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I'm not sure that is accurate. In a game previously I'm pretty sure I did the economic path in Exploration Age with only 3 towns that had exotic resource. Cocoa and another. I know if you are following the 'guideline quests' it tasks you with having 5, but i think that might be because its quicker to tick the score up when they are going.
I have experienced the bug OP has though, and that was [in another game] with only 2 towns in distant lands.
https://www.reddit.com/r/civ/comments/1im9de3/treasure_fleet_in_civ_7/
Also the spawn port, is usually the first town you place in the distant lands. But it isn't always the spawn port. I've had multiple ships spawn from various cities.. so not quite sure how the game works it out. But usually it's the first town and my first towns are usually next to spices, cacao, tea and sugar. I only recently noticed silver and gold also spawn them.
I am still trying to figure out many things about game mechanics.