What are the smaller flags underneath the 4 main City States in the Eorzean map?

[myahele]

If you look into the Eorzean map you'll see in the bottom corner you'll see Gridania, Limsa, Ul'dah and Ishgard's insignia, but underneath those 4 you'll see smaller insignias.

I always assumed they were the insignias for the previous city-states that have fallen: Sil'hih, Ala Mhigo, Gelmorra, Belah'dia, and maybe even some of the beast tribe territories.

But even so, there's simply too many to account for the fallen city-states.