Use the same cards as in the 3 player game (+3 cards).
Each player is given a board and a third board is placed between them. This board is called the "free city".
Each player is dealt a 7 card hand and the remaining 7 cards make a face-down draw pile next to the Border Card.
The player to the left of the Free city adds the Free city card to his or her hand.
Players and the Free city receive 3 coins from the bank in the beginning of the game.