How about this:
On all cities above size 4, cottage every tile that isn't a hill or a resource. Use the right improvement to activate the resource and mine the hills.
On all cities under size 4, cottage every tile that isn't by a river, a hill, or a resource. Ditto for the hill and resource, and farm the river tiles. (If they need more food, we can always share irrigation, we do have code of laws, don't we?)
That's what I usually do on my games, what do you think?
On all cities above size 4, cottage every tile that isn't a hill or a resource. Use the right improvement to activate the resource and mine the hills.
On all cities under size 4, cottage every tile that isn't by a river, a hill, or a resource. Ditto for the hill and resource, and farm the river tiles. (If they need more food, we can always share irrigation, we do have code of laws, don't we?)
That's what I usually do on my games, what do you think?