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Well, for that matter neither does emphasize production or trade. An example:
I just founded a city. There are eight squares in the city radius - two forests with game, two forests, three unshielded grassland. I set the governor to emphasize food. I made sure that "emphasize production" and "emphasize trade" were set to "No." As expected, the first two citizens were placed on the forests with game. Then, the third citizen was placed on a regular forest! When I tried to move it to grassland, the game asked if I wanted to override the governor. Sigh.
When I say "emphasize food" I mean "food is the number one priority." I mean "see that grassland over there that produces two food? Use that before you use the d*mn forest!"
I just founded a city. There are eight squares in the city radius - two forests with game, two forests, three unshielded grassland. I set the governor to emphasize food. I made sure that "emphasize production" and "emphasize trade" were set to "No." As expected, the first two citizens were placed on the forests with game. Then, the third citizen was placed on a regular forest! When I tried to move it to grassland, the game asked if I wanted to override the governor. Sigh.
When I say "emphasize food" I mean "food is the number one priority." I mean "see that grassland over there that produces two food? Use that before you use the d*mn forest!"