I've just come across the mayan counting system, and I'm told it's base 20.

Here the mayans have their system as base 20, where they considered each of these as individual symbols despite the fact some symbols are clearly compounds of others. To me, the symbols remind me of a tally and thus I would consider using these symbols to represent base 5 to make more sense.
This got me thinking, what defines what base a counting system is in? What is it about the way the symbols are used/defined that determines what base is being used?
Conventional (Hindu-Arabic) numerals are a base-$10$ system because the value of a symbol depends on the position in which it is written, and each position multiplies the value of a symbol by $10$: the
3in371is worth ten times as much as the3in35, which is worth ten times as much as the3in123.Each position in the Mayan system is worth twenty times the previous position. There is no symbol which, written in one position, means five times as much as the same symbol in another position. You cannot write a dot in one place to mean $1$ and in different place to mean $5$; you can write a dot in a different place to mean $20$. A bar means $5$ or $5\cdot20$ or $5\cdot20\cdot 20$; it never means $5\cdot 5$ or $5\cdot 10$. Too write $10$ you need two bars, which, written in a different position, mean $10\cdot20$. So the system is pure base $20$.
There are hybrid systems. For example the same symbol in Babylonian numerals might mean $3$ or $3\times 6 = 18$ or $3\times 60 = 180$ depending on where it is written (or $3\div 10$ or $3\div 60$ for that matter). But the Mayan system isn't a hybrid in this way.