Follow-up Comment #1, bug #16565 (project freeciv):

Please note that even though settlers and workers aren't military units, they
can still be used to perform passive-aggressive warfare, basically by blocking
access to certain tiles within the other nation's borders. So if you allow
peaceful nations' non-military units within your borders, you open up for
abuse of the peace treaty without risk of formal repercussions.

An idea: how about instantly transferring ownership of settlers or workers to
the other nation when they end up within their borders? IMHO this is a fair
and predictable rule.

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