Isn't that unfair for civs start on coastal region with sea-based luxuries? Land-based luxuries can be improved by just 1 worker but you need 1 Work Boats for each luxuries on sea.
It's most likely a carry-over design artefact from Civ 4... they could be made stronger, but then one would have to taken into account whether or not that would make coastal starts too strong into the mid-late game with the increased yields.
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