tjs282
Stone \ Cold / Fish
The default is — or should be — "(Almost) all governor settings switched off"!You can change the gov to prefer production or growth iirc. I forget what the default setting uses.

Even if left to its own devices, (and up until the town hits a growth-cap at Pop6 or Pop12) the Governator usually aims for at least +2FPT net from all worked tiles, and as many SPT as can be obtained without compromising that 'minimum food' requirement.
AFAIK, on a procedurally generated map, you'll never get a Wheat on a BonusGrass. So yeah, if the Wheat hasn't been mined yet, then all else being equal, I can easily imagine it preferring the Sugar-Hill (2f+1s) to the unimproved Wheat (3f+0s) at Pop1.
@That Retro Guy:
If you only have a single Wheat available, then under Despotism, it should usually be irrigated (=4f+0s) for growth every 5T (before you've built a Granary*), rather than mined (=3f+1s**) for growth every 7T.
If you then also switch on 'Emphasise production' in the Governator settings for that town (or 'All towns'!), every time your town(s) grows, the Governator will look for the highest-SPT tile available in the FatCross, e.g. a Forest or a mined Hill, to bring the 'excess' food-harvest back down towards +2 FPT net. Because food-harvest/growth happens before shield-harvest, that newborn citizen can therefore immediately give you 1-2 extra shields into your current build.
If you (can be bothered to!) then rearrange your towns' citizens back to the high-FPT tile(s) after growth*, you can get both faster growth and more production/commerce than if you'd left your citizens arrayed per the Governator's preference.
Spoiler * :
After you've built a Gran, if you want to avoid wasting large amounts of food at +3-4 FPT net, you will need to micromanage that town's worked tiles — at least twice as frequently
Spoiler ** :
You can always go back and mine that Wheat-tile (for 4f1s) later, once you've switched to a gov-type without the Despot-penalty