Try with Jamestout like graphics :On the other side, I planned to have cities need flat room to build some structures, having them placed on map, making these tile spawn point for designated units build by the city (eg, a "Samourai Archer" built in the city would spawn at the archery's tile), and making cities spread out a little (within its borders, from center to outskirts)
This should give something like that :
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