I would like to be able to independantly control the number of units that each player receives and the number of units that appear on randomly spawned neutral territories.  This way I have have neutrals set to something other than low and have the game not start out at a snails pace... attacking neutrals vs attacking your enemy will ACTUALLY be a decision for a change...

My 2 isk...

Ender

You could set the Unit count to a Per Player count, but then I'm a bit unsure where the number of Neutrals count comes from. It would be a bit different though too, so not sure if that would work for all scenarios.
I like your suggestion though, because I think it is easier than the Per Player count (that usually confuses me for some reason :P).

So in other words split it into two values:

Neutral Density - affects the proportion of territories given over to neutrals
Neutral Count - unit count on each territory

Currently if the unit count is set to per player then the neutrals end up with the same number of units per territory as the players do on average.