It is a precarious balancing act given the importance of the early rush. As envisioned right now, I have the following factions set up with these starting conditions:
Angel Cartel, Blood Raiders, Guristas Pirates, Sansha's Nation, Serpentis Corporation
1 survey, 2 scouts
1 class 14-16 world (w/ 10 pop) in home system
Amarr Empire, Caldari State, Gallente Federation, Intaki Syndicate, Khanid Kingdom, Minmatar Republic, Thukker Tribe
1 survey, 1 scout, 1 colony ship (w/ 2.5 pop on it)
1 class 8-10 world (w/ 7.5 pop), 1 class 6-8 world (uncolonized) in home system
Anyone familiar with the EVE universe will notice that the first group is composed of the true pirate factions, while the CONCORD powers and peripheral states are in the second group. Perhaps by adding a tiny or small combat ship to the first group's starting set up, they'll have enough of an edge to justify the lack of a free colonizer (and reinforce their warlike nature from the very start)?