I’ve never seen this before. Playing as Inca, managed to get a late pantheon when my empire was already at four cities. The capital, third and fourth city have the pantheon, it’s now 20 turns on and the second city, with a population of 6, is still sitting on only one pantheon follower. The second city is only five tiles from the capital, nearer than 3 and 4. What’s going on here? I haven’t found any reference explaining why a city hasn’t picked up the pantheon.