It is true that there are varying numbers of build slots for each settlement, but it is not random. The differences in slots among various settlements is due to two factors: First, whether the city is a capital or a minor, and second, whether it is coastal or inland. The city and port slots are always fixed (e.g., the player cannot opt to replace a port or city with, say, a farm or barracks). So, settlements have a consistent number of "player-discretion" slots as far as what is built in them (4 for capitals, 2 for minors).
Coastal capitals have 6 slots (1 city, 1 port, 4 discretionary).
Inland capitals have 5 slots (1 city, 4 discretionary).
Coastal minor settlements have 4 slots (1 town, 1 port, 2 discretionary).
Inland minor settlements have 3 slots (1 town, 2 discretionary).
Once all settlements in a province have reached those numbers, then provincial growth stops.
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