I will mine all hills in a production city(given that food is not really poor),and build watermills next to river if available.
The question is -- there are some grassland tiles without hills or really away from rivers (cannot be chain irrigated ) and the city does not have many food surplus.So...how do I improve those tiles?
Build cottages on them?But it is not a commerce city...(Although cottages are better than "no improvements" , I don't like it
)
Build workshops (before state property)?I may not be able to work them
Any suggestions?
The question is -- there are some grassland tiles without hills or really away from rivers (cannot be chain irrigated ) and the city does not have many food surplus.So...how do I improve those tiles?
Build cottages on them?But it is not a commerce city...(Although cottages are better than "no improvements" , I don't like it

Build workshops (before state property)?I may not be able to work them
Any suggestions?