We currently know that there are 10 senior age-eligible skaters in 2018/19 season who have scored 190 points or above this season to date: Medvedeva, Zagitova, Tsurskaya, Sotskova, Radionova, Panenkova, Samodurova, Tuktamysheva, Leonova, and Konstantinova. There is also Pogorilaya who should still remain within the top 24 world standings by season's end based on her past achievements, so that is 11 skaters in total with 18 GP spots maximum (and more likely to be 16-17 spots given that some host federations will only give Russia 2 spots.
This means that it isn't possible to give all those 10 skaters two spots each -- which was my point, that there will be Russian skaters with a 190+ international SB from this season who will get one or zero GPs in the next, whereas Japan still has the ability to give all 190+ scorers two events apiece (if you add Rika Kihira to the mix after JGPF, it would still be 8 x 2 = 16 spots, but sorry Rika Hongo).
Even with retirements by Leonova (probable) and Pogo (hope not), we're still down to 9 skaters for Russia but need the max of 18 spots to give each of them 2 spots each.
Yes, I realise what you are saying, but my point is that Russia may not want to risk so many skaters having only one event, so they may decide mot to submit some names. E.g. if they decide that Leonova (if she wants to continue) will have only challengers events, there is nothing she can do about it, even if she is in top 24 in world standings. Then they can decide who else is weakest from the group, maybe Konstantinova and Samodurova, or Tuktamysheva if she has again bad season, and just not submit their names. If they submit 8-9 names, the chance is that all of them will end up with two assignments.