If you're running a dedicated server, editing PalWorldSettings.ini isn't gonna cut it to change the max number of workers per base. Best way I found that's working 100% of the time is to follow steps below.
1. Stop your Pal server. Make sure Pal services isn't running on your services.
2. Locate and edit the PalWorldSettings.ini of your server then copy all of the text content.
3. Paste it on Import Settings on this link:
Palworld Options
4. Select the
Load Config and your current server settings should load below.
5. Edit the desired settings for the max number of Pals on your base on the
BaseCampWorkerMaxNum (maximum is 20).
6. Select
Generate WorldOption.sav
7. Navigate inside your Pal>SavedGames folder until you reach a folder that contains LevelMeta.sav and Level.sav. Paste the generated WorldOption.sav file on that same folder so now there should be LevelMeta.sav, Level.sav and WorldOption.sav on the same location.
8. Restart/run your Palworld server.
So what's happening is that WorldOption.sav is a single player version of PalWorldSettings.ini. WorldOption.sav configuration has higher priority compared to PalWorldSettings.ini. So if you have WorldOption.sav in your SavedGames folder, even if it's on a multiplayer server the game follows the configuration of that file and ignores PalWorldSettings.ini. The only hassle is that you need the Palworld Options web link to generate the WorldOption.sav file.