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It could be many things.
What do you mean by fewer factories for Germany ? The number of factories or the size of factories ?
It's better to compare the number of craftsmen and clerks.
What's your non-colonial population and what % of craftsmen do you have relative to Germany ?
Another issue is the type of factory you haven if Germany managed to corner the market on cars and radios, they'll have a higher score than someone who's main product is cement. The value of what you produce is important.
In different states? Yes, in most cases. Both to increase the ability to increase production and to boost downstream factories. For example, one state might be Steel --> Weapons while another can be Steel --> Machine parts.
it depends on what you're producing.
A special example would be tanks, if you have a monopoly maybe just upgrade the factory you have if you need more for you.
Otherwise, in most case it's better to have multiple factories in each state, it gives you flexibility and spread your workers into different markets which is safer.