For the purposes of this topic spacing should refer to the number of blank tiles between cities. ie, it does not include the tile of either of the cities in the measurement.
Hense 4 spacing would see c x x x x c as c being a city and each x being a blank tile available for improvement(s).
Hense 4 spacing would see c x x x x c as c being a city and each x being a blank tile available for improvement(s).
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