Kinda funny how almost no one is saying Dido.
Pretty sure it was covered that Phoenicia is the best for early expansion and economy.
I know people here are obsessed with tier lists and tile yield porn, but the fact is what is "best" depends on your gameplay paradigms.
Here's how I would classify them with a "tier" list for England, Indonesia, Norway, and Phoenicia (the most naval focused civs).
Offensive Naval Warfare: Norway = England > Indonesia = Phoenicia
Defensive Naval Warfare: Phoenicia > England > Norway = Indonesia
Expansion: Phoenicia >= Indonesia > England > Norway
Trade: Phoenicia > England > Indonesia = Norway
Development: Indonesia > England = Phoenicia > Norway
Pillaging: Norway >>>>>>>>>>>>>>>>>>>>> others
etc...
And then even that changes based on map settings.
Pangaea/Continents/Seven Seas => England bias
Small Continents => Phoenicia/Norway bias
Island Plates => Indonesia bias
So if I want to say what is the best naval civ from a consistency standpoint, I'll say if you want to fight a lot, go for England (conquest) or Norway (small core with pillaging). If you want peaceful expansion with occasional headbutting, go Phoenicia (early expansion and trade) or Indonesia (city development). Ultimately they all pretty much play very differently, and the best part is you can do anything you want because nobody else can match you on the sea.