"In a two-player game, the players remove the 18 Territories with Setup Value (3) and (4); in a three-player game, they remove the nine Territories with Setup Value (4)..."

In my copy, I only have 7 tiles with Setup Value (3) & 7 tiles with Setup Value (4).

Is it normal ?

Seems to be as I noticed the same thing. I believe the manual has a typo.

Yes, 7 each for 3 player and 4 player, but we believe they are referring to the 4 cities that aren't shuffled in as well....