I suggest scaling the number of administrators you get per citizen based on map size. Because if you play on bigger maps where lots of expansion is going to happen, you have little choice but to do all or almost all your citizens as administrators for a long, long time, which kind of eliminates choice and somewhat eliminates the citizen feature. I'm not sure what a fair value would be, but it'd be nice to be able to do something other than make administrators with citizens on the larger maps without crippling your expansion and mandatory starbase spamming.
I don't change planet abundance but I could see this problem being even more apparent if you boost that setting.
This is something that would impact both AIs and players, assuming the AIs play by somewhat the same rules as players when it comes to administrator earning and usage.