In my mind a lot of this can be boiled down to 1) how the game distributes resource tiles across the map, and 2) ensuring there is little economic incentive to founding a city that will never have an associated resource tile.
Personally I had to move away from tiny and small maps because the worlds would quickly run out of uncontrolled space where monsters would spawn, and darn it I like hunting monsters. I didn't play MoM to see how quickly I was going to beat the AI, it was a forgone conclusion I was going to win no matter the difficulty. I liked going around and clearing out all the nodes and dungeons and such, because they were way harder than the AI's cities. Same applies to Elemental at present, we are all probably going to win, it is just a question of how interesting the ride is. For me part of that ride is the unclaimed forests that spew monsters.
I had this great game going where there was a large swath of monster forest, but then Ceresa went and ruined it by founding THREE cities in that area, and the only resource anywhere in that whole area was a SINGLE clay pit. Three cities for one resource tile, and one of the least useful ones at that.
I can't imagine (outside of every map being custom-made) how complex the programing must be to make the "just right" mix of clustered resources, but not TOO clustered, and also leave somewhere in the world some space where absolutely no one would want to settle. But that's what I want.
And with population as a resource, doesn't it seem like founding a city anywhere, even with no associated resources, is going to be a good strategy (or rather, even better than now)? I mean then I can assign those specialists as more troops or whatever. It sounds like the player is getting "something for nothing" in that hey, as long as I have the food to support the housing that I need for population growth, then I can have infinite population with enough cities and caravan routes (as I pointed out in my post above regarding food production).
There needs to be a penalty to a city with no resource tile - maybe it takes a prestige hit, or extra turns to produce buildings. And if the overall Kingdom can support that, OK. But at least make the player/AI think about it long and hard.
Side note: pre 1.08 it seemed that resource tiles that were "discovered" through tech would always spawn within your existing borders. Now where they appear seems weighted towards your current border, with a strong chance of it being outside your current territory. While it is annoying for my researched stuff to appear in my neighbor's territory, it is the opposite that needs to be balanced for the AI; my last game I had two ventril mines and crystal crags appear in MY territory that the AI researched. Great for me, bad for AI.