States emerged gradually from loose tribal entities. In most locations, this process is poorly documented as the invention of writing tends to occur at around the same time as states.
In general, I am giving proto-states the benefit of the doubt, as I think it more useful to include something instead of “None”. For example, the Iroquois Confederacy had no governmental structures outside the “Council of 50”. It still seems appropriate to record this tribal alliance and ask how big its population was. I will also count the alliance created by Vercingetorix in Gaul.
I have noticed that geographical sources like Geacron tend to ignore proto-states and even fully functional kingdoms, especially in Africa.