Being Ag can make farms a real pain because in an all-grass area, all your cities end up with an odd amount of food (after rails).
When I set up farms typically I will have (assuming grassland, fully irrigated+rails):
- A bunch of 90%-corrupt size 5 cities building wealth with no improvements. 2 citizens+city centre gives 10 food, so that's 3 specialists.
- A few 90%-corrupt size 11 cities (those lucky enough to have fresh water, or perhaps captured cities with 'ducts - it's not worthwhile building 'ducts of your own) with no improvements. 5 citizens+city centre gives 22 food, with 6 specialists.
If you have a +2 food bonus, great, you can have an extra citizen in either type of farm.
With plains you need more citizens to get the food. No point growing above size 4 without a 'duct/fresh water. (centre+2 citizens = 8 food = 2 specialists)
Any other type of terrain, forget about it, you'll never be able to support more than one specialist unless there's food bonuses about (fish, tundra game, whales), so just make that 1 citizen a specialist right away, build wealth, and leave the town be.
When deciding whether or not to let a farm grow, use the following guidelines:
- Will my next citizen be able to work a tile that gets >2 food? If NO, make that citizen a specialist and stop.
- Will the amount of food gathered after adding the next citizen be more than my city needs for its maximum size (6 or 12)? If YES, make that citizen a specialist and stop.
- You've got this far? Great, put that citizen to work!