If a city is building nothing it's a bug. The only time a city can build 'nothing' is during resistance after conquest. Cities must always build, even if the production is simply being converted into gold or science.
it's a bug. if you can manipulate the puppet so it's working a production tile that'll sometimes kick start it, so build a trading post on a hill and nuke other trading posts
It seems if they have built all of the culture, money, walls and happiness buildings available, they will cease building until you discover the next tech with those kinds of buildings included. That is what I noticed at least.
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