blitzkrieg1980
Octobrist
Well... hold on a second. If you are a) going for a culture victory or b) have a lot of cottage spammed cities that have matured to towns, then Free Speech may be better. I've switched to Free Speech in several of my games if I have a large empire that has TONS of towns. After all, if you can grab +2 on 100+ towns (let's say 15 commerce cities with average 7 towns each) later in the game, then you'll definitely see a huge benefit from Free Speech over Bureaucracy. However, from what I've read, FS is mostly a boon for culture vics (due to the fact that you'll be running +2 with a high slider in the end run which then gets the +100% from FS)This will confirm my inexperience, but I was running bureaucracy but changed to Free Speech in order to get the +2 commerce from my towns and increase my culture.
BUT for your current situation (not much in your land), it sounds like you should be in Bureaucracy and maximize the hammer output of your capital.