My rule of thumb is to pacify a settlement first, then focus on getting the taxes as high as they will go by adding law&order buildings and also basic barracks. Ideally get the taxes so high the population growth is about 0% but the population stays happy. Temples are really, really useful here, as are garrisons. Then, focus on trade and mining and upgrades of various sorts.
I make my decision on what to build now based on budget concerns: build the cheapest thing that will advance the settlement the most according to this overall strategy, with some exceptions for border regions or major recruitment centers. Farms and estates are to be avoided, only do them in regions where you feel confident their acceleration of population growth (and in case of estates the law&order penalty) do not threaten the stability.
Bookmarks