Ursa Ryan talks about the cities and towns mechanic in his preview :
I see problems there :
- if every civ starts with a cap of 3 and can increase it to a cap of ca 7 in antiquity, how can you scale empire size with map size? How can you populate a large map other as by adding lots of players?
- OOC in form of "One City with as many towns as possible to feed it" will likely become a very strong and popular strategy.
- Changing towns into additional cities will reduce number of towns and divert part of food from towns to your other cities so that all your cities will grow slower and stay smaller.
(eg cap of 7 : 1 x (city with 6 towns) or 2 x (city with 2.5 towns each) or 3 x (city with 1.33 towns each) or 4 x (city with 0.75 towns each))
- it probably would be good to be able to assign towns to specific cities so that your capital can still grow while you build a 2nd city.
- it seems strange that the cap does not distinguish between small towns and huge cities. A city of 100 counts the same to the cap as a small town with size 1 ...
- if you are at the cap and are in war with another empire and conquer their towns and cities, you will likely go over your cap and get a massive happiness penalty, in worst case resulting in your own cities revolting ... (I think that's worse than what happened in Civ 5 if you completely ignored the happiness mechanic there.) (That's completely different to Civ 3 where you could garrison lots of troops in your cities to supress uprisings.)
- towns and cities have different mechanics. If conquered cities turn into towns, what happens to all the buildings and districts there. And if a player re-conquers one of his cities, will he get back part of the population and buildings and districts he built there before or is everything lost?
- I remember "Rise of Nations" by Brian Reynolds which also had a cap for settlements, but that only affected the ability to place a new settlement, so when you were at your cap you could still conquer more cities without negative consequences ...
- "Millennia" has a cap for towns per city/region. The town cap slowly increases from 1 to 4 while progressing through the 10 ages. Region population can also grow from 1 to 50 or 100 or more allowing them to work as many tiles. This forces players to actually preplan the enormous later size of the city region including locations for all the 4 towns per city and keep the region and the spots for the currently unavailable towns empty (or place outposts there) for large part of the game which does not feel good. (Alternative in Millennia is to build a temporary city in the reserved area and later raze it ...)