I would have thought that a city with no hammers is a city working mainly cottages or buffed water tiles. Is it really a good idea to whip away commerce tiles? When will forges and libraries and courthouses pay for themselves? Are you gunning for a time victory or something? Build wealth.
If not a commerce city, then a food-rich whipping post or GP farm, in which case the construction paths are quite clear-cut.
And finally if the city lacks both a food surplus, hammers, and commerce, you have to wonder why you built it in the first place.