I've found 3 reasons so far to make a province a food producer:
- Grain resource in one of the towns - settlement building there produces food
- Coastal regions - for fishing ports
- Conquered regions with foreign buildings with a food boost
Others have made the first two points but the last one can be useful too. In particular, Barbarian factions (celtic ones at least in my experience so far as Rome & Athens) can build agricultural buildings in the capital city of a province, which Roman & Greek factions can't (there is a food producer in the city center line but just the one). So might be worth while not rebuilding such a slot and making the province a food producer.
Related to that (if a little off topic) are the other advantages from finding useful foreign buildings in a conquered region. When I took Nicomedia in Asia Minor as Athens I found a wonderful Eastern culture building that gave me +20 to public order with no food cost at all. That was enough to make it a perfect troop-producing province since that building alone almost balanced the public order cost of 2 top level military buildings. And to go further off-topic: AI factions seem to have much higher levels of buildings than I can manage in early & middle game. I wonder if they get tech cheats or just starting positions with great buildings? Probably the latter since their military techs don't seem so advanced based on what troops they produce.
Good point. And it made me think about the public order <-> food trade-off system as well. Their different characteristics makes balancing them more interesting than I first thought. Food is 'easy' since it is accounted over your whole empire - but 'tough' since the penalties for -ve food are great. Public order is 'easy' since the penalties for reaching -100 aren't so bad (though I like to role-play and avoid this if at all possible) but 'tough' since Public Order must balance in each province.
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