I have a size 4 city on Diety level. I'm early in my empire (obviously, my capital is only size 4) so I do not have very many cities. A city this size at this stage should have one content citizen, and the rest unhappy. If I look at my 'happy tab', I confirm this is the default state.
However, it shows that my temple makes one of them content, and my warrior makes another content via martial law (I'm a Monarchy). This leaves me with one unhappy citizen, which without any happy citizens puts my capital into civil disorder!. Yikes!
Upon reading the text of a temple, it states it makes "Up to two unhappy citizens content". I've never run into this before where it had leftover unhappy citizens without using both of its "up to two". Why is this happening?
Screenshot of city info: