Here is the file and a screenshot. Seems like for most of the game the Dutch make stacks of doom and leave their cities mostly empty. In their stacks are mostly city watchmen.
Red Circles = SOD
Red Squares = Cities with little guards.
Note they usually stand their and do nothing or sometimes go back and forth between 2 tiles.
What follows is off the top of my head based on what I see in the screenshot and what I know of the code. I have not done a deep analysis in the debugger of the save game to verify what each stack this it's up to (I can if you think what I say below can't be right, but it takes several hours).
I don't really see an issue with the screenshot. The stacks are just city defenders it has decided don't actually need to eb in the city right now since the is no attack force nearby, and they are more use increasing it's sight and occupying defensive terrain (they seem to be on hills and forests) than just sitting in the city doing nothing. If you moved in with attack forces sufficient to threaten the city they'd pull back into it to defend (or a least they should). Although they appear to be rather large stacks that's just the ai for you - it's not exactly economical with military units.
I am slightly surprised your footpad is not being attacked though(and that is concerning)