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Clear the blockers and you can build up to 7 city districts (might need tech for certain blockers though). Delete your generator, mining and farming districts and you can have up to 16 city districts.
I'm not aware that you can build a city district if you remove another district. Because if I delete a generator district, the maximum city districts I can build is still 7. It wouldn't be 8, would it?
And this topic is only relevant to the starting planet Earth. With other habitable worlds the city districts are variable, 10... 20, etc. So this is not about relic worlds, Alpha Centauri or Sirius. And I don't know why because I played this game a lot but I just noticed this yesterday.
It would.
The maximum number of city districts = planet size - mining/energy/food districts.
As long as you still have districts available to build you can always build a city district, if you can't build a city then you can't build any district.
city districts available = planet size
building slots available = number of pops on world
Size 16 is not a small planet, but an average one.
Earth isn't necessarily always that size, unless one of your mods causes that. There is some randomness to planets, even starting planets, and also Earth can be found in the game sometimes even when it is not a starting planet. (Note that if you are playing starting with the Sol system as your home system then Earth will always be the same, because that system is not random. If you create a custom empire and use the random system start but name your star "Sol" and your home planet "Earth" then it will be generated randomly.)
The number of districts that can potentially be built on a planet is based upon the planet's size, and is equal to the size of the planet (+1 if you have completed the Expansion tradition, +2 if you have used the Mastery of Nature ascension perk's planetary decision on the planet, and various other modifiers which might be applied during planet generation or by events).
The number of districts that can currently be built on a planet is equal to that maximum, minus the number of districts already built and the number of blocked districts (max - (already built + blockers)). In the screenshot provided by Geronimo in an earlier post, the maximum is 16, there are already 12 districts built, and three districts are blocked: 16 - (12 + 3) = 16 - 15 = 1. This can been seen on the screenshot, below the button with a planet behind a magnifying glass: the number 1, signifying 1 more district that can be currently built, and next to that four squares: one empty, representing the 1 district that can currently be built, and three with diagonal lines, representing the three districts that could be built if their blockers were removed. Clicking the button above (planet with magnifying glass) will open the detailed view of the planet, which is where the details of the three blockers on the planet can be seen, and where one can initiate their removal.
Each district on a planet starts empty, except in the case of one's starting planet, which begins with some initial development. When you "build" a district you are really formatting it for a particular use. This is important to understand, because once you format a district for one use it is no longer available for use as any other type of district (unless you demolish it, which frees it up to be formatted differently at the cost of removing the current formatting). So if you build a city district then that district can no longer be used for farming, and likewise if you build a farming district then that district can no longer be used for cities. Each use is mutually exclusive.
There is an added layer of complexity, whereby each planet has a limited number of farming, mining, and energy districts that is can support. Some planet might have ideal conditions for growing food and so have many farming districts, whereas another planet might be able to support life but have very infertile soil and so be able to support only a few farming districts (and so be incapable of growing enough food to support its maximum population). Regardless of these variations, any district can be used to build cities, and this fact drives a potentially confusing distinction in how the UI depicts these districts.
On Geromino's screenshot, there are four sets of boxes shown, representing the four types of districts that can be built on this planet: blue for cities, yellow for energy, red for mining, and green for farming. The number of districts currently built of each type is shown as squares of solid color. So currently there are 3 city districts, 4 energy districts, 2 mining districts, and 3 farming districts built on the planet (12 total). For each type of district there is one empty box with the color of the district type; this signifies the fact that there is one district left to build, and it can potentially be of any type because none of the districts has yet met its planetary limit. It is important to understand that this is not four more districts that can be built (one of each type), but rather just one. When any district is built that box will change to solid to indicate that it has been built, and the other boxes with either turn grey (in the case of energy, mining, or farming) or disappear (in the case of city).
The rest of the boxes in each field are grey to indicate that they are potential districts that cannot be built because that district is currently being used for another purpose. If we look at mining districts for example we see that there are seven boxes, which indicates that the planet can support a maximum of seven mining districts. Two of the boxes are fully red to indicate that there are currently two mining districts on the planet. One of the boxes is outlined in red, to indicate that one more mining district can be built on the planet currently. Four of the boxes are outlined in grey, to indicate that another four mining districts could possibly be built on the planet, but that those districts are currently being put to another use. Demolishing four non-mining districts would free up those districts and allow them to be used for mining (the borders would turn red when the four districts were demolished, and then the boxes would turn fully red when the mining districts were built).
The other type of squares we see, in the energy and food fields, are grey boxes with diagonal lines in them. These are potential districts that are blocked by district blockers. Until those blockers are cleared those districts cannot be used for any purpose, even if other districts are demolished. Removing those blockers would free up those districts for any possible use, although we can see that two of the districts are energy districts and three of the districts are food districts, and so would increase the maximum number of those districts that the planet can support by those amounts.
The city field does not have any grey boxes. This is to reflect that fact that the maximum number of city districts that a planet can have is the same as the maximum number of districts that the planet can have. The city field will have one box outlined in blue for each district that can currently be built on the planet, because it is always possible to format every remaining district on a planet as a city. For this particular planet, if all of the blockers were removed and all of the current non-city districts were demolished, it would be possible to build up to 16 city districts.
If you add up the maximum number of each district that can potentially be built on the planet (8 energy, 7 mining, 8 farming) you will see that the total (23) is greater than the number of districts the planet can support (16). This does not happen with every planet, but it is not uncommon. In this situation, you are forced to choose how you will develop the planet, instead of being able to build all of the specialty (non-city) districts and then fill out the rest with cities. There are many different ways the planet could be developed by choosing which districts to build and which ones not to build, and then choosing which buildings to build to support the direction your district choices have taken you. You might specialize the planet around one or two types of output, or you might keep the planet general, producing some of many different things. Which choice is best will depend on circumstances beyond the planet itself - the needs of your empire overall.
Normal starting planets range from 16 to 20, so 16 is the smallest it gets.
Earth is always size 16, that's part of the Sol system start. The reason it's always 16 is because Mars exists as a terraforming candidate giving that start 2 planets, so that is an attempt to balance it.
https://imgur.com/a/ujQwa56
So I have 4 starting city districts, of which 3 are already built. Then I can gain one more city district by removing the slums.
The other districts that are blocked are for generator and agricultural districts. So I can build only 5 city districts in total in every new game! This will cause overpopulation problems quite fast and I need to build luxury houses early on.
So what is this problem?
A blocker reduces maximum district while also blocking particular sub-types. And you can always replace other kinds of districts with city districts, as we've all said.
This isn't hard...
Besides, you're not even reading your own screenshot properly. You start with 3 city districts and can build 2 more right away, because you have 2 district spaces open. And after removing the blockers you have another 2.
Ok, I'll remove the blockers see if they open up city districts as well.
That screenshot was AFTER I removed the slums by the way, the starting situation is 4 districts of which 3 are built.