Good suggestions from Master Samurai. I would add that if you're empire's geographic situation permits, change your capital city. Sometimes even doing it for one or two turns until a newly captured city's populace quiets down is all you need. When I'm playing the Julii and I've captured all of Spain and France and am moving into Britain, I change my capital to Marseilles (Messala). It quiets Corduba considerably. Corduba is definitely a prime candidate for a governor. Of course, with the Julii, the temple of Jupiter series tends to bestow some good admin qualities on your governors. This will enhance their positive public order effect on the city they govern.
When I'm playing Carthage, growth of population and squalor tends to self-neutralize over time resulting in ZPG.
There are limits to the garrison benefit. Once you've maxed it at 80%, adding new troops will not increase your public order benefit from the garrison. And by the same token, once the population gets really really large, there are not enough garrison slots in the city (you have 20) to achieve the 80% public order benefit from a garrison. In the end, all you can do is lower the tax rate and keep adding buildings that offer some PO benefit until you achieve ZPG. Once you reach ZPG, public disorder is no longer an issue.
I've never liked the idea of vacating a city, letting it go rebel, then besieging it anew and exterminating the population. Some RTW players like that method of city management, but I prefer other alternatives.
There are several towns that are especially PO pains in the arse. The largest is Alexandria. It grows like a weed, faster seomtimes than you can recruit troops to keep the garrison PO benefit high. Another is the little town of Deva in Wales. Invariably when you take that town, it retains a high public unrest % of 60-70% and only slowly comes down. Many is the time I've lost troops in Deva to rioting while playing the Julii. Even Tara, in Ireland, doesn't have the unrest problem that Deva shows. I can get Tara quiet, stabilized and productive long before Deva most of the time. Another is Nepte at the very southern border of your gameboard. It couples a modest unrest problem after capture with the fact that it is so distant from most capital cities. It's usually not worth capturing unless you're trying to finish off the faction that happens to occupy it.
Jerusalem also shows a PO volatility once the population gets really large. I think this is built into the game design based on the city's historical reputation. The Jews were always rebelling against their occupiers - Nebuchadnezzar (Babylonia), Antiochus Epiphanes (the Seleucid Empire), and twice against Rome requiring Hadrian and Vespasian to deal with them in the worst way - sacking, extermination and diaspora.
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