers. Testuto won the day.
EDIT: I noticed I had some pictures and since I don't have anything better to do right now:
3+ stacks around Pantikapaion (similar for Chersonesos):
Testuto actually doing its job:
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