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I have fully conquered the Iberian peninsula and they all have 15% unrest, which refuses to go down. 3 of them have governors, 3 without but it's all the same 15% unrest. The towns I recently conquerd in Numidia and Gaul already have lower unrest than the Iberian towns. They just refuse to go down below 15%. Some of the towns actually have public order above 100% even with it but they're growing so I need it to go down.
I also noticed that they were more unruly people in that region. I had to put them to the sword or enslave. Occupying didn't work, even for < 3000 populations. Destroy their shrines and build temples too so that you can upgrade them. It may also help to chose a closer town to become your capital. Those towns are about as far away from the Italian peninsular as you can get.
Careful letting them revolt too. You get a 10000 bonus from the senate for retaking the town, but the rebels seem to get powerful units there. Esp. Cordoba (whatever it's called in RTW)
Have you ever been to Spain???
They are not exactly big fans of centralize government and red tape... ~;)
There is no other country in europe where "Regional Autonomy" is such a big political issue... (No offense ment to anyone there, please correct me if I am wrong)...
Seriously, Murmandamus is probably correct from what I have read on these forums...
Have you looked on the city's stat scroll. I can't remember it's real name but it gives you a breakdown of income, unrest, growth, etc. It has symbols representing the positive and negative forces effecting each category and may give a clue as to why these Iberian cities are more rebellious. It could be that there is a predisposition for rebellion written into the game for that area or it might be a factor of the distance from your capital.