I wonder if it depends on the civ & the location of that civ's cities? Or even difficulty?
Sometimes I've seen civs with an overabundance of workers, all merrily running around building improvements and roads. I wish there was a "hey why's your worker building a village where a farm should go?" question in diplomacy. Real headscratcher sometimes
Then other times I've seen a civ with a city that hasn't seen a worker since its inception and many hundreds of turns (marathon) can pass without any improvements at all. Whether it's because they lack the workers or if they do have workers but are all prioritising cities further into their empire I don't know or maybe they just don't see that city worth improving I don't know. But I have seen cities left to rot without any workers for very long time.
I do think civs should prioritise workers if they have lots of unimproved tiles, especially if they have luxuries/resources that need improving. Because obviously leaving them unimproved is hurting that AI. But it needs to be done in a way that won't have unintended consequences.
Maybe that civ isn't building a worker yet because he's busy building a world wonder, and his other city is busy building a lighthouse, and his other is building a spearman. I think artificially pushing civs to build more workers might mean they build a worker instead of that spearman, harming his defence. Or instead of that world wonder, or builds worker before the lighthouse leaving that city unconnected for longer etc. I'd hate for us to solve one problem by creating another.
I don't know if it can be done only if certain conditions are met.
If civ !war && city has zero improvements && city not require essential building[/!underdeveloped] then build worker.
That way they'll only build a worker if they're not a war, if the city has no improvements (to avoid building too many workers) and if the city wouldn't be better off finishing that granary first before the worker.