King Jason
Fleece-bearer
- Joined
- Oct 21, 2005
- Messages
- 2,095
In Civ II (and III iirc)...
Pretty archaic standard of measurement.

If both were available at game start, though, I can say that I'd pick Urban Whatever at the very start (to make a few units to scout out the territory and wait for the capital to grow to size 3 or so), then switch to Colonization and spam Settlers from every city until I either ran into neighboring civs, settled every possible spot or ran into some other limitation (city maintenance or the like). Then I'd switch to something else, consolidate my new holdings (typically a whole continent) and spam out science buildings and wonders. It's been the winning strategy in every Civ game so far apart from V (which suffered greatly from it, imo), and I'll be sad if it isn't in Civ VI. It just doesn't need a policy to help it, or at least there should be a significant opportunity cost to it.
The main issue with what you're saying is the strategy, not the policy. If you can do anything like what you described I'd argue that the game is broken. I'm going to operate on the assumption that the game isn't broken.
Then again, so long as the A.I. understands it should do that too... In which case, it's just how you play the game, and then there's nothing to worry about... because to say it again; The system is designed to give the players choice, but you have to start somewhere; the first civic cards you unlock will always be the ones you play first.
"Empire building" is one of the first civics, it would seem - and it unlocks two economic cards; Whatever those two cards are will always be played first before all others. Assuming at least one of those is colonization - then there's a fair chance most empires will run it at some point in the start of the game. Probably when they're ready to expand in any capacity. Makes sense - the policies are meant to shift to fit your needs.