Using this guide I'm more or less able to keep everyone happy.
Not sure if it's intentional or not, but it seems like sending max workers from City 2 to City 1 every turn keeps City 2 from ever needing food. It makes sense to me, I just wanted to point it out. Now that I have an understanding of what I'm actually doing I do think the UI needs work, but it seems like a very early project and has an interesting premise!