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Source:
"Free cities units that are not involved in attacking other units will stay within their own territory."
https://civilization.com/news/entries/civilization-vi-rise-and-fall-spring-2018-update-release-date/
If you still have a save while that was happening, either open a 2K support ticket:
https://support.2k.com/hc/en-us
or post it here:
https://forums.civfanatics.com/forums/civ6-bug-reports.553/
That's not a flaw, that's what the AI is supposed to do, mess with whatever preconceived strategy you try to follow. The AI, as imperfect and inept as it is, does at least sometimes manage to mess with you, so you have no choice but to remain flexible in your approach and leave yourself free to both take advantage of unexpected opportunities the AI throws your way, and the more rare but much more educational challenges it throws at you when it does manage to mess with you.
The two most important things you have to do to preserve enough freedom of action to enable you to take advantage rather than be the victim of random events and the AI's machinations are: 1) stay at least competitive in science, and ahead if at all possible 2) maintain an at least moderate sized army. The fact that you didn't do the second means that you are lucky that barbarians and/or your opposing civ neighbors didn't take advantage of your mistake earlier. That's the most common pattern, that the AI fails to take advantage of your mistakes.
If you had a reasonable size army, which you should have as a safety play, no matter how much trade-off you have to accept in terms of less time your cities can spend building all your other priorities, this occurrence would have been a free gift for you. These are two free cities, and you get to take free cities without all the grievance and other forms of enmity you create by going to war with your neighbor civs and then keeping their cities at the end of the war. You could have, you still can now that you have built an army in reaction, take these free cities and get two cities for free, without having to build settlers, and without having to then wait for them to grow to their current size. Extra cities are a huge benefit, and the AI gave you an opportunity to have two of them at much lower cost than you would normally have to pay.
So say goodbye to your old strategy for this game of developing what you already have in peace, and accept that this particular game has evolved differently, and has made a new strategy more advantageous, a strategy in which you get two new cities you hadn't planned on getting, but which have fallen into your lap. Maybe the changed map means that you should just go on with your new path of conquest, because you've already built up an army, and finish off Germany. But even if that isn't a good idea, you will have managed to steal two German cities without making Germany your permanent enemy, and so your still free to pursue a path forward in which you and Germany are best buddies.
There is a rank order of how stupid the AI controlling these different entities are, in order from dumbest to smartest: barbarians, free cities, city states, competing civs. While it might be nice f they made free cities smarter, I'm not sure they can do much on the critical problem that free cities face -- who to align with. That would take an ability to analyze a game position for the strength or weakness of each relevant civ, and not even the competing civ AIs can seem to manage that. They have their tropisms and habits and pre-set game plans that they follow without a lot of flexibility or modification by the likelihood of particular other civs being able to frustrate their plans.
A free state stuck between two (or maybe three) superpowers has no hope for survival except by the continued weakness of both (or all three) of its neighbors. So they programmed the free state AIs to attack and pillage to do what little they can to contribute to the cause of keeping neighboring civs weak as long as possible. This is pretty suicidal against human civs, but against AI civs -- hey, I've seen games where not just city states, but even some regions of AI civs, are permanently overrun by barbarians, so indiscriminate belligerence is not a hopelessly bad strategy for the free states.
What the game designers could and should do with free states, is to let them evolve. Perhaps they could make it so that if they survive long enough as free cities, they become city states, with type and suzerain bonus only revealed after they complete this evolution. Or they could introduce a vassalage feature, that might apply both to free cities and AI civs, that decide to give up and join you when it becomes clear they can't beat you. Whatever else they decide to do with the free cities, they could make it possible for you to make deals with them -- alliance against other civs, tribute for your not attacking them, or even tribute to them for not attacking you -- there is a lot they could do beyond having them act like barbarians who happen to own a city.
That sort of thing doesn't happen to me often, but it should probably be something that the AI is better prepared to avoid. So, I too agree that some adjustments are in order. Maybe a little less desire to forward settle and a little more attention paid to positive pressure present at the site of new cities.
I've only seen this scenario once (okay twice, but the second time I was playing as Eleanor and I made it happen with Eleanor's special mechanics), and it happened that way because the opposing AI forward settled on me during eras in which we were both at the same level. The flipping started in the next era, in which I was golden and the AI was in a dark age. Once it started, it fed on itself, and got enough momentum that it didn't even need a gradient of golden to normal anymore, but just went on until the other AI was gone.
Is this how it went in your game, a matter of age gradient, or was it just straight up forward settling into a loyalty situation that was unsustainable even at equal era status? You would think that would be an easy thing for the AI to avoid. Anything that involves analyzing a game position for the interplay of competing strengths and weaknesses is of course beyond the AI, but the loyalty gradient is a simple knowable number.
I have noticed that Spain tends to be eager to settle other land masses, but haven't seen it do so suicidally as in this case you observed, so I can't blame this on some agenda or tropism peculiar to Spain.
There seems to be honor among thieves, but they only honor other thieves, or something like that. I'm curious if free city units act like barbarian thieves.
I don't think all of the flips occurred when I had a better age than him, but that was a factor. Still, the AI should recognize the risk of forward settling and take into account factors like the risk of increased relative pressure during an inferior age. Maybe Spain "thought" that it would be able to settle all five cities and conquer the city-state before pressure on the border cities became an issue, in which case there might have been enough friendly pressure to hold the border even in an inferior age. That's a very risky plan, though, and at least in this case it backfired. If he had just settled in the other order, starting near himself and expanding outward then he probably would have gotten to keep all of those cities. Maybe I would have grabbed one or two of the sites myself (I wouldn't have, but the AI couldn't know that), but still Spain would have been better off because he could have kept the ones he did get. Instead he took a huge risk and lost all the cities, and then shortly after ended up eliminated.