Especially with the new fame mechanic and being able to choose one of two heroes as you increase it, I had a thought.
1) Make the current pioneer unit strictly able to build outposts (and/or roads), and also let them act like additional constructors ala GC2 to add upgrades to an outpost if i want the closest city to be working on another project.
2) Give every hero with the governor trait the one-time "settle" ability like your sov has at the beginning of the game so when you recruit them, they have the ability to found a single new city.
3) To make it even more interesting... give each gov hero a bonus for a specific type of city. i.e Gralt the Grizzled gives a 20% production bonus to training units in a Fortress while Maylee the Mageborn gives a Conclave an extra essence slot if that is what the player decides to build with her settle ability. If you really wanted a Town... you could hold out for a governor hero with a town-associated bonus, or just grit your teeth and sacrifice Gralt's or Maylee's bonus for a Town.
This could make choosing a hero a little tougher and give interesting dimensions to gameplay. Do I create one big city and focus on melee and magic heroes to clear lairs and conquer additional cities, or do I hire on governors to build more cities that give me a larger kingdom and more regular troops?
It may require some adjustments for map size, but I find more than 3-5 cities tedious to manage.
Thanks for reading!