I think I remember reading something somewhere that some cities have constant unrest. Maybe they are meant to represent naturally unruly people or maybe the game hates you and is trying to dislodge you by any means? Also if you are playing on VH campaign setting it might be something included to make it a bit harder. OR it could be a governor trait or an ancillary or maybe you have a negative with one of your governments, type 3's and 4's are normally not so good for public order. maybe they do the unrest?
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