score:22
The following involve hostile forces taking control of the city, but mostly from within (as coups, revolts, etc), so not sure if we want to count them:
Upvote:-4
Cities or municipalities in ancient Mesopotamia can be the clear candidate. Sumerians, Babylonians, Assyrians, Alexander, Romans, a long list. Considering how old the city is can have a certain assurance on how many times the city has been turned over.
Upvote:-3
Some cities have been around for a very long time. Alexandria (in Egypt) and Damascus (in Syria) would certainly come out very high on your list.
Upvote:1
The city of Xuzhou in China is said to have seen 200 notable battles. I don't know how many of these ended with the city being captured, but it seems like it would rank very high.
I did a quick check and between 1911 and 1948 it changed hands at least 5 times.
Upvote:1
From what I know, Jerusalem has been controlled by the most separate governments. What I mean is that once it has been controlled by one government, if that government reconquers, then you do not add another number. In this case, Jerusalem, I believe, has been captured the most times.