Perkus
Prince
I'd like to add that AFAIK cities are NOT neutral ground. Although it doesn't show any terrain modifiers in the battle forecast panel when you're attacking cities, careful observation shows that in fact is is still applying at least the Shock/Drill modifiers defending on if the city is on flat or rough ground. You can verify this easily enough by comparing predicted damage between attacks from identical units with different promotions. I'm not sure if it also uses the -33% FLAT_LAND_EXTRA_DEFENSE for attacks on cities in open ground, but I suspect it does. This isn't so easy to detect since it applies no matter what you attack with. You'd have to compare attacks vs. two cities with the same defense rating on different types of terrain.
If it is as I think, modding this would also make it more difficult to take over cities on open ground. Taking over cities is another thing that is commonly complained about being too easy, and which has been getting modded (see Active City Defense, for example).
As far as pathing is concerned, a quality pathing AI would have an "in danger" mode, which is used whenever a unit is at war near enemy combatants, and strongly emphasizes staying on good defensive terrain over the speed of advance. The only exception might be nearly dead units retreating to heal (which will die regardless of terrain if attacked), and when a unit is extremely likely to capture a city with its attack (in which case it'll be protected by the city next turn). I'm quite certain the game doesn't do any of this right now.
If it is as I think, modding this would also make it more difficult to take over cities on open ground. Taking over cities is another thing that is commonly complained about being too easy, and which has been getting modded (see Active City Defense, for example).
As far as pathing is concerned, a quality pathing AI would have an "in danger" mode, which is used whenever a unit is at war near enemy combatants, and strongly emphasizes staying on good defensive terrain over the speed of advance. The only exception might be nearly dead units retreating to heal (which will die regardless of terrain if attacked), and when a unit is extremely likely to capture a city with its attack (in which case it'll be protected by the city next turn). I'm quite certain the game doesn't do any of this right now.