I would split any logical divisions into different controllers - if it's all static pages, then serve it up with all the same 'static page' controller.
If you have some static pages, a FAQ page (or section), a product list - use a controller for each different section. So the static pages would be pulled from flat files or a database by one controller, the FAQ pages would be generated from a FAQ table by another controller, the products and info would be generated by whatever the source for that is.
Every time the way a page is generated or the data is accessed, use a different controller.
Of course, class inheritance can be used to create the base class with the code needed by any controller.
Not sure what you mean by a non-framework controller - I'd checkout the Zend (gasp) 'Framework', the MVC pattern, and even the controller itself, can be used apart from the rest of the framework.